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Inclusionary Affordable Housing Program

San Francisco's Inclusionary Housing Program requires new residential projects of 10 or more units to pay an Affordable Housing Fee, or meet the inclusionary requirement by providing a percentage of the units as "below market rate" (BMR) units at a price that is affordable to low or middle income households, either "on-site" within the project, or "off-site" at another location in the City.

To apply for an affordable housing unit to rent or buy, please apply with the Mayor's Office of Housing and Community Development (MOHCD).

San Francisco's Inclusionary Housing Program has been in effect since 2002 and requires new residential projects of 10 or more units to pay an Affordable Housing Fee, or meet the inclusionary requirement by providing a percentage of the units as "below market rate" (BMR) units at a price that is affordable to low or middle income households, either "on-site" within the project, or "off-site" at another location in the City.

The Program is governed by Planning Code Section 415 and the Inclusionary Housing Program Procedures Manual, and is administered by the Mayor's Office of Housing and Community Development (MOHCD) and the Planning Department.

To be eligible to rent or purchase a BMR unit, a household must meet specific requirements, including income requirements – visit the Mayor's Office of Housing and Community Development for more details.

Program History

From 1992 until 2002 the City required affordable units for certain projects of 10 units or more that received conditional use approvals. The City adopted an Inclusionary Housing Ordinance (Planning Code Section 315) in 2002 that set requirements on market rate development to include affordable units at 12% of the total. The City prepared a Nexus Study in 2007 in support of the program. The report demonstrated the necessity of affordable housing to mitigate the impacts of market rate housing, and the inclusionary requirements were increased to 15% of total units. The City's inclusionary housing requirements are later moved to Section 415 of the Planning Code. The City updated the nexus analysis in 2016.

Inclusionary requirements are one of several funding sources for the city’s affordable housing program. Prior to 2011, the San Francisco Redevelopment Authority had been the city’s largest provider of affordable housing funds. In 2011 Governor Jerry Brown and the state legislature dissolved Redevelopment Agencies throughout the state. In 2012, in response to this loss and the slowing of housing development during the Great Recession, the voters amended the San Francisco Charter to create the Affordable Housing Trust Fund, which included a provision to lower and to set the on‐site inclusionary requirement at 12%. As a Charter amendment, the Inclusionary rate could only be revised again by the voters.

In March 2016, the Board of Supervisors unanimously adopted a resolution declaring that it shall be City policy to maximize the economically feasible percentage of inclusionary affordable housing in market rate housing development. In June, as housing prices rose drastically, San Francisco voters approved a Charter Amendment (Proposition C), which restored the City’s ability to adjust affordable housing requirements for new development by ordinance. The passage of the Proposition C then triggered the provisions of trailing ordinance [BF 160255, Ord. 76‐164], adopted by the Board of Supervisors in May 2016, which amended the Planning and Administrative Codes to 1) increase the Inclusionary Affordable Housing requirements, pending further action by the Board of Supervisors; 2) provide lower inclusionary rates for projects in the pipeline at the time (“grandfathered rates”), 3) require an Economic Feasibility Study by the Office of the Controller; and 4) establish an Inclusionary Housing Technical Advisory Committee (TAC) to advise the Controller.

The Planning Commission considered the findings of the Controller’s Economic Feasibility Study that was required by Proposition C to advise the Board of Supervisors of the maximum economically feasible Inclusionary requirements on February 23, 2017, and held an informational hearing on proposed amendments to the Inclusionary Affordable Housing Program on March 16, 2017. The Planning Commission considered two ordinances on April 27, 2017, and adopted specific recommendations on amendments to the Inclusionary Program. Following this Commission hearing, the sponsors of the two ordinances collaborated to draft this revised ordinance [Board File No. 161351v4], the “Consensus” ordinance, which was presented to the Planning Commission on June 7, 2017, and was ultimately passed by the Board of Supervisors and the Mayor in August 2017.

The Consensus ordinance was the most significant change to the City’s inclusionary program since it was adopted. Not only did it increase the required on-site, off-site and fee rates for residential projects, but it also introduced a variety of new controls and requirements, including moderate- and middle-income “tiers” in addition to low-income units, annual increases to the on-site inclusionary rates, area-specific rates, and minimum unit sizes. The Consensus ordinance was also coupled with a new Citywide dwelling unit mix requirement.

Modifications

In 2019, the inclusionary program was further modified to change the methodology of calculating the affordable housing fee. Prior to 2019, the fee was levied on a per-unit basis, and the fee was indexed annually based on MOHCD’s gap funding costs. In 2019, the City began calculating the affordable housing fee on a per-square-foot basis, as described below.

In 2021, Supervisor Ronen proposed an ordinance [Board File No. 210868] to modify the inclusionary program to clarify issues related to project tenure and establish tracking procedures and post-entitlement milestones for projects with affordable units.

2019 Fee Modification

On January 1, 2019, residential development projects paying the Affordable Housing Fee will be subject to a fee based on the Gross Floor Area of residential use, rather than the number of dwelling units. The fee will be applied to the applicable percentage of the project, as set forth in Section 415.5 of the Planning Code:

Affordable Housing Fee: fee per square foot of Gross Floor Area of residential use, applied to the applicable percentage of the project:

  • Small Projects (fewer than 25 dwelling units): 20% of the project’s Gross Floor Area of residential use
  • Large Projects (25 or more units), Rental: 30% of the project’s Gross Floor Area of residential use
  • Large Projects (25 or more units), Ownership: 33% of the project’s Gross Floor Area of residential use

Note: The Development Impact Fee Register in place at the time of payment shall be applied. However, a project for which a Site Permit has been issued prior to January 1, 2019 shall remain subject to the fee method and amount set forth in the impact fee register in place as of December 31, 2018. Additionally, projects with an Environmental Evaluation Application that were accepted prior to January 1, 2013 pursuant to Planning Code Section 415.3(b) shall also remain subject to the fee method and amount set forth in the impact fee register in place as of December 31, 2018.

This change is pursuant to amendments to Section 415.5 that were adopted by the Board of Supervisors in July, 2017 (Board File No. 161351). Specifically, the Code requires that the Fee reflect MOHCD’s actual cost to subsidize the construction of affordable housing units over the past three years, and directed the Controller to develop a new methodology for calculating, indexing, and applying the Fee, in consultation with the Inclusionary Housing Technical Advisory Committee (TAC). In May, 2018 the Controller and TAC determined that the Fee should be applied on a per gross square foot basis to ensure that MOHCD’s cost to construct the required amount of off-site affordable housing is appropriately and equitably captured from all projects, regardless of the size and number of units distributed within the project. The Controller directed MOHCD, in consultation with the Planning Department, to convert MOHCD’s per unit cost to a per-square-foot fee, based on the average residential Gross Floor Area of projects that have paid the Fee in the past three years.

Pursuant to Section 415.5 and the specific direction of the Controller and TAC, MOHCD shall update the amount of the Affordable Housing Fee each year on January 1, using the MOHCD average cost to construct an affordable unit in projects that were financed in the previous three years and the Planning Department’s average residential Gross Floor Area of projects that have elected to pay the Fee and have been entitled in the same time period. Each year this analysis will be updated to include new projects from the most recent year, and drop older projects that no longer fall into the three-year period of analysis. The updated Fee amount will be included in the Development Impact Fee Register that is posted December 1 and effective on January 1.

Legislation

On September 5, 2023, the Board of Supervisors approved legislation to temporarily reduce the Inclusionary Affordable Housing requirements for certain residential projects to improve the feasibility of residential development. The legislation was signed into law by Mayor London Breed on September 14, 2023, and becomes effective on October 14, 2023 [Board File No. 230769]. The legislation was developed in response to the Inclusionary Affordable Housing Program Technical Advisory Committee finding that most residential development was infeasible and recommending reductions in Inclusionary rates as well as discounts of other Development Impact Fees.

The Board of Supervisors is currently considering additional reductions for approved HOME-SF projects and approved projects with 10-24 units [Board File 230855]. The Planning Department will update implementation guidance if this ordinance is passed and signed into law.

Amendments Overview

The ordinance amends the Planning Code to:

  1. Reduce Inclusionary Housing Program requirements for projects exceeding a stated unit size that have been approved prior to November 1, 2023, and that receive a construction document within a specified period (Pipeline Projects)
  2. Adopt a process for Pipeline Projects to request an administrative modification of conditions of approval related to development impact fees
  3. Reduce Article 4 development impact fees, including the Affordable Housing fees, for projects approved before November 1, 2026, that receive a construction document within 30 months of entitlement (Interim Rate Projects), and
  4. Modifies the Inclusionary Housing Program Ordinance effective November 1, 2026 to reduce applicable fee and on-site or off-site unit requirements for projects that exceed a stated unit size; and
  5. Amends Article XXIX of the Administrative Code to update the Inclusionary Housing Technical Advisory Committee member requirements

Pipeline Projects and Interim Projects are eligible for temporary reductions in the Inclusionary Affordable Housing Program Requirements. These projects are also eligible for a 33% reduction of certain development impact fees, which is further described on the Development Impact Fee page.

Projects seeking reduced inclusionary rates must obtain a first construction document within 30 months of final approval, except that Pipeline Projects as defined in Planning Code Section 415A may obtain a first construction document no later than May 1, 2029.

Final Approval indicates that:

  1. the date that a project’s first Development Application is approved; or
  2. if a project only requires a building permit, the date the first site or building permit is issued; or
  3. if the first Development Application or first site or building permit is appealed, then the date the appeal of that approval or issuance is finally decided by the relevant City Board or Commission.

Note: “Finally Approved” or “Final Approval” does not include any modification of the approval under Section 415A.5.

Pipeline Projects

Pipeline Projects are defined as residential projects that are subject to the Inclusionary Affordable Housing Ordinance, have been finally approved by November 1, 2023, and have not been issued a first construction document or paid impact fees prior to November 1, 2023.

Eligibility Criteria

A project is considered a Pipeline Projects if it meets all the following criteria:

  1. It is a residential project subject to the Inclusionary Affordable Housing Program
  2. It has been finally approved by November 1, 2023
  3. It has not been issued a first construction document, and
  4. It exceeds 25 units. Projects using the State Density Bonus Program are considered Pipeline Projects if the base or bonus project exceeds 25 units

The following types of projects are not eligible for temporary inclusionary reductions under Section 415A:

  • Projects approved pursuant to a Development Agreement
  • Projects with an issued First Construction Document
  • Base or bonus project is 10-24 units
  • Development impact fees were paid on or before November 1, 2023, or
  • The project has satisfied the Inclusionary requirements through the Land Dedication option.

Temporary Reduction in Rates

Planning Code Section 415A offers temporary reductions for Pipeline Projects. Any Pipeline Project seeking reduced inclusionary rates or development impact fee discounts must obtain first construction document by May 1, 2029, or the rates that are in effect at the time the first construction document will apply.

A Pipeline Project is entitled to reduced Inclusionary Affordable Housing rates:

  • Projects that provide on-site affordable units are entitled to a 54.5% reduction of the applicable rate for a large rental project, or 12% on-site, whatever is greater.
  • Projects that provide off-site affordable units or pay the affordable housing fee are entitled to a 54.5% reduction of the applicable rate for a large rental project, or 16.4% off-site/fee, whatever is greater.

Pipeline Projects are also eligible for a 33% discount for certain development impact fees and may seek the reduction as part of their application to modify the project under 415A.

Administrative Modifications

Projects seeking to take advantage of reduced inclusionary rates shall apply to modify the conditions of approval of the approved project.

The Planning Department will begin accepting applications for Pipeline Project modifications no earlier than October 14, 2023, and will not approve any temporary reductions until the ordinance becomes effective on November 1, 2023.

A modification to a Pipeline Project may be eligible for administrative approval by the Planning Director, or their designee, if the modifications are limited to these scopes of work:

  1. Changes to the Affordable Housing Fee rate
  2. Changes to the off-site or on-site rate
  3. Incentives related to the affordability tiers for projects that use the State Density Bonus Law, and/or
  4. Extension of performance standards

If a project is eligible for administrative approval, the applicant may submit an Inclusionary Reduction Request and any supplemental materials. The application fee will be equal to the application fee for a modified Conditional Use Authorization application, but no other entitlement applications are required.

Commission Modifications

Planning Commission approval is required if modifications to the project scope include, but is not limited to:

  1. Change in the number of residential units by 20%, or
  2. Change in Gross Floor Area by more than 10%, or
  3. Substituting approved dwelling units with group housing rooms, or
  4. Changes to project tenure.

Pipeline Projects that require Commission Approval shall follow the standard process for modifying an approved application. If the project was approved through an entitlement such as a Conditional Use

Authorization (CUA) or Downtown Project Authorization (DNX), then the project sponsor shall submit the same entitlement application to modify the conditions of approval. If the project does not require an entitlement, the Project Sponsor shall submit a mandatory discretionary review application. In addition, the project sponsor must submit an Inclusionary Reduction Request and any required supplemental materials.

Interim Rate Projects

Interim Projects are defined as projects that are finally approved between November 1, 2023 and November 1, 2026.

Eligibility Criteria

Planning Code Section 415B offers temporary reductions for projects that are finally approved between November 1, 2023, and November 1, 2026. Projects with 25 or more base/bonus units that have not received a first construction document may seek reduced Inclusionary rates under Section 415B.

The following types of projects are not eligible for temporary inclusionary reductions under Section 415A:

  1. Projects approved pursuant to a Development Agreement
  2. Projects with a Base or bonus unit count of 10-24 units
  3. Development impact fees were paid on or before November 1, 2023, or
  4. The project has satisfied the Inclusionary requirements through the Land Dedication option

 

Temporary Reduction in Rates

An Interim Rate Project is entitled to reduced Inclusionary Affordable Housing rates:

  • Projects that provide on-site affordable units are entitled to a 32% reduction of the applicable rate, or 15% on-site, whatever is greater.
  • Projects that provide off-site affordable units or pay the affordable housing fee are entitled to a 32% reduction of the applicable rate, or 20.4% off-site/fee, whatever is greater.

Applicants with Interim Rate Projects shall submit a revised Inclusionary Affidavit to the assigned Planner at least 30 days prior to any Planning Commission Action.

Any Interim Rate Project seeking reduced inclusionary rates or development impact fee discounts must obtain first construction document within 30 months of final approval, or the rates that are in effect at the time the first construction document will apply.

Prior to Project Approval

  • At least 30 days prior to any Planning Commission action, the Project Sponsor must submit a completed Inclusionary Affidavit.

Prior to Site Permit Issuance

  • Inclusionary Conditions of Approval must be recorded in a Notice of Special Restrictions
    • Projects with entitlements (CUA, DNX, etc.) will record the affordable housing conditions of approval with all the conditions from the approved Motion for the project.
    • Projects without entitlements (only site permit or building permit required) will record a stand-alone NSR with the applicable affordable housing conditions.
  • Impact fees are calculated and levied on the project.

Prior to Issuance of First Construction Document

  • If applicable, a Regulatory Agreement must be completed and recorded. All State Density Bonus and HOME-SF projects require a Regulatory Agreement.
  • Affordable Housing Fee is paid.

Prior to Issuance of Architectural Addendum, or 12 Months before first certificate of occupancy

  • A Notice of Special Restrictions must be recorded that identifies the location of any on-site affordable units (“BMR NSR”)

Eight (8) months prior to first certificate of occupancy

  • Project Sponsor shall submit a request for pricing determination to the Mayor’s Office of Housing and Community Development.