AB 2351: General plan: annual report: shelter beds.
- Session Year: 2025-2026
- House: Assembly
- Latest Version Date: 2026-04-27
Current Status:
In Progress
(2026-05-14: In committee: Held under submission.)
Introduced
In Committee
Awaiting First Chamber Vote
Passed First Chamber
In Committee
Awaiting Second Chamber Vote
Passed Second Chamber
Enacted
The Planning and Zoning Law requires cities and counties to prepare, adopt, and amend general plans and elements of those general plans, as specified. After the legislative body has adopted all or part of a general plan, the law requires the planning agency to provide by April 1 of each year an annual report to specified entities that includes certain information, including the status of the plan and progress of its implementation.
This bill would require the planning agency to include in that report, beginning with the report due by April 1, 2028, the number of temporary emergency shelter beds and the number of permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of specified categories. By requiring planning agencies to include additional information in these annual reports, the bill would impose a state-mandated local program.
The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.
This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.
The Planning and Zoning Law requires cities and counties to prepare, adopt, and amend general plans and elements of those general plans, as specified. After the legislative body has adopted all or part of a general plan, the law requires the planning agency to provide by April 1 of each year an annual report to specified entities that includes certain information, including the status of the plan and progress of its implementation.
This bill would require the planning agency to include in that report report, beginning with the report due by April 1, 2028, the number of temporary emergency shelter beds and the number of permanent housing units serving those experiencing or exiting homelessness operating in the jurisdiction in each of specified categories. By requiring planning agencies to include additional information in these annual reports, the bill would impose a state-mandated local program.
The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.
This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.
The Planning and Zoning Law requires cities and counties to prepare, adopt, and amend general plans and elements of those general plans, as specified. After the legislative body has adopted all or part of a general plan, the law requires the planning agency to provide by April 1 of each year an annual report to specified entities that includes certain information, including the status of the plan and progress of its implementation.
This bill would require the planning agency to include in that report the number of shelter beds serving those experiencing homelessness operating in the jurisdiction in each of specified categories. By requiring planning agencies to include additional information in these annual reports, the bill would impose a state-mandated local program.
The California Constitution requires the state to reimburse local agencies and school districts for certain costs mandated by the state. Statutory provisions establish procedures for making that reimbursement.
This bill would provide that, if the Commission on State Mandates determines that the bill contains costs mandated by the state, reimbursement for those costs shall be made pursuant to the statutory provisions noted above.
(a)After the legislative body has adopted all or part of a general plan, the planning agency shall do both of the following:
(1)Investigate and make recommendations to the legislative body regarding reasonable and practical means for implementing the general plan or element of the general plan so that it will serve as an effective guide for orderly growth and development, preservation and conservation of open-space land and natural resources, and the efficient expenditure of public funds relating to the subjects addressed in the general plan.
(2)Provide by April 1 of each year an annual report to the legislative body, the Office of Land Use and Climate Innovation, and the Department of Housing and Community Development that includes all of the following:
(A)The status of the plan and progress in its implementation.
(B)(i)(I)The progress in meeting its share of regional housing needs determined pursuant to Section 65584, including the need for extremely low income households, as determined pursuant to Section 65583, and local efforts to remove governmental constraints to the maintenance, improvement, and development of housing pursuant to paragraph (3) of subdivision (c) of Section 65583.
(II)The annual report shall include the progress in meeting the citys or countys progress in meeting its share of regional housing need, as described in subclause (I), for the sixth and previous revisions of the housing element.
(ii)The housing element portion of the annual report, as required by this paragraph, shall be prepared through the use of standards, forms, and definitions adopted by the Department of Housing and Community Development. The department may review, adopt, amend, and repeal the standards, forms, or definitions to implement this article. Any standards, forms, or definitions adopted to implement this article shall not be subject to Chapter 3.5 (commencing with Section 11340) of Part 1 of Division 3 of Title 2. Before and after adoption of the forms, the housing element portion of the annual report shall include a section that describes the actions taken by the local government towards completion of the programs and status of the local governments compliance with the deadlines in its housing element. The report shall be considered at an annual public meeting before the legislative body where members of the public shall be allowed to provide oral testimony and written comments.
(iii)The report may include the number of units that have been completed pursuant to subdivision (c) of Section 65583.1. For purposes of this paragraph, committed assistance may be executed throughout the planning period, and the program under paragraph (1) of subdivision (c) of Section 65583.1 shall not be required. The report shall document how the units meet the standards set forth in that subdivision.
(iv)The planning agency shall include the number of units in a student housing development for lower income students for which the developer of the student housing development was granted a density bonus pursuant to subparagraph (F) of paragraph (1) of subdivision (b) of Section 65915.
(v)The report may include the number of units of existing deed-restricted affordable housing with an average affordability no greater than 45 percent of area median income that are at least 15 years old and have been substantially rehabilitated with at least sixty thousand dollars ($60,000) per unit in funds awarded from the city or, for unincorporated areas, the county, inclusive of forgiveness of principal or interest on existing debt. Any units included in the report pursuant to this clause shall not be considered when determining affordability requirements for purposes of paragraph (4) of subdivision (a) of Section 65913.4.
(C)The number of housing development applications received in the prior year, including both of the following, when applicable:
(i)Whether each housing development application is subject to a ministerial or discretionary approval process.
(ii)Beginning with the report due by April 1, 2027, whether each application is subject to a replacement housing or relocation assistance obligation pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(D)The number of units included in all development applications in the prior year.
(E)(i)The number of units approved and disapproved in the prior year, which shall include all of the following subcategories:
(I)The number of units located within an opportunity area.
(II)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for acutely low income households within each opportunity area.
(III)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for extremely low income households within each opportunity area.
(IV)The number of units approved and disapproved for very low income households within each opportunity area.
(V)The number of units approved and disapproved for lower income households within each opportunity area.
(VI)The number of units approved and disapproved for moderate-income households within each opportunity area.
(VII)The number of units approved and disapproved for above moderate-income households within each opportunity area.
(ii)For purposes of this subparagraph, opportunity area means a highest, high, moderate, or low resource area pursuant to the most recent CTCAC/HCD Opportunity Map published by the California Tax Credit Allocation Committee and the Department of Housing and Community Development.
(F)The degree to which its approved general plan complies with the guidelines developed and adopted pursuant to Section 65040.2 and the date of the last revision to the general plan.
(G)A listing of sites rezoned to accommodate that portion of the citys or countys share of the regional housing need for each income level that could not be accommodated on sites identified in the inventory required by paragraph (1) of subdivision (c) of Section 65583 and Section 65584.09. The listing of sites shall also include any additional sites that may have been required to be identified by Section 65863.
(H)(i)The number of units of housing demolished and new units of housing, including both rental housing and for-sale housing and any units that the County of Napa or the City of Napa may report pursuant to an agreement entered into pursuant to Section 65584.08, that have been issued a completed entitlement, a building permit, or a certificate of occupancy, thus far in the housing element cycle, and the income category, by area median income category, that each unit of housing satisfies. That production report shall do the following:
(I)For each income category described in this subparagraph, distinguish between the number of rental housing units and the number of for-sale units that satisfy each income category.
(II)For each entitlement, building permit, or certificate of occupancy, include a unique site identifier that must include the assessors parcel number, but may also include street address, or other identifiers.
(III)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the total number of replacement housing units by income level required pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(IV)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the number, by income level, of replacement housing units entitled, permitted, or issued a certificate of occupancy.
(ii)For the County of Napa and the City of Napa, the production report may report units identified in the agreement entered into pursuant to Section 65584.08.
(I)The number of applications submitted pursuant to subdivision (a) of Section 65913.4, the location and the total number of developments approved pursuant to subdivision (c) of Section 65913.4, the total number of building permits issued pursuant to subdivision (c) of Section 65913.4, the total number of units including both rental housing and for-sale housing by area median income category constructed using the process provided for in subdivision (c) of Section 65913.4.
(J)If the city or county has received funding pursuant to the Local Government Planning Support Grants Program (Chapter 3.1 (commencing with Section 50515) of Part 2 of Division 31 of the Health and Safety Code), the information required pursuant to subdivision (a) of Section 50515.04 of the Health and Safety Code.
(K)The progress of the city or county in adopting or amending its general plan or local open-space element in compliance with its obligations to consult with California Native American tribes, and to identify and protect, preserve, and mitigate impacts to places, features, and objects described in Sections 5097.9 and 5097.993 of the Public Resources Code, pursuant to Chapter 905 of the Statutes of 2004.
(L)The following information with respect to density bonuses granted in accordance with Section 65915:
(i)The number of density bonus applications received by the city or county.
(ii)The number of density bonus applications approved by the city or county.
(iii)Data from all projects approved to receive a density bonus from the city or county, including, but not limited to, the percentage of density bonus received, the percentage of affordable units in the project, the number of other incentives or concessions granted to the project, and any waiver or reduction of parking standards for the project.
(M)The following information with respect to each application submitted pursuant to Chapter 4.1 (commencing with Section 65912.100):
(i)The location of the project.
(ii)The status of the project, including whether it has been entitled, whether a building permit has been issued, and whether or not it has been completed.
(iii)The number of units in the project.
(iv)The number of units in the project that are rental housing.
(v)The number of units in the project that are for-sale housing.
(vi)The household income category of the units, as determined pursuant to subdivision (f) of Section 65584.
(N)A list of all historic designations listed on the National Register of Historic Places, the California Register of Historical Resources, or a local register of historic places by the city or county in the past year, and the status of any housing development projects proposed for the new historic designations, including all of the following:
(i)Whether the housing development project has been entitled.
(ii)Whether a building permit has been issued for the housing development project.
(iii)The number of units in the housing development project.
(O)The following information with respect to housing development projects under Section 65913.16:
(i)The number of applications submitted under Section 65913.16.
(ii)The location and number of developments approved under Section 65913.16.
(iii)The total number of building permits issued pursuant to Section 65913.16.
(iv)The total number of units constructed under Section 65913.16 and the income category of those units.
(P)Beginning with the report due by April 1, 2027, a report on the demolition of housing units for any purpose, which shall include, but not be limited to, all of the following:
(i)The total number of housing units approved for demolition during the year.
(ii)The total number of housing units demolished during the year.
(iii)For each approved or completed demolition, all of the following:
(I)The location of the approved or completed demolition, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(II)The date the demolition was approved.
(III)The total number of rental and ownership units demolished or approved for demolition.
(IV)The number, by income level, of protected units, as defined in subdivision (h) of Section 66300.5, demolished or approved for demolition.
(V)A description of any approved uses on the site.
(VI)A description of any relocation assistance provided as required pursuant to local, state, or federal law, including, but not limited to, the relocation assistance required to be provided to each displaced occupant of any demolished protected unit pursuant to Section 66300.6.
(Q)Beginning with the report due by April 1, 2027, a report on replacement housing units required pursuant to local, state, or federal law, including, but not limited to, Section 66300.6, for approved development projects that are not housing development projects, which shall include, for each applicable development project, all of the following:
(i)The approved or proposed location of the replacement units, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(ii)The entity that is developing the replacement units.
(iii)The anticipated completion date of the replacement units.
(R)The Beginning with the report due by April 1, 2028, the number of temporary emergency shelter beds and the number of permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of the following categories:
(i)Noncongregate shelter beds, which are facilities that offer temporary shelter or lodging for people experiencing or exiting homelessness, including, but not limited to, interim beds in tiny homes, motels, hotels, or navigation centers.
(ii)Transitional housing, which is housing that provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing or exiting homelessness into permanent housing within a specified period of time, but no longer than 24 months.
(iii)Permanent supportive housing, which is housing that offers permanent housing and supportive services to assist people experiencing or exiting homelessness with a disability to live independently, including, but not limited to, individuals with disabilities or families in which one adult or child has a disability.
(iv)Rapid rehousing, which is permanent housing that provides housing relocation and stabilization services or short- or medium-term rental assistance as necessary to help an individual or family experiencing or exiting homelessness move as quickly as possible into permanent housing and achieve stability in that housing.
(v)Other permanent housing, which is long-term housing that is not otherwise considered permanent supportive housing or rapid rehousing.
(b)(1)(A)The department may request corrections to the housing element portion of an annual report submitted pursuant to paragraph (2) of subdivision (a) within 90 days of receipt. A planning agency shall make the requested corrections within 30 days after which the department may reject the report if the report is not in substantial compliance with the requirements of that paragraph.
(B)If the department rejects the housing element portion of an annual report as authorized by subparagraph (A), the department shall provide the reasons the report is inconsistent with paragraph (2) of subdivision (a) to the planning agency in writing.
(2)If a court finds, upon a motion to that effect, that a city, county, or city and county failed to submit, within 60 days of the deadline established in this section, the housing element portion of the report required pursuant to subparagraph (B) of paragraph (2) of subdivision (a) that substantially complies with the requirements of this section, the court shall issue an order or judgment compelling compliance with this section within 60 days. If the city, county, or city and county fails to comply with the courts order within 60 days, the plaintiff or petitioner may move for sanctions, and the court may, upon that motion, grant appropriate sanctions. The court shall retain jurisdiction to ensure that its order or judgment is carried out. If the court determines that its order or judgment is not carried out within 60 days, the court may issue further orders as provided by law to ensure that the purposes and policies of this section are fulfilled. This subdivision applies to proceedings initiated on or after the first day of October following the adoption of forms and definitions by the Department of Housing and Community Development pursuant to paragraph (2) of subdivision (a), but no sooner than six months following that adoption.
(c)The Department of Housing and Community Development shall post a report submitted pursuant to this section on its internet website within a reasonable time of receiving the report.
SEC. 2.If the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 (commencing with Section 17500) of Division 4 of Title 2 of the Government Code.
CORRECTIONS: HeadingLine 2.(a)After the legislative body has adopted all or part of a general plan, the planning agency shall do both of the following:
(1)Investigate and make recommendations to the legislative body regarding reasonable and practical means for implementing the general plan or element of the general plan so that it will serve as an effective guide for orderly growth and development, preservation and conservation of open-space land and natural resources, and the efficient expenditure of public funds relating to the subjects addressed in the general plan.
(2)Provide by April 1 of each year an annual report to the legislative body, the Office of Land Use and Climate Innovation, and the Department of Housing and Community Development that includes all of the following:
(A)The status of the plan and progress in its implementation.
(B)(i)(I)The progress in meeting its share of regional housing needs determined pursuant to Section 65584, including the need for extremely low income households, as determined pursuant to Section 65583, and local efforts to remove governmental constraints to the maintenance, improvement, and development of housing pursuant to paragraph (3) of subdivision (c) of Section 65583.
(II)The annual report shall include the progress in meeting the citys or countys progress in meeting its share of regional housing need, as described in subclause (I), for the sixth and previous revisions of the housing element.
(ii)The housing element portion of the annual report, as required by this paragraph, shall be prepared through the use of standards, forms, and definitions adopted by the Department of Housing and Community Development. The department may review, adopt, amend, and repeal the standards, forms, or definitions to implement this article. Any standards, forms, or definitions adopted to implement this article shall not be subject to Chapter 3.5 (commencing with Section 11340) of Part 1 of Division 3 of Title 2. Before and after adoption of the forms, the housing element portion of the annual report shall include a section that describes the actions taken by the local government towards completion of the programs and status of the local governments compliance with the deadlines in its housing element. The report shall be considered at an annual public meeting before the legislative body where members of the public shall be allowed to provide oral testimony and written comments.
(iii)The report may include the number of units that have been completed pursuant to subdivision (c) of Section 65583.1. For purposes of this paragraph, committed assistance may be executed throughout the planning period, and the program under paragraph (1) of subdivision (c) of Section 65583.1 shall not be required. The report shall document how the units meet the standards set forth in that subdivision.
(iv)The planning agency shall include the number of units in a student housing development for lower income students for which the developer of the student housing development was granted a density bonus pursuant to subparagraph (F) of paragraph (1) of subdivision (b) of Section 65915.
(v)The report may include the number of units of existing deed-restricted affordable housing with an average affordability no greater than 45 percent of area median income that are at least 15 years old and have been substantially rehabilitated with at least sixty thousand dollars ($60,000) per unit in funds awarded from the city or, for unincorporated areas, the county, inclusive of forgiveness of principal or interest on existing debt. Any units included in the report pursuant to this clause shall not be considered when determining affordability requirements for purposes of paragraph (4) of subdivision (a) of Section 65913.4.
(C)The number of housing development applications received in the prior year, including both of the following, when applicable:
(i)Whether each housing development application is subject to a ministerial or discretionary approval process.
(ii)Beginning with the report due by April 1, 2027, whether each application is subject to a replacement housing or relocation assistance obligation pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(D)The number of units included in all development applications in the prior year.
(E)(i)The number of units approved and disapproved in the prior year, which shall include all of the following subcategories:
(I)The number of units located within an opportunity area.
(II)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for acutely low income households within each opportunity area.
(III)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for extremely low income households within each opportunity area.
(IV)The number of units approved and disapproved for very low income households within each opportunity area.
(V)The number of units approved and disapproved for lower income households within each opportunity area.
(VI)The number of units approved and disapproved for moderate-income households within each opportunity area.
(VII)The number of units approved and disapproved for above moderate-income households within each opportunity area.
(ii)For purposes of this subparagraph, opportunity area means a highest, high, moderate, or low resource area pursuant to the most recent CTCAC/HCD Opportunity Map published by the California Tax Credit Allocation Committee and the Department of Housing and Community Development.
(F)The degree to which its approved general plan complies with the guidelines developed and adopted pursuant to Section 65040.2 and the date of the last revision to the general plan.
(G)A listing of sites rezoned to accommodate that portion of the citys or countys share of the regional housing need for each income level that could not be accommodated on sites identified in the inventory required by paragraph (1) of subdivision (c) of Section 65583 and Section 65584.09. The listing of sites shall also include any additional sites that may have been required to be identified by Section 65863.
(H)(i)The number of units of housing demolished and new units of housing, including both rental housing and for-sale housing and any units that the County of Napa or the City of Napa may report pursuant to an agreement entered into pursuant to Section 65584.08, that have been issued a completed entitlement, a building permit, or a certificate of occupancy, thus far in the housing element cycle, and the income category, by area median income category, that each unit of housing satisfies. That production report shall do the following:
(I)For each income category described in this subparagraph, distinguish between the number of rental housing units and the number of for-sale units that satisfy each income category.
(II)For each entitlement, building permit, or certificate of occupancy, include a unique site identifier that must include the assessors parcel number, but may also include street address, or other identifiers.
(III)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the total number of replacement housing units by income level required pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(IV)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the number, by income level, of replacement housing units entitled, permitted, or issued a certificate of occupancy.
(ii)For the County of Napa and the City of Napa, the production report may report units identified in the agreement entered into pursuant to Section 65584.08.
(I)The number of applications submitted pursuant to subdivision (a) of Section 65913.4, the location and the total number of developments approved pursuant to subdivision (c) of Section 65913.4, the total number of building permits issued pursuant to subdivision (c) of Section 65913.4, the total number of units including both rental housing and for-sale housing by area median income category constructed using the process provided for in subdivision (c) of Section 65913.4.
(J)If the city or county has received funding pursuant to the Local Government Planning Support Grants Program (Chapter 3.1 (commencing with Section 50515) of Part 2 of Division 31 of the Health and Safety Code), the information required pursuant to subdivision (a) of Section 50515.04 of the Health and Safety Code.
(K)The progress of the city or county in adopting or amending its general plan or local open-space element in compliance with its obligations to consult with California Native American tribes, and to identify and protect, preserve, and mitigate impacts to places, features, and objects described in Sections 5097.9 and 5097.993 of the Public Resources Code, pursuant to Chapter 905 of the Statutes of 2004.
(L)The following information with respect to density bonuses granted in accordance with Section 65915:
(i)The number of density bonus applications received by the city or county.
(ii)The number of density bonus applications approved by the city or county.
(iii)Data from all projects approved to receive a density bonus from the city or county, including, but not limited to, the percentage of density bonus received, the percentage of affordable units in the project, the number of other incentives or concessions granted to the project, and any waiver or reduction of parking standards for the project.
(M)The following information with respect to each application submitted pursuant to Chapter 4.1 (commencing with Section 65912.100):
(i)The location of the project.
(ii)The status of the project, including whether it has been entitled, whether a building permit has been issued, and whether or not it has been completed.
(iii)The number of units in the project.
(iv)The number of units in the project that are rental housing.
(v)The number of units in the project that are for-sale housing.
(vi)The household income category of the units, as determined pursuant to subdivision (f) of Section 65584.
(N)A list of all historic designations listed on the National Register of Historic Places, the California Register of Historical Resources, or a local register of historic places by the city or county in the past year, and the status of any housing development projects proposed for the new historic designations, including all of the following:
(i)Whether the housing development project has been entitled.
(ii)Whether a building permit has been issued for the housing development project.
(iii)The number of units in the housing development project.
(O)The following information with respect to housing development projects under Section 65913.16:
(i)The number of applications submitted under Section 65913.16.
(ii)The location and number of developments approved under Section 65913.16.
(iii)The total number of building permits issued pursuant to Section 65913.16.
(iv)The total number of units constructed under Section 65913.16 and the income category of those units.
(P)Beginning with the report due by April 1, 2027, a report on the demolition of housing units for any purpose, which shall include, but not be limited to, all of the following:
(i)The total number of housing units approved for demolition during the year.
(ii)The total number of housing units demolished during the year.
(iii)For each approved or completed demolition, all of the following:
(I)The location of the approved or completed demolition, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(II)The date the demolition was approved.
(III)The total number of rental and ownership units demolished or approved for demolition.
(IV)The number, by income level, of protected units, as defined in subdivision (h) of Section 66300.5, demolished or approved for demolition.
(V)A description of any approved uses on the site.
(VI)A description of any relocation assistance provided as required pursuant to local, state, or federal law, including, but not limited to, the relocation assistance required to be provided to each displaced occupant of any demolished protected unit pursuant to Section 66300.6.
(Q)Beginning with the report due by April 1, 2027, a report on replacement housing units required pursuant to local, state, or federal law, including, but not limited to, Section 66300.6, for approved development projects that are not housing development projects, which shall include, for each applicable development project, all of the following:
(i)The approved or proposed location of the replacement units, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(ii)The entity that is developing the replacement units.
(iii)The anticipated completion date of the replacement units.
(R)The number of temporary emergency shelter beds and the number of permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of the following categories:
(i)Homeless shelters, which are facilities with overnight sleeping accommodations with a primary purpose of providing temporary shelter for those experiencing homelessness, including, but not limited to, parking lots owned or leased by the city, county, or city and county that are specifically identified as being allowed for safe parking by homeless or unstably housed individuals.(i)Noncongregate shelter beds, which are facilities that offer temporary shelter or lodging for people experiencing or exiting homelessness, including, but not limited to, interim beds in tiny homes, motels, hotels, or navigation centers.
(ii)Transitional or interim housing, which is housing that meets all of the following conditions: provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing or exiting homelessness into permanent housing within a specified period of time, but no longer than 24 months.
(I)It has supportive services for up to 24 months.(II)It is exclusively designated and targeted for people experiencing homelessness.(III)It limits rents and service fees to an ability-to-pay formula.(iii)Permanent supportive housing, which is housing that meets all of the following conditions: offers permanent housing and supportive services to assist people experiencing or exiting homelessness with a disability to live independently, including, but not limited to, individuals with disabilities or families in which one adult or child has a disability.
(I)It is for people who are experiencing homelessness.(II)It has no limit on length of stay.(III)It is linked to onsite or offsite services that assist the resident in retaining the housing, improving the residents health status, and maximizing the residents ability to live and, when possible, work in the community.(iv)Rapid rehousing, which is permanent housing that provides housing relocation and stabilization services or short- or medium-term rental assistance as necessary to help an individual or family experiencing or exiting homelessness move as quickly as possible into permanent housing and achieve stability in that housing.
(v)Other permanent housing, which is long-term housing that is not otherwise considered permanent supportive housing or rapid rehousing.
(b)(1)(A)The department may request corrections to the housing element portion of an annual report submitted pursuant to paragraph (2) of subdivision (a) within 90 days of receipt. A planning agency shall make the requested corrections within 30 days after which the department may reject the report if the report is not in substantial compliance with the requirements of that paragraph.
(B)If the department rejects the housing element portion of an annual report as authorized by subparagraph (A), the department shall provide the reasons the report is inconsistent with paragraph (2) of subdivision (a) to the planning agency in writing.
(2)If a court finds, upon a motion to that effect, that a city, county, or city and county failed to submit, within 60 days of the deadline established in this section, the housing element portion of the report required pursuant to subparagraph (B) of paragraph (2) of subdivision (a) that substantially complies with the requirements of this section, the court shall issue an order or judgment compelling compliance with this section within 60 days. If the city, county, or city and county fails to comply with the courts order within 60 days, the plaintiff or petitioner may move for sanctions, and the court may, upon that motion, grant appropriate sanctions. The court shall retain jurisdiction to ensure that its order or judgment is carried out. If the court determines that its order or judgment is not carried out within 60 days, the court may issue further orders as provided by law to ensure that the purposes and policies of this section are fulfilled. This subdivision applies to proceedings initiated on or after the first day of October following the adoption of forms and definitions by the Department of Housing and Community Development pursuant to paragraph (2) of subdivision (a), but no sooner than six months following that adoption.
(c)The Department of Housing and Community Development shall post a report submitted pursuant to this section on its internet website within a reasonable time of receiving the report.
SEC. 2.If the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 (commencing with Section 17500) of Division 4 of Title 2 of the Government Code.
REVISIONS: HeadingLine 2.(a)After the legislative body has adopted all or part of a general plan, the planning agency shall do both of the following:
(1)Investigate and make recommendations to the legislative body regarding reasonable and practical means for implementing the general plan or element of the general plan so that it will serve as an effective guide for orderly growth and development, preservation and conservation of open-space land and natural resources, and the efficient expenditure of public funds relating to the subjects addressed in the general plan.
(2)Provide by April 1 of each year an annual report to the legislative body, the Office of Land Use and Climate Innovation, and the Department of Housing and Community Development that includes all of the following:
(A)The status of the plan and progress in its implementation.
(B)(i)(I)The progress in meeting its share of regional housing needs determined pursuant to Section 65584, including the need for extremely low income households, as determined pursuant to Section 65583, and local efforts to remove governmental constraints to the maintenance, improvement, and development of housing pursuant to paragraph (3) of subdivision (c) of Section 65583.
(II)The annual report shall include the progress in meeting the citys or countys progress in meeting its share of regional housing need, as described in subclause (I), for the sixth and previous revisions of the housing element.
(ii)The housing element portion of the annual report, as required by this paragraph, shall be prepared through the use of standards, forms, and definitions adopted by the Department of Housing and Community Development. The department may review, adopt, amend, and repeal the standards, forms, or definitions to implement this article. Any standards, forms, or definitions adopted to implement this article shall not be subject to Chapter 3.5 (commencing with Section 11340) of Part 1 of Division 3 of Title 2. Before and after adoption of the forms, the housing element portion of the annual report shall include a section that describes the actions taken by the local government towards completion of the programs and status of the local governments compliance with the deadlines in its housing element. The report shall be considered at an annual public meeting before the legislative body where members of the public shall be allowed to provide oral testimony and written comments.
(iii)The report may include the number of units that have been completed pursuant to subdivision (c) of Section 65583.1. For purposes of this paragraph, committed assistance may be executed throughout the planning period, and the program under paragraph (1) of subdivision (c) of Section 65583.1 shall not be required. The report shall document how the units meet the standards set forth in that subdivision.
(iv)The planning agency shall include the number of units in a student housing development for lower income students for which the developer of the student housing development was granted a density bonus pursuant to subparagraph (F) of paragraph (1) of subdivision (b) of Section 65915.
(v)The report may include the number of units of existing deed-restricted affordable housing with an average affordability no greater than 45 percent of area median income that are at least 15 years old and have been substantially rehabilitated with at least sixty thousand dollars ($60,000) per unit in funds awarded from the city or, for unincorporated areas, the county, inclusive of forgiveness of principal or interest on existing debt. Any units included in the report pursuant to this clause shall not be considered when determining affordability requirements for purposes of paragraph (4) of subdivision (a) of Section 65913.4.
(C)The number of housing development applications received in the prior year, including both of the following, when applicable:
(i)Whether each housing development application is subject to a ministerial or discretionary approval process.
(ii)Beginning with the report due by April 1, 2027, whether each application is subject to a replacement housing or relocation assistance obligation pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(D)The number of units included in all development applications in the prior year.
(E)(i)The number of units approved and disapproved in the prior year, which shall include all of the following subcategories:
(I)The number of units located within an opportunity area.
(II)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for acutely low income households within each opportunity area.
(III)For the seventh and each subsequent revision of the housing element, the number of units approved and disapproved for extremely low income households within each opportunity area.
(IV)The number of units approved and disapproved for very low income households within each opportunity area.
(V)The number of units approved and disapproved for lower income households within each opportunity area.
(VI)The number of units approved and disapproved for moderate-income households within each opportunity area.
(VII)The number of units approved and disapproved for above moderate-income households within each opportunity area.
(ii)For purposes of this subparagraph, opportunity area means a highest, high, moderate, or low resource area pursuant to the most recent CTCAC/HCD Opportunity Map published by the California Tax Credit Allocation Committee and the Department of Housing and Community Development.
(F)The degree to which its approved general plan complies with the guidelines developed and adopted pursuant to Section 65040.2 and the date of the last revision to the general plan.
(G)A listing of sites rezoned to accommodate that portion of the citys or countys share of the regional housing need for each income level that could not be accommodated on sites identified in the inventory required by paragraph (1) of subdivision (c) of Section 65583 and Section 65584.09. The listing of sites shall also include any additional sites that may have been required to be identified by Section 65863.
(H)(i)The number of units of housing demolished and new units of housing, including both rental housing and for-sale housing and any units that the County of Napa or the City of Napa may report pursuant to an agreement entered into pursuant to Section 65584.08, that have been issued a completed entitlement, a building permit, or a certificate of occupancy, thus far in the housing element cycle, and the income category, by area median income category, that each unit of housing satisfies. That production report shall do the following:
(I)For each income category described in this subparagraph, distinguish between the number of rental housing units and the number of for-sale units that satisfy each income category.
(II)For each entitlement, building permit, or certificate of occupancy, include a unique site identifier that must include the assessors parcel number, but may also include street address, or other identifiers.
(III)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the total number of replacement housing units by income level required pursuant to local, state, or federal law, including, but not limited to, Section 65583.2, 65915, or 66300.6.
(IV)Beginning with the report due by April 1, 2027, for each entitlement, building permit, or certificate of occupancy, include the number, by income level, of replacement housing units entitled, permitted, or issued a certificate of occupancy.
(ii)For the County of Napa and the City of Napa, the production report may report units identified in the agreement entered into pursuant to Section 65584.08.
(I)The number of applications submitted pursuant to subdivision (a) of Section 65913.4, the location and the total number of developments approved pursuant to subdivision (c) of Section 65913.4, the total number of building permits issued pursuant to subdivision (c) of Section 65913.4, the total number of units including both rental housing and for-sale housing by area median income category constructed using the process provided for in subdivision (c) of Section 65913.4.
(J)If the city or county has received funding pursuant to the Local Government Planning Support Grants Program (Chapter 3.1 (commencing with Section 50515) of Part 2 of Division 31 of the Health and Safety Code), the information required pursuant to subdivision (a) of Section 50515.04 of the Health and Safety Code.
(K)The progress of the city or county in adopting or amending its general plan or local open-space element in compliance with its obligations to consult with California Native American tribes, and to identify and protect, preserve, and mitigate impacts to places, features, and objects described in Sections 5097.9 and 5097.993 of the Public Resources Code, pursuant to Chapter 905 of the Statutes of 2004.
(L)The following information with respect to density bonuses granted in accordance with Section 65915:
(i)The number of density bonus applications received by the city or county.
(ii)The number of density bonus applications approved by the city or county.
(iii)Data from all projects approved to receive a density bonus from the city or county, including, but not limited to, the percentage of density bonus received, the percentage of affordable units in the project, the number of other incentives or concessions granted to the project, and any waiver or reduction of parking standards for the project.
(M)The following information with respect to each application submitted pursuant to Chapter 4.1 (commencing with Section 65912.100):
(i)The location of the project.
(ii)The status of the project, including whether it has been entitled, whether a building permit has been issued, and whether or not it has been completed.
(iii)The number of units in the project.
(iv)The number of units in the project that are rental housing.
(v)The number of units in the project that are for-sale housing.
(vi)The household income category of the units, as determined pursuant to subdivision (f) of Section 65584.
(N)A list of all historic designations listed on the National Register of Historic Places, the California Register of Historical Resources, or a local register of historic places by the city or county in the past year, and the status of any housing development projects proposed for the new historic designations, including all of the following:
(i)Whether the housing development project has been entitled.
(ii)Whether a building permit has been issued for the housing development project.
(iii)The number of units in the housing development project.
(O)The following information with respect to housing development projects under Section 65913.16:
(i)The number of applications submitted under Section 65913.16.
(ii)The location and number of developments approved under Section 65913.16.
(iii)The total number of building permits issued pursuant to Section 65913.16.
(iv)The total number of units constructed under Section 65913.16 and the income category of those units.
(P)Beginning with the report due by April 1, 2027, a report on the demolition of housing units for any purpose, which shall include, but not be limited to, all of the following:
(i)The total number of housing units approved for demolition during the year.
(ii)The total number of housing units demolished during the year.
(iii)For each approved or completed demolition, all of the following:
(I)The location of the approved or completed demolition, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(II)The date the demolition was approved.
(III)The total number of rental and ownership units demolished or approved for demolition.
(IV)The number, by income level, of protected units, as defined in subdivision (h) of Section 66300.5, demolished or approved for demolition.
(V)A description of any approved uses on the site.
(VI)A description of any relocation assistance provided as required pursuant to local, state, or federal law, including, but not limited to, the relocation assistance required to be provided to each displaced occupant of any demolished protected unit pursuant to Section 66300.6.
(Q)Beginning with the report due by April 1, 2027, a report on replacement housing units required pursuant to local, state, or federal law, including, but not limited to, Section 66300.6, for approved development projects that are not housing development projects, which shall include, for each applicable development project, all of the following:
(i)The approved or proposed location of the replacement units, using a unique site identifier that shall include the assessors parcel number, and may also include the street address or other identifiers.
(ii)The entity that is developing the replacement units.
(iii)The anticipated completion date of the replacement units.
(R)The number of shelter beds serving those experiencing homelessness in the jurisdiction in each of the following categories:
(i)Homeless shelters, which are facilities with overnight sleeping accommodations with a primary purpose of providing temporary shelter for those experiencing homelessness, including, but not limited to, parking lots owned or leased by the city, county, or city and county that are specifically identified as being allowed for safe parking by homeless or unstably housed individuals.
(ii)Transitional or interim housing, which is housing that meets all of the following conditions:
(I)It has supportive services for up to 24 months.
(II)It is exclusively designated and targeted for people experiencing homelessness.
(III)It limits rents and service fees to an ability-to-pay formula.
(iii)Permanent supportive housing, which is housing that meets all of the following conditions:
(I)It is for people who are experiencing homelessness.
(II)It has no limit on length of stay.
(III)It is linked to onsite or offsite services that assist the resident in retaining the housing, improving the residents health status, and maximizing the residents ability to live and, when possible, work in the community.
(b)(1)(A)The department may request corrections to the housing element portion of an annual report submitted pursuant to paragraph (2) of subdivision (a) within 90 days of receipt. A planning agency shall make the requested corrections within 30 days after which the department may reject the report if the report is not in substantial compliance with the requirements of that paragraph.
(B)If the department rejects the housing element portion of an annual report as authorized by subparagraph (A), the department shall provide the reasons the report is inconsistent with paragraph (2) of subdivision (a) to the planning agency in writing.
(2)If a court finds, upon a motion to that effect, that a city, county, or city and county failed to submit, within 60 days of the deadline established in this section, the housing element portion of the report required pursuant to subparagraph (B) of paragraph (2) of subdivision (a) that substantially complies with the requirements of this section, the court shall issue an order or judgment compelling compliance with this section within 60 days. If the city, county, or city and county fails to comply with the courts order within 60 days, the plaintiff or petitioner may move for sanctions, and the court may, upon that motion, grant appropriate sanctions. The court shall retain jurisdiction to ensure that its order or judgment is carried out. If the court determines that its order or judgment is not carried out within 60 days, the court may issue further orders as provided by law to ensure that the purposes and policies of this section are fulfilled. This subdivision applies to proceedings initiated on or after the first day of October following the adoption of forms and definitions by the Department of Housing and Community Development pursuant to paragraph (2) of subdivision (a), but no sooner than six months following that adoption.
(c)The Department of Housing and Community Development shall post a report submitted pursuant to this section on its internet website within a reasonable time of receiving the report.
SEC. 2.If the Commission on State Mandates determines that this act contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to Part 7 (commencing with Section 17500) of Division 4 of Title 2 of the Government Code.
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Date
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Status
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|---|---|
| May 14, 2026 | In committee: Held under submission. |
| May 6, 2026 | In committee: Set, first hearing. Referred to APPR. suspense file. |
| Apr 28, 2026 | Re-referred to Com. on APPR. |
| Apr 27, 2026 | Measure version as amended on April 27 corrected. |
| Apr 27, 2026 | Read second time and amended. |
| Apr 23, 2026 | From committee: Amend, and do pass as amended and re-refer to Com. on APPR. with recommendation: To Consent Calendar. (Ayes 10. Noes 0.) (April 22). |
| Apr 15, 2026 | Coauthors revised. |
| Apr 15, 2026 | From committee: Do pass and re-refer to Com. on L. GOV. (Ayes 11. Noes 0.) (April 15). Re-referred to Com. on L. GOV. |
| Apr 7, 2026 | Re-referred to Com. on H. & C.D. |
| Apr 6, 2026 | From committee chair, with author's amendments: Amend, and re-refer to Com. on H. & C.D. Read second time and amended. |
| Mar 9, 2026 | Referred to Coms. on H. & C.D. and L. GOV. |
| Feb 20, 2026 | From printer. May be heard in committee March 22. |
| Feb 19, 2026 | Read first time. To print. |
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Date
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Description
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Location
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Votes
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|---|---|---|---|---|
| Apr 22, 2026 | Do pass as amended, and be re-referred to the Committee on [Appropriations] with recommendation: To Consent Calendar | Assembly Standing Committee on Local Government |
Passed |
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| Apr 15, 2026 | Do pass and be re-referred to the Committee on [Local Government] | Assembly Standing Committee on Housing and Community Development |
Passed |
This list shows positions taken on this bill by organizations on the date displayed, which is linked to the original source.
Positions by individuals are not included.
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Organization
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Position
|
Date
|
|---|---|---|
| Bay Area Council | ** Support | |
| California YIMBY | ** Support | |
| Dignitymoves | ** Support | |
| National Alliance to End Homelessness | ** Support | |
| National Association of Minority Contractors Northern California | ** Support |
Date of Hearing: May 6, 2026
ASSEMBLY COMMITTEE ON APPROPRIATIONS
Buffy Wicks, Chair
ABPCA Bill Id:AB 2351
Author:(Bonta) – As Amended Ver:April 27, 2026
Policy Committee: | Housing and Community Development | Vote: | 11 - 0 |
Local Government | 10 - 0 | ||
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|
Urgency: No State Mandated Local Program: Yes Reimbursable: Yes
SUMMARY:
This bill requires a local planning agency to report the number of emergency shelter beds and permanent housing units in the jurisdiction in its annual progress report (APR) to the Department of Housing and Community Development (HCD), beginning with the APR due April 1, 2028.
Specifically, this bill:
Requires a local jurisdiction, beginning with the APR due April 1, 2028, to include in its APR to HCD the number of temporary emergency shelter beds and permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of the following categories: (a) noncongregate shelter beds, including but not limited to, interim beds in tiny homes, motels, hotels, or navigation centers, (b) transitional housing, (c) permanent supportive housing, and (d) rapid rehousing, and (e) other permanent housing, which is long-term housing not otherwise considered permanent supportive housing or rapid rehousing.
FISCAL EFFECT:
- HCD estimates ongoing General Fund costs of $482,000 in fiscal year 2027-28 and annually thereafter for two staff positions to update the APR form and related technical assistance (TA) materials as well as provide TA to local governments and other stakeholders, and develop enhancements to the HCD Connect database and existing related reports.
- Local costs of an unknown amount to each city and county to report the number of emergency shelter beds and permanent housing units in the jurisdiction in APR to HCD. Much, but not all of the required data is readily available. However, local jurisdictions note the APR submission process has grown quite complex, requiring additional staff time as multiple data points have been recently added to the report. These costs are potentially reimbursable by the state, subject to a determination by the Commission on State Mandates.
The Legislative Analyst’s Office recently warned of General Fund structural deficits of around $35 billion per year in the 2027-28 fiscal year and ongoing.
COMMENTS:
- Purpose. According to the author:
Addressing the homelessness crisis is a top priority for countless Californians, including many in this legislature, yet we still lack basic data transparency to track how we are addressing it as a state. [This bill] takes a simple but critical step: requiring local governments to report the number of shelter beds and housing units serving people experiencing or exiting homelessness as part of their existing annual progress reports to the state. This data is already largely tracked. This bill simply ensures it flows to the state so that we can build a complete, statewide picture of our shelter capacity and better coordinate our response.
- Background. The Point-in-Time (PIT) and Housing Inventory Count (HIC): The PIT is a count of sheltered and unsheltered people experiencing homelessness on a single night in January. HUD requires that Continuums of Care (CoCs) conduct an annual count of people experiencing homelessness who are sheltered in emergency shelter, transitional housing, and Safe Havens on a single night. CoCs also must conduct a count of unsheltered people experiencing homelessness every other year (odd-numbered years). Each count is planned, coordinated, and carried out locally.
The HIC is a point-in-time inventory of provider programs within a CoC that provide beds and units dedicated to serving people experiencing homelessness (and, for permanent housing projects, where homeless at entry, per the HUD homeless definition), categorized by five Program Types: Emergency Shelter; Transitional Housing; Rapid Re-housing; Safe Haven; and Permanent Supportive Housing. Data for the PIT count and HIC are submitted to HUD via the online data submission Homelessness Data Exchange (HDX).
This bill asks cities and counties to report similar information in their APRs to HCD. The definitions of emergency shelter and permanent housing in this bill are nearly identical to the federal definitions in HIC, which may ease reporting by local jurisdictions in the APR. However, this bill adds navigation centers to the definition of emergency shelter, which is not in the federal definition.
APR. Existing law requires every local jurisdiction to provide housing information annually to HCD via the APR, including information relating to the jurisdiction’s progress in meeting its share of the regions housing needs, pursuant to its housing element. The APR must include specific information about all proposed and approved development projects in the prior year, including the number of housing development applications received, the number of units included in all development applications, the number of units approved and disapproved, and the number of new housing units issued a completed entitlement, building permit, or certificate of occupancy, among other provisions.
This bill requires each local government to also include in its APR the number of emergency shelter beds and permanent housing units in its jurisdiction. Advocates assert additional data will help identify cities with the most effective approaches to addressing homelessness and better inform the state’s response.
This is one of several bills moving through the Legislative process this year that adds to the information a local agency must include in its APR, including AB 1567 (Ta), which is pending in this committee.
Analysis Prepared by: Jennifer Swenson / APPR. / (916) 319-2081
Date of Hearing: April 22, 2026
ASSEMBLY COMMITTEE ON LOCAL GOVERNMENT
Juan Carrillo, Chair
ABPCA Bill Id:AB 2351 (
Author:Bonta) – As Amended Ver:April 6, 2026
SUBJECT: General plan: annual report: shelter beds
SUMMARY: Requires local jurisdictions to report the number of emergency shelter beds and permanent housing units in the jurisdiction in the annual progress report (APR). Specifically, this bill:
- Requires, for purposes of the APR, planning agencies to report the number of emergency shelter beds and the number of permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of the following categories:
- Noncongregate shelter beds, which are facilities that offer temporary shelter or lodging for people experiencing or exiting homesslessness, including but not limited to, interim beds in tiny homes, motels, hotels, or navigation centers.
- Transitional housing, which is housing that provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing or exiting homelessness into permanent housing within a specified period of time, but no longer than 24 months.
- Permanent supportive housing, which is housing that offers permanent housing and supportive services to assist people experiencing or exiting homelessness with a disability to live independently, including, but not limited to, individuals with disabilities or families in which one adult or child has a disability.
- Rapid rehousing, which is permanent housing that provides housing relocation and stabilization services or short- or medium-term rental assistance as necessary to help an individual or family experiencing or exiting homelessness move as quickly as possible into permanent housing and achieve stability in that housing.
- Other permanent housing, which is long-term housing that is not otherwise considered permanent supportive housing or rapid rehousing.
- Provides that, if the Commission on State Mandates determines that this bill contains costs mandated by the state, reimbursement to local agencies and school districts for those costs shall be made pursuant to current law governing state mandated local costs.
EXISTING LAW:
- Defines “permanent supportive housing” as a project that offers permanent housing and supportive services to assist people experiencing homelessness with a disability to live independently, including individuals with disabilities or families in which one adult or child has a disability, in alignment with 24 Code of Federal Regulation (CFR) Part 578.3.
- Defines “rapid rehousing,” as a permanent housing project that provides housing relocation and stabilization services and/or short- and/or medium-term rental assistance as necessary to help an individual or family experiencing homelessness move as quickly as possible into permanent housing and achieve stability in that housing. (24 CFR Part 578.3)
- Defines “shelter,” to include interim beds in tiny homes, motels and hotels, as defined as projects that offer temporary shelter (lodging) for people experiencing homelessness in general or for specific populations of people experiencing homelessness.(24 CFR Part 576.2)
- Defines “transitional housing,” as a project that provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing homelessness into permanent housing within a specified period of time, but no longer than 24 months. (24 CFR Part 578.3)
- Requires a planning agency to provide an APR to the legislative body, the Governor’s Office of Land Use and Climate Innovation, and the Department of Housing and Community Development (HCD) by April 1 of each year that includes all of the following:
- The status of the general plan and progress in its implementation.
- The progress in meeting its share of the regional housing needs allocation (RHNA), including the need for extremely low-income households, and local efforts to remove governmental constraints to the maintenance, improvement, and development of housing included in the housing element.
- The number of housing development applications received in the prior year, including whether each housing development application is subject to a ministerial or discretionary approval process.
- The number of units included in all development applications in the prior year.
- The number of units approved and disapproved in the prior year, disaggregated into income subcategories within opportunity areas, as specified.
- The degree to which the approved general plan complies with the guidelines developed in existing law for addressing specified matters, including environmental justice matters, collaborative land use planning of adjacent civilian and military lands, consultation with Native American tribes, and road and highway safety.
- A listing of sites rezoned to accommodate that portion of the city or county’s share of the RHNA for each income level that could not be accommodated on sites identified in the housing element’s site inventory and any sites that may have been required to be identified under the No Net Loss Zoning law.
- The number of housing units demolished and new units of housing, including both rental housing and for-sale housing, that have been issued a completed entitlement, a building permit, or a certificate of occupancy, thus far in the housing element cycle, and the income category by AMI that each housing unit satisfies.
- Certain information regarding funding that may have been allocated via the Local Government Planning Support Grants Program.
- The progress of the city or county in adopting or amending its general plan or local open-space element in compliance with its obligations to consult with California Native American tribes and to identify and protect, preserve, and mitigate impacts to tribal places, features, and objects.
- Specified information related to density bonus law applications, including the number of units in a student housing development for lower income students for which the developer was granted a student housing density bonus.
- Specified information related to Affordable Housing and High Road Jobs Act of 2022 applications.
- A list of all historic designations listed on the National Register of Historic Places, the California Register of Historic Resources, or a local register of historic places by the city or county in the past year, and the status of any housing development projects proposed for the new historic designations.
- Specified information related to housing development project on land owned by religious institutions or independent institutions of higher education.
- A report on the demolition of housing units for any reason, as specified.
- A report on replacement housing units requires pursuant to local, state, or federal law for approved development project that are not housing development projects. [Government Code (GOV) § 65400]
- Requires HCD to post APRs on its website within a reasonable time of receiving the reports. (GOV § 65400)
FISCAL EFFECT: The bill is keyed fiscal and contains a state-mandated local program.
COMMENTS:
- Bill Summary and Author’s Statement. This bill requires cities and counties to report the number of emergency shelter beds and permanent housing units in the jurisdiction in specified categories in the APRs they provide to HCD. This bill is sponsored by Dignity Moves and Bay Area Council.
According to the author, “Addressing the homelessness crisis is a top priority for countless Californians, including many in this legislature, yet we still lack basic data transparency to track how we are addressing it as a state. AB 2351 takes a simple but critical step: requiring local governments to report the number of shelter beds and housing units serving people experiencing or exiting homelessness as part of their existing annual progress reports to the state. This data is already largely tracked. This bill simply ensures it flows to the state so that we can build a complete, statewide picture of our shelter capacity and better coordinate our response.
“California has made real progress, including a 9% drop in unsheltered homelessness in 2025, but that progress has been uneven across jurisdictions. This bill gives the state the tools to identify which communities are stepping up and which are falling behind. By leveraging the Annual Progress Report process that cities and counties already complete each year, AB 2351 imposes minimal new administrative burden while delivering maximum accountability. Transparent, standardized data is the foundation of an effective, equitable homelessness response.”
- Adoption and Implementation of Housing Elements. One of California’s key tools for addressing the housing crisis is requiring all 539 cities and counties to plan for their current and future housing needs. This is done through the Housing Element—a mandatory component of each jurisdiction’s general plan—which provides a long-term strategy to meet projected housing demand across all income levels. Most jurisdictions in high-population areas must update their Housing Elements every eight years, while those in smaller-population regions must update every five years. We are currently in the 6th Housing Element Cycle (2021–2029), with the 7th Cycle (2029–2037) on the horizon.
A critical part of each Housing Element is showing how a jurisdiction will accommodate its share of the RHNA. RHNA figures are based on the RHND, which HCD establishes using demographic and housing data—developed in consultation with DOF and each region’s COG. The RHND identifies the total housing need for a region, which the COG then distributes to local governments via RHNA. Housing allocations are divided into four income categories: very low-income [0-50% of Area Median Income (AMI)], low-income (50-80% of AMI), moderate income (80-120% of AMI), and above moderate income (120% or more of AMI). Each city or county must demonstrate, through its Housing Element, how it will zone for its assigned housing units at each income level, while also addressing fair housing and special needs populations.
- RHND/RHNA Methodology. Each Housing Cycle begins with HCD and DOF projecting future housing needs. DOF provides population forecasts, while COGs contribute their own regional data as part of their Regional Transportation Plan (RTP) forecasts. At least 26 months before a housing element is due, HCD meets with each COG to discuss the methodology and assumptions for the upcoming RHND. COGs submit detailed regional data on factors such as household growth, household size trends, overcrowding, vacancy rates, cost burdens, and the jobs-housing balance. HCD can incorporate these inputs into its methodology or reject them if they conflict with other data or statutory requirements.
Following this consultation, HCD issues its final RHND for the region. The COG must then develop a RHNA methodology that fairly distributes the total housing need among its member jurisdictions. By law, the RHNA methodology must support several goals, including increasing housing supply across income levels, promoting infill development and equity, improving the jobs-housing balance (especially for low-wage workers), adjusting allocations where there are income concentration disparities, and affirmatively furthering fair housing.
- Annual Plan Report (APR). Current law requires all local jurisdictions to provide housing information annually to HCD via the APR, including the following information from the current housing element cycle:
- The number of housing development applications received, and whether those applications are subject to ministerial or discretionary approval.
- The number of units included in all development applications.
- The number of units approved and disapproved.
- A listing of sites rezoned to meet the regional housing need for each income level.
- For each income category, the number of net (inclusive of demolished) new units of housing, including both rental housing and for-sale housing, that have been issued a completed entitlement, a building permit, or a certificate of occupancy.
- The number of density bonus applications received and applications approved by the city or county. Additionally, data from all projects approved to receive a density bonus from the city or county, including the number of other incentives or concessions granted to the project, and any waiver or reduction of parking standards.
- A unique site identifier, such as an assessor’s parcel number (APN), for each entitlement, building permit, or certificate of occupancy.
- A list of all historic designations listed on the National Register of Historic Places, the California Register of Historical Resources, or a local register of historic places by the city or county in the past year.
- Information on housing development projects on land owned by religious institutions or independent institutions of higher education.
- The total number of units demolished, data on the type of units demolished, and a description of any relocation assistance provided to displaced occupants.
- A report on housing units to replace units that were demolished for approved development projects that are not housing developments.
- The overall progress in meeting its share of RHNA.
It is important to note that APR submission has become a lengthy and involved process for city and county planning staff to undertake each year, and changing components can also prompt HCD to need to reconfigure its existing APR data collection and visualization tools to account for different categories of information. Adding new components to APRs should be considered carefully in light of the additional workload that will be placed on planning staff or consultants as well as HCD.
- The Point-in-Time (PIT) and Housing Inventory Count (HIC). The PIT is a count of sheltered and unsheltered people experiencing homelessness on a single night in January. HUD requires that Continuums of Care (CoCs) conduct an annual count of people experiencing homelessness who are sheltered in emergency shelter, transitional housing, and Safe Havens on a single night. CoCs also must conduct a count of unsheltered people experiencing homelessness every other year (odd-numbered years). Each count is planned, coordinated, and carried out locally.
The HIC is a point-in-time inventory of provider programs within a CoC that provide beds and units dedicated to serving people experiencing homelessness (and, for permanent housing projects, where homeless at entry, per the HUD homeless definition), categorized by five Program Types: Emergency Shelter; Transitional Housing; Rapid Re-housing; Safe Haven; and Permanent Supportive Housing. Data for the PIT count and HIC are submitted to HUD via the online data submission Homelessness Data Exchange (HDX). The definitions of emergency shelter and permanent housing are almost identical to the federal definitions in the HIC, which should make it easier for local jurisdictions to report data as part of the APR. - Policy Considerations. This bill requires cities and counties to report the number of emergency shelter beds and permanent housing units in the jurisdiction. The Legislative Counsel Digest states that local agencies must meet this requirement beginning April 1, 2028. However, the language of the bill does not specify that the requirement begins April 1,2028. The Committee may wish to consider clarifying that the requirements of this bill begin April 1, 2028.
- Committee Amendments. The Committee may wish to consider amending the bill to clarify that its requirement begin April 1, 2028.
- Related Legislation. AB 1567 (Ta) authorizes a local planning agency to include in its APR the number of units approved for congregate housing for the elderly. This bill is pending in this Committee.
- Arguments in Support. The Bay Area Council, a co-sponsor of the bill, writes in support, “Although California has made strides in homelessness response and data collection, much of the available data remains siloed or inaccessible. The lack of sufficient data in homelessness response has repeatedly been raised in state and local audits. Complete local shelter bed data will ensure the state has the metrics to engage in statewide coordination and tackle California’s homelessness crisis.
“Current law already requires that all local governments adopt housing plans as part of their general plans. The bill adds the number of shelter beds as a required reporting element for annual progress reports. This will impose minimal new burden by allowing cities to report pre-existing data through a state-level process that they already complete each year. This valuable addition to APRs will help illuminate which cities are leading with the most effective approaches and refine the state’s response in helping Californians off the streets.” - Arguments in Opposition. None on file.
- Double-Referral. This bill is double-referred to the Assembly Housing and Community Development Committee, where it passed on 11-0 vote on April 15, 2026.
REGISTERED SUPPORT / OPPOSITION:
Support
Bay Area Council- CO-SPONSOR
DignityMoves (UNREG)- CO-SPONSOR
California Yimby
National Alliance to End Homelessness
National Association of Minority Contractors Northern California
Opposition
None
Analysis Prepared by: Linda Rios / L. GOV. / (916) 319-3958
Date of Hearing: April 15, 2026
ASSEMBLY COMMITTEE ON HOUSING AND COMMUNITY DEVELOPMENT
Matt Haney, Chair
ABPCA Bill Id:AB 2351 (
Author:Bonta) – As Amended Ver:April 6, 2026
SUBJECT: General plan: annual report: shelter beds
SUMMARY: Requires local jurisdictions, beginning with the annual progress report (APR) that is due April 1, 2028, to report the number of emergency shelter beds and permanent housing units in the jurisdiction. Specifically, this bill:
- Requires local jurisdictions to include in the APR they must submit to Housing and Community Development (HCD) the number of temporary emergency shelter beds and permanent housing units serving those experiencing or exiting homelessness in the jurisdiction in each of the following categories:
- Noncongregate shelter beds, which are facilities that offer temporary shelter or lodging for people experiencing homelessness, including, but not limited to, interim beds in tiny homes, models, hotels, or navigation centers;
- Transitional housing, which is housing that provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing or exiting homelessness into permanent housing within a specified period of time, but no longer than 24 months;
- Permanent supportive housing, which is housing that offers permanent housing and supportive services to assist people experiencing or exiting homelessness with a disability to live independently, including but not limited to, individuals with disability or families in which one adult or child has a disability;
- Rapid rehousing, which is permanent housing that provides housing relocation and stabilization services or short- or medium- term rental assistance as necessary to help an individual or family experiencing or exiting homelessness move as quickly as possible into permanent housing and achieve stability in the housing; and
- Other permanent housing, which is long-term housing that is not otherwise considered permanent housing or rapid housing.
EXISTING LAW:
- Defines “permanent supportive housing,” as a project that offers permanent housing and supportive services to assist people experiencing homelessness with a disability to live independently, including individuals with disabilities or families in which one adult or child has a disability, in alignment with 24 Code of Federal Regulation (CFR) Part 578.3.
- Defines “rapid rehousing,” as a permanent housing project that provides housing relocation and stabilization services and/or short- and/or medium-term rental assistance as necessary to help an individual or family experiencing homelessness move as quickly as possible into permanent housing and achieve stability in that housing. (24 CFR Part 578.3)
- Defines “shelter,” to include interim beds in tiny homes, motels and hotels, as defined as projects that offer temporary shelter (lodging) for people experiencing homelessness in general or for specific populations of people experiencing homelessness.(24 CFR Part 576.2)
- Defines “transitional housing,” as a project that provides temporary lodging and is designed to facilitate the movement of individuals and families experiencing homelessness into permanent housing within a specified period of time, but no longer than 24 months. (24 CFR Part 578.3)
- Requires a planning agency to provide an APR to the legislative body, the Office of Planning and Research, and the HCD by April 1 of each year that includes all of the following:
- The status of the general plan and progress in its implementation;
- The progress in meeting its share of the regional housing needs allocation (RHNA), including the need for extremely low-income households, and local efforts to remove governmental constraints to the maintenance, improvement, and development of housing included in the housing element;
- The number of housing development applications received in the prior year, including whether each housing development application is subject to a ministerial or discretionary approval process;
- The number of units included in all development applications in the prior year;
- The number of units approved and disapproved in the prior year, disaggregated into income subcategories within opportunity areas, as specified;
- The degree to which the approved general plan complies with the guidelines developed in existing law for addressing specified matters, including environmental justice matters, collaborative land use planning of adjacent civilian and military lands, consultation with Native American tribes, and road and highway safety;
- A listing of sites rezoned to accommodate that portion of the city or county’s share of the RHNA for each income level that could not be accommodated on sites identified in the housing element’s site inventory and any sites that may have been required to be identified under the No Net Loss Zoning law;
- The number of housing units demolished and new units of housing, including both rental housing and for-sale housing, that have been issued a completed entitlement, a building permit, or a certificate of occupancy, thus far in the housing element cycle, and the income category by AMI that each housing unit satisfies;
- Certain information regarding funding that may have been allocated via the Local Government Planning Support Grants Program;
- The progress of the city or county in adopting or amending its general plan or local open-space element in compliance with its obligations to consult with California Native American tribes and to identify and protect, preserve, and mitigate impacts to tribal places, features, and objects;
- Specified information related to density bonus law applications, including the number of units in a student housing development for lower income students for which the developer was granted a student housing density bonus;
- Specified information related to Affordable Housing and High Road Jobs Act of 2022 applications; and
- A list of all historic designations listed on the National Register of Historic Places, the California Register of Historic Resources, or a local register of historic places by the city or county in the past year, and the status of any housing development projects proposed for the new historic designations. (Government Code (GOV) 65400)
- Requires HCD to post APR reports on its website within a reasonable time of receiving the reports. (GOV 65400)
FISCAL EFFECT: Unknown.
COMMENTS:
Author’s statement: According to the author, “Addressing the homelessness crisis is a top priority for countless Californians, including many in this legislature, yet we still lack basic data transparency to track how we are addressing it as a state. AB 2351 takes a simple but critical step: requiring local governments to report the number of shelter beds and housing units serving people experiencing or exiting homelessness as part of their existing annual progress reports to the state. This data is already largely tracked. This bill simply ensures it flows to the state so that we can build a complete, statewide picture of our shelter capacity and better coordinate our response. California has made real progress, including a 9% drop in unsheltered homelessness in 2025, but that progress has been uneven across jurisdictions. This bill gives the state the tools to identify which communities are stepping up and which are falling behind. By leveraging the Annual Progress Report process that cities and counties already complete each year, AB 2351 imposes minimal new administrative burden while delivering maximum accountability. Transparent, standardized data is the foundation of an effective, equitable homelessness response.”
The Point-in-Time (PIT) and Housing Inventory Count (HIC): The PIT is a count of sheltered and unsheltered people experiencing homelessness on a single night in January. HUD requires that Continuums of Care (CoCs) conduct an annual count of people experiencing homelessness who are sheltered in emergency shelter, transitional housing, and Safe Havens on a single night. CoCs also must conduct a count of unsheltered people experiencing homelessness every other year (odd-numbered years). Each count is planned, coordinated, and carried out locally.
The HIC is a point-in-time inventory of provider programs within a CoC that provide beds and units dedicated to serving people experiencing homelessness (and, for permanent housing projects, where homeless at entry, per the HUD homeless definition), categorized by five Program Types: Emergency Shelter; Transitional Housing; Rapid Re-housing; Safe Haven; and Permanent Supportive Housing. Data for the PIT count and HIC are submitted to HUD via the online data submission Homelessness Data Exchange (HDX). The definitions of emergency shelter and permanent housing are almost identical to the federal definitions in the HIC, which should make it easier for local jurisdictions to report data as part of the APR. This bill adds navigation centers to the definition of emergency shelter, which is not in the federal definition.
Annual Progress Reports: Current law requires all local jurisdictions to provide housing information annually to HCD via the APR, including the following information from the current housing element cycle:
- The number of housing development applications received, and whether those applications are subject to ministerial or discretionary approval;
- The number of units included in all development applications;
- The number of units approved and disapproved;
- For each income category, the number of net new units of housing, including both rental housing and for-sale housing, that have been issued a completed entitlement, a building permit, or a certificate of occupancy;
- A unique site identifier (such as assessor’s parcel number) for each entitlement, building permit, or certificate of occupancy; and
- The overall progress in meeting its share of regional housing needs.
It is important to note that APR submission has become a lengthy and involved process for city and county planning staff to undertake each year, and changing components can also prompt HCD to need to reconfigure its existing APR data collection and visualization tools to account for different categories of information. Adding new components to APRs should be considered carefully in light of the additional workload that will be placed on planning staff or consultants as well as HCD. This bill would delay the requirement to report information on the number of emergency shelter and permanent housing until April 1, 2028. This delay eases the impact of this bill on local governments, who will have begun updating their APRs in the beginning of 2027 and would then be forced to change their reporting process by a new requirement due for the APRs due on April 1, 2027.
Arguments in Support: According to the Bay Area Council, a sponsor of this bill, “current law already requires that all local governments adopt housing plans as part of their general plans. The bill adds the number of shelter beds as a required reporting element for annual progress reports. This will impose minimal new burden by allowing cities to report pre-existing data through a state-level process that they already complete each year. This valuable addition to APRs will help illuminate which cities are leading with the most effective approaches and refine the state’s response in helping Californians off the streets.
Arguments in Opposition: None on file.
Double-referred: This bill was also referred to the Assembly Committee on Local Government where it will be heard should it pass out of this committee.
REGISTERED SUPPORT / OPPOSITION:
Support
DignityMoves (Sponsor)
Bay Area Council
California YIMBY
National Alliance to End Homelessness
Opposition
None on file.
Analysis Prepared by: Lisa Engel / H. & C.D. / (916) 319-2085
Discussed in Hearing
Assembly Standing Committee on Housing and Community Development
Bill Author
Bill Co-Author(s):