Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would provide that a community college district is not required to comply with the zoning ordinances of a city, county, or city and county, for a university housing development project constructed on property owned or leased by a community college district if specific requirements are met. If the project includes units for faculty and staff, the bill would require the community college district to ensure that a portion of the units of the project are made available at affordable rents to extremely low income faculty and staff and lower income faculty and staff.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would provide that a community college district is not required to comply with the zoning ordinances of a city, county, or city and county, for a university housing development project constructed on property owned or leased by a community college district if specific requirements are met. If the project includes units for faculty and staff, the bill would require the community college district to ensure that a portion of the units of the project are made available at affordable rents to extremely low income faculty and staff and lower income faculty and staff.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would provide that a community college district is not required to comply with the zoning ordinances of a city, county, or city and county, for a university housing development project constructed on property owned or leased by a community college district if specific requirements are met. If the project includes units for faculty and staff, the bill would require the community college district to ensure that a portion of the units of the project are made available at affordable rents to extremely low income faculty and staff and lower income faculty and staff.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would exempt the construction of faculty and staff housing projects, student housing projects, and university housing development projects, as defined, from local zoning regulations of any city, county, or city and county when provide that a community college district is not required to comply with the zoning ordinances of a city, county, or city and county, for a university housing development project constructed on property owned or leased by a community college district if specific requirements are met. If the project includes units for faculty and staff, the bill would require the community college district to ensure that a portion of the units of the project are made available at affordable rents to extremely low income faculty and staff and lower income faculty and staff.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would exempt the construction of faculty and staff housing projects, student housing projects, and university housing development projects, as defined, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a community college district. district if specific requirements are met.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

Existing law establishes the California Community Colleges, under the administration of the Board of Governors of the California Community Colleges, as one of the segments of postsecondary education in this state. Existing law establishes community college districts throughout the state and authorizes them to operate campuses and provide instruction to students.

This bill would exempt the construction of faculty and staff housing projects, student housing projects, and university housing development projects, as defined, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a community college district.

The bill would include findings that changes proposed by this bill address a matter of statewide concern rather than a municipal affair and, therefore, apply to all cities, including charter cities.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 648

Author:(Zbur)

As Amended Ver:September 2, 2025

Majority vote

SUMMARY

Exempts community college districts (CCDs) from complying with local zoning ordinances for university housing development projects that are constructed on property owned or leased by the CCD, provided certain conditions are met. Stipulates that if the project includes housing units for faculty or staff, a portion of those units be made available at affordable rent levels to extremely low income and lower income faculty and staff.

Senate Amendments

1. Define the following terms:
   1. "Affordable rent" means an amount consistent with the rent limits established by the California Tax Credit Allocation Committee;
   2. "Extremely low income faculty or staff" means an employee of the California Community Colleges who satisfies the requirements of Section 50106 of the Health and Safety Code;
   3. "Lower income faculty or staff" means an employee of the CCCs who satisfies specified requirements; and,
   4. "Satellite campus" means an auxiliary classroom or a teaching site not a part of the main campus.
2. Delete references to the following terms:
   1. "Faculty and staff housing project;"
   2. "Student housing project;" and,
   3. "University housing development project"
3. Exempt specified housing projects from local zoning laws when built on property owned or leased by a CCD if the site is:
   1. Within a one-half mile radius of a main campus, as defined; or,
   2. Within a one-half mile radius of a satellite campus that existed before July 1, 2025.
4. Specify that if the project includes units for faculty and staff, the CCD must ensure that a portion of the units are made available at affordable rent levels to extremely low income faculty and staff and to lower income faculty and staff.
5. Add a co-author.

COMMENTS

This measure seeks to provide parity to the CCC and that of the California State University (CSU) and University of California (UC), by exempting the construction of faculty and staff housing projects, student housing projects, and university housing development projects, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a CCD.

Student housing crisis. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst's Office (LAO), student housing insecurity can refer to a range of challenges related to student’s living arrangements. At California’s higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use "homelessness" to refer more specifically to lacking a stable place to stay at night. The segments’ definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends ("couch surfing"), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).

According to LAO, roughly 60% of California's community college students have faced housing insecurity and almost 25% have experienced homelessness.

According to the Author

According to the author, "this bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state.

The author contends that, "with over 70% of CCC students coming from diverse backgrounds, the system has become a critical pathway for marginalized populations seeking access to higher education and economic mobility. By removing barriers to building community college student housing, this bill will help address the housing insecurity experienced by marginalized students."

Arguments in Support

According to the Santa Monica Community College District (SMCCD), co-sponsors of this measure, "this bill will combat housing insecurity and homelessness among community college students while also addressing California's broader housing crisis by increasing the supply of affordable housing in local communities. The bill will streamline the construction of student housing at CCC by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a CCD, the same exemption CCDs already have for classroom facilities."

Additionally, SMCCD states that, "this bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. This will give CCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California."

Arguments in Opposition

According to the League of California Cities (Cal Cities) and the California State Association of Counties (CSAC) in their oppose unless amended letter, "existing law allows land owned or leased by the University of California (UC) or California State Universities (CSU) to bypass local zoning. These entities are owned by the state. However, community colleges are not. It is also important to note that Government Code Section 65913.6 provides specific conditions that student housing must comply with, and AB 648 does not have the same conditions for community college districts. The author should consider harmonizing what is required for UCs and CSUs in this bill."

Further, Cal Cities and CSAC contend that, "at a minimum, the proposal should require community college districts to consult with local planning staff and follow the adopted local general plan and their respective zoning regulations regarding where housing can or cannot be developed. In addition, we would encourage the author to allow local jurisdictions to include student housing in their RHNA progress to account for the efforts at the local level to site and plan for affordable student, faculty, and staff housing."

FISCAL COMMENTS

Unknown. This measure is keyed non-fiscal by the Legislative Counsel.

VOTES:

ASM HIGHER EDUCATION: 7-3-0

YES: Fong, Boerner, Jackson, Muratsuchi, Patel, Celeste Rodriguez, Sharp-Collins

NO: DeMaio, Essayli, Jeff Gonzalez

ASM LOCAL GOVERNMENT: 9-0-1

YES: Carrillo, Hoover, Pacheco, Ramos, Ransom, Blanca Rubio, Stefani, Ward, Wilson

ABS, ABST OR NV: Ta

ASSEMBLY FLOOR: 63-5-11

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Davies, Elhawary, Ellis, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hoover, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NO: DeMaio, Dixon, Lackey, Sanchez, Tangipa

ABS, ABST OR NV: Bauer-Kahan, Castillo, Chen, Flora, Gallagher, Jeff Gonzalez, Hadwick, Hart, Macedo, Nguyen, Ta

UPDATED

VERSION: September 2, 2025

CONSULTANT: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0001892

 THIRD READING  

Bill No: AB 648

Author: Zbur (D), et al.

Amended: 9/2/25 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 6-1, 6/18/25

AYES: Pérez, Ochoa Bogh, Cabaldon, Cortese, Laird, Limón

NOES: Choi

SENATE LOCAL GOVERNMENT COMMITTEE: 5-2, 7/16/25

AYES: Durazo, Arreguín, Cabaldon, Laird, Wiener

NOES: Choi, Seyarto

ASSEMBLY FLOOR: 63-5, 5/27/25 - See last page for vote

SUBJECT: Community colleges: housing: local zoning regulations: exemption

SOURCE: Abundant Housing LA
Los Angeles Community College District
Santa Monica Community College District
Student Homes Coalition

DIGEST:

This bill exempts community college districts (CCDs) from complying with local zoning ordinances for university housing development projects that are constructed on property owned or leased by the CCD, provided certain conditions are met. If the project includes housing units for faculty or staff, this bill requires that a portion of those units be made available at affordable rents to extremely low income and lower income faculty and staff.

Senate Floor Amendments of 9/2/25 add Senator Arreguín as a co-author.

ANALYSIS:

Existing law:

1. Establishes the California Community Colleges (CCC) as a postsecondary education system administered by the Board of Governors, composed of locally governed community college districts. (Education Code (EC) § 70900)
2. Authorizes CCDs to lease or develop property and facilities, subject to relevant education and government code provisions. (EC §§ 81330, 70902)
3. Defines “faculty and staff housing project,” “student housing project,” and “university housing development project” with exclusions for high-risk or environmentally sensitive lands. (Public Resources Code § 21080.58)
4. Provides general police power to cities and counties, including authority over land use, zoning, and general plans. (California Constitution, Art. XI, § 7; Government Code (GOV) §§ 65300 et seq.)
5. Requires city and county zoning ordinances to align with general plans and housing elements. (GOV §§ 65588, 65860)
6. Allows K–12 school districts to override local zoning for classroom facilities, but does not clearly extend this authority to CCDs. (GOV § 53094)

This bill:

1. Exempts specified housing projects from local zoning laws when built on property owned or leased by a CCD if the site is:
2. Within a one-half mile radius of a main campus (as defined in EC § 94849); or
3. Within a one-half mile radius of a satellite campus that existed before July 1, 2025.
4. Specifies that if the project includes units for faculty and staff, the CCD shall ensure that a portion of the units are made available at affordable rents to extremely low income faculty and staff and to lower income faculty and staff.
5. Establishes the following definitions:
6. “Affordable rent” means an amount consistent with the rent limits established by the California Tax Credit Allocation Committee.
7. “Extremely low income faculty or staff” means an employee of the California Community Colleges who satisfies the requirements of Section 50106 of the Health and Safety Code.
8. “Lower income faculty or staff” means an employee of the CCCs who satisfies the requirements of Section 50079.5 of the Health and Safety Code.
9. “Satellite campus” means an auxiliary classroom or a teaching site not a part of the main campus.

Comments

1. Need for this bill. According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”
2. Addresses an urgent student success and equity issue in the CCC system. Housing insecurity is a major impediment to academic persistence and degree completion, particularly in CCCs, where students disproportionately come from low-income households, are older, more likely to work full time, and are often parenting. Data from the Legislative Analyst’s Office (LAO) indicates that roughly 60% of CCC students report housing insecurity and nearly 25% have experienced homelessness. For students navigating transportation barriers, caregiving duties, or unstable living conditions, housing near campus can be the critical difference between continuing and dropping out. This bill supports a policy goal long championed by the state: expanding basic needs infrastructure to promote postsecondary attainment and close equity gaps.
3. Creates a pathway for faculty and staff housing to support recruitment and retention in high-cost regions. Recruiting and retaining high-quality faculty and staff is a persistent challenge for many CCDs, particularly in high-cost regions where housing affordability significantly outpaces public sector wages. While CCC and California State University (CSU) tenure-track faculty salaries are broadly comparable, neither system offers widespread housing stipends, and CCC face additional pressure due to their reliance on part-time faculty and classified support staff. This bill may allow districts to invest in workforce housing solutions that enhance employment stability, improve student support, and reduce attrition among mission-critical personnel.
4. Advances intersegmental alignment with UC and CSU housing policy flexibility. The state has granted the University of California (UC) and CSU broad discretion to develop student and faculty housing projects without local zoning restrictions, recognizing these projects as mission-driven public purposes. This bill would extend similar authority to CCDs, narrowing a structural discrepancy that has hampered CCC participation in recent housing bond programs and constrained project feasibility timelines. From an education policy perspective, this parity supports a more coordinated statewide approach to public postsecondary housing that reflects the state’s “cradle-to-career” strategy.
5. Responds to implementation challenges in the CCC Student Housing Grant Program. The 2021 and 2022 budget agreements created new pathways for CCCs to receive capital funding for student housing. However, several projects stalled or were never submitted due to uncertainty over local zoning, permitting timelines, and potential community opposition. This bill complements that investment by reducing regulatory delays and encouraging more districts to pursue on-campus or near-campus housing solutions. While this bill does not allocate new resources, it may increase the return on existing state investments by unlocking shovel-ready development sites.
6. Maintains discretion for locally elected governing boards while accelerating housing solutions. Unlike UC and CSU, which are governed by state-appointed boards, CCCs are governed by locally elected boards of trustees. This bill retains those governance structures and places the zoning exemption in their hands. As a result, housing projects would still need to undergo local board deliberation and approval, ensuring that decisions are made transparently and reflect district-level priorities. This structure balances the urgency of student housing needs with democratic accountability in local communities.

FISCAL EFFECT: Appropriation: No Fiscal Com.: No Local: No

SUPPORT: (Verified 9/2/25)

Abundant Housing LA (Co-Source)
Los Angeles Community College District (co-source)
Santa Monica Community College District (co-source)
Student HOMES Coalition (co-source)
Associated General Contractors, California Chapters
Association of California Community College Administrators
Cabrillo Community College District
California Apartment Association
California Community Colleges Chancellor's Office
California Yimby
Circulate San Diego
City of Santa Monica
Coast Community College District
College of the Redwoods
Community College League of California
Community for Excellent Public Schools
Compton Community College District
County of Los Angeles Board of Supervisors
Cuesta College
East Bay Yimby
Foothill-De Anza Community College District
GenUp
Grow the Richmond
Housing Is a Human Right OC
Long Beach Community College District
Los Angeles Community College District Academic Senate
Los Rios Community College District
Mountain View Yimby
Napa-Solano for Everyone
Northern Neighbors SF
Peninsula for Everyone
People for Housing - Orange County
Power CA Action
Power California Action
Riverside Community College District
Safe Place for Youth
San Diego Community College District
San Diego Housing Federation
San Diego Unified School District
San Francisco Yimby
San Jose-Evergreen Community College District
Santa Cruz Yimby
Santa Monica Democratic Club
Santa Rosa Yimby
SloCo Yimby
South Bay Yimby
Southern California College Attainment Network
SPUR
Streets for All
Student Senate for California Community Colleges
The Two Hundred for Homeownership
Ventura County Yimby
Welcoming Neighbors Home
Yimby Action
Yimby Los Angeles

OPPOSITION: (Verified 9/2/25)

City of Cupertino

ASSEMBLY FLOOR: 63-5, 5/27/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Davies, Elhawary, Ellis, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hoover, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio, Dixon, Lackey, Sanchez, Tangipa

NO VOTE RECORDED: Bauer-Kahan, Castillo, Chen, Flora, Gallagher, Jeff Gonzalez, Hadwick, Hart, Macedo, Nguyen, Ta

Prepared by: Ian Johnson / ED. / (916) 651-4105

9/3/25 18:31:24

**** END ****

 THIRD READING  

Bill No: AB 648

Author: Zbur (D)

Amended: 7/17/25 in Senate

Vote: 21

SENATE EDUCATION COMMITTEE: 6-1, 6/18/25

AYES: Pérez, Ochoa Bogh, Cabaldon, Cortese, Laird, Limón

NOES: Choi

SENATE LOCAL GOVERNMENT COMMITTEE: 5-2, 7/16/25

AYES: Durazo, Arreguín, Cabaldon, Laird, Wiener

NOES: Choi, Seyarto

ASSEMBLY FLOOR: 63-5, 5/27/25 - See last page for vote

SUBJECT: Community colleges: housing: local zoning regulations: exemption

SOURCE: Abundant Housing LA
Los Angeles Community College District
Santa Monica Community College District
Student Homes Coalition

DIGEST:

This bill exempts community college districts (CCDs) from complying with local zoning ordinances for university housing development projects that are constructed on property owned or leased by the CCD, provided certain conditions are met. If the project includes housing units for faculty or staff, this bill requires that a portion of those units be made available at affordable rents to extremely low income and lower income faculty and staff.

ANALYSIS:

Existing law:

1. Establishes the California Community Colleges (CCC) as a postsecondary education system administered by the Board of Governors, composed of locally governed community college districts. (Education Code (EC) § 70900)
2. Authorizes CCDs to lease or develop property and facilities, subject to relevant education and government code provisions. (EC §§ 81330, 70902)
3. Defines “faculty and staff housing project,” “student housing project,” and “university housing development project” with exclusions for high-risk or environmentally sensitive lands. (Public Resources Code § 21080.58)
4. Provides general police power to cities and counties, including authority over land use, zoning, and general plans. (California Constitution, Art. XI, § 7; Government Code (GOV) §§ 65300 et seq.)
5. Requires city and county zoning ordinances to align with general plans and housing elements. (GOV §§ 65588, 65860)
6. Allows K–12 school districts to override local zoning for classroom facilities, but does not clearly extend this authority to CCDs. (GOV § 53094)

This bill:

1. Exempts specified housing projects from local zoning laws when built on property owned or leased by a CCD if the site is:
2. Within a one-half mile radius of a main campus (as defined in EC § 94849); or
3. Within a one-half mile radius of a satellite campus that existed before July 1, 2025.
4. Specifies that if the project includes units for faculty and staff, the CCD shall ensure that a portion of the units are made available at affordable rents to extremely low income faculty and staff and to lower income faculty and staff.
5. Establishes the following definitions:
6. “Affordable rent” means an amount consistent with the rent limits established by the California Tax Credit Allocation Committee.
7. “Extremely low income faculty or staff” means an employee of the California Community Colleges who satisfies the requirements of Section 50106 of the Health and Safety Code.
8. “Lower income faculty or staff” means an employee of the CCCs who satisfies the requirements of Section 50079.5 of the Health and Safety Code.
9. “Satellite campus” means an auxiliary classroom or a teaching site not a part of the main campus.

Comments

1. Need for this bill. According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”
2. Addresses an urgent student success and equity issue in the CCC system. Housing insecurity is a major impediment to academic persistence and degree completion, particularly in CCCs, where students disproportionately come from low-income households, are older, more likely to work full time, and are often parenting. Data from the Legislative Analyst’s Office (LAO) indicates that roughly 60% of CCC students report housing insecurity and nearly 25% have experienced homelessness. For students navigating transportation barriers, caregiving duties, or unstable living conditions, housing near campus can be the critical difference between continuing and dropping out. This bill supports a policy goal long championed by the state: expanding basic needs infrastructure to promote postsecondary attainment and close equity gaps.
3. Creates a pathway for faculty and staff housing to support recruitment and retention in high-cost regions. Recruiting and retaining high-quality faculty and staff is a persistent challenge for many CCDs, particularly in high-cost regions where housing affordability significantly outpaces public sector wages. While CCC and California State University (CSU) tenure-track faculty salaries are broadly comparable, neither system offers widespread housing stipends, and CCC face additional pressure due to their reliance on part-time faculty and classified support staff. This bill may allow districts to invest in workforce housing solutions that enhance employment stability, improve student support, and reduce attrition among mission-critical personnel.
4. Advances intersegmental alignment with UC and CSU housing policy flexibility. The state has granted the University of California (UC) and CSU broad discretion to develop student and faculty housing projects without local zoning restrictions, recognizing these projects as mission-driven public purposes. This bill would extend similar authority to CCDs, narrowing a structural discrepancy that has hampered CCC participation in recent housing bond programs and constrained project feasibility timelines. From an education policy perspective, this parity supports a more coordinated statewide approach to public postsecondary housing that reflects the state’s “cradle-to-career” strategy.
5. Responds to implementation challenges in the CCC Student Housing Grant Program. The 2021 and 2022 budget agreements created new pathways for CCCs to receive capital funding for student housing. However, several projects stalled or were never submitted due to uncertainty over local zoning, permitting timelines, and potential community opposition. This bill complements that investment by reducing regulatory delays and encouraging more districts to pursue on-campus or near-campus housing solutions. While this bill does not allocate new resources, it may increase the return on existing state investments by unlocking shovel-ready development sites.
6. Maintains discretion for locally elected governing boards while accelerating housing solutions. Unlike UC and CSU, which are governed by state-appointed boards, CCCs are governed by locally elected boards of trustees. This bill retains those governance structures and places the zoning exemption in their hands. As a result, housing projects would still need to undergo local board deliberation and approval, ensuring that decisions are made transparently and reflect district-level priorities. This structure balances the urgency of student housing needs with democratic accountability in local communities.

FISCAL EFFECT: Appropriation: No Fiscal Com.: No Local: No

SUPPORT: (Verified 8/13/25)

Abundant Housing LA (co-source)
Los Angeles Community College District (co-source)
Santa Monica Community College District (co-source)
Student HOMES Coalition (co-source)
Associated General Contractors, California Chapters
Association of California Community College Administrators
Cabrillo Community College District
California Apartment Association
California Community Colleges Chancellor’s Office
California Yimby
Circulate San Diego
City of Santa Monica
Coast Community College District
College of the Redwoods
Community College League of California
Community for Excellent Public Schools
Compton Community College District
County of Los Angeles Board of Supervisors
Cuesta College
East Bay Yimby
Foothill-De Anza Community College District
GenUp
Grow the Richmond
Housing Is a Human Right OC
Long Beach Community College District
Los Angeles Community College District Academic Senate
Los Rios Community College District
Mountain View Yimby
Napa-Solano for Everyone
Northern Neighbors SF
Peninsula for Everyone
People for Housing - Orange County
Power CA Action
Riverside Community College District
Safe Place for Youth
San Diego Community College District
San Diego Housing Federation
San Diego Unified School District
San Francisco Yimby
San Jose-Evergreen Community College District
Santa Cruz Yimby
Santa Monica Democratic Club
Santa Rosa Yimby
SloCo Yimby
South Bay Yimby
Southern California College Attainment Network
SPUR
Streets for All
Student Senate for California Community Colleges
The Two Hundred for Homeownership
Ventura County Yimby
Welcoming Neighbors Home
Yimby Action
Yimby Los Angeles

OPPOSITION: (Verified 8/13/25)

City of Cupertino

ASSEMBLY FLOOR: 63-5, 5/27/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Connolly, Davies, Elhawary, Ellis, Fong, Gabriel, Garcia, Gipson, Mark González, Haney, Harabedian, Hoover, Irwin, Jackson, Kalra, Krell, Lee, Lowenthal, McKinnor, Muratsuchi, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Quirk-Silva, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio, Dixon, Lackey, Sanchez, Tangipa

NO VOTE RECORDED: Bauer-Kahan, Castillo, Chen, Flora, Gallagher, Jeff Gonzalez, Hadwick, Hart, Macedo, Nguyen, Ta

Prepared by: Ian Johnson / ED. / (916) 651-4105

8/14/25 16:22:51

**** END ****

SENATE COMMITTEE ON LOCAL GOVERNMENT

Senator María Elena Durazo, Chair

2025 - 2026 Regular

Community colleges: housing: local zoning regulations: exemption

Makes the construction of a faculty, staff, or student housing project exempt from local zoning if constructed on property the community college districts owns or leases if the parcel is within ½ mile of a main or satellite community college campus.

Background

The California Constitution allows cities and counties to “make and enforce within its limits, all local, police, sanitary and other ordinances and regulations not in conflict with general laws.” It is from this fundamental power (commonly called the police power) that cities and counties derive their authority to regulate behavior to preserve the health, safety, and welfare of the public—including land use authority.

Planning and Zoning Law. State law provides additional powers and duties for cities and counties regarding land use. The Planning and Zoning Law requires every county and city to adopt a general plan that sets out planned uses for all of the area covered by the plan. A general plan must include specified mandatory “elements,” including a housing element that establishes the locations and densities of housing, and a land use element that describes the general categories of uses (such as multifamily residential, single family residential, retail commercial, and open space) that are allowed in specific portions of a jurisdiction. Cities’ and counties’ major land use decisions—including zoning ordinances and other aspects of development permitting—must be consistent with their general plans. General plans also include policies, standards, and mitigation measures that developments must comply with, to protect against flood hazards, fire hazards, and climate change, and to further environmental justice, among other state goals.

Local governments use their police power to enact zoning ordinances that establish the types of land uses that are allowed or authorized in an area. Zoning ordinances also contain provisions to physically shape development and impose other requirements, such as setting maximum heights and densities for housing units, minimum numbers of required parking spaces, setbacks, and lot coverage ratios. These ordinances can also include conditions on development to address aesthetics, community impacts, or other particular site-specific considerations.

Housing challenges at colleges and universities. California’s higher education system is split up into three segments: the University of California (UC) system, the California State University (CSU) system, and the California Community Colleges (CCC) system. While UCs and CSUs focus on four-year and advanced degrees, CCCs offer academic and vocational instruction at the lower division level for both younger and older students. California has 116 community colleges, organized into 73 community college districts (CCDs). These CCDs operate the community colleges within the district, including by entering into leases and agreements relating to real property and buildings for district use. Of the 116 community colleges, 12 currently offer student housing.

While many Californians are experiencing the state’s housing crisis firsthand, students at colleges and universities face particularly acute challenges given that they face both housing and education costs. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst’s Office, “Rates of students reporting homelessness at some point over the past 12 months ranged from 8 percent of respondents at UC to 24 percent of respondents at CCC.” These rates were even greater for Black students, students qualifying for federal student aid, and LGBTQ students. The most commonly cited measure of homelessness in California comes from a point‑in‑time count required every other year by the U.S. Department of Housing and Urban Development. Based on the most recent point‑in‑time count, 187,084 people in California (0.5% of the total population) experienced homelessness on a single night in January 2023. While these data sources are calculated differently, it suggests that students may experience higher rates of homelessness than Californians generally.

To provide additional housing opportunities for community college students and staff, the author wants to streamline the development of housing projects near community colleges by bypassing local zoning.

Proposed Law

Assembly Bill 648 makes the construction of a faculty, staff, and/or student housing project exempt from local zoning if constructed on property the community college districts owns or leases if the parcel is within ½ mile of a main or satellite community college campus.

The measure defines its terms.

Comments

1. Purpose of the bill. According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”

2. One size fits all? California is a geographically and demographically diverse state, and that is reflected in its 482 cities and 58 counties. Local elected officials for each of those municipalities are charged by the California Constitution with protecting their citizens’ welfare. One chief way local governments do this is by exercising control over what gets built in their community. Local officials weigh the need for additional housing against the concerns and desires of their constituents. Where appropriate, those officials enact ordinances to shape their communities based on local conditions and desires. Moreover, these planning actions and decisions take place within the confines of state laws that require local governments to plan and zone for new housing, subject to approval by the Department of Housing and Community Development, and under threat of fines for improper denial as a result of recent legislation on the Housing Accountability Act. AB 648 disregards these efforts and the unique features of California’s communities by exempting housing projects on community college land from local zoning standards. While the bill is limited to land the community college district owns or leases, it bypasses the local deliberative process where local officials elected in part to manage development take into account the needs of all residents in the community. Instead, it hands these decisions over to a community college concerned with the needs of the students, faculty, and staff, missing out on balancing competing needs.

3. What about us? Unlike schools in the University of California (UC) or California State University (CSU) system, community colleges are not state entities. While the UC and CSU systems operate as centralized state agencies with broad statewide mandates and relatively autonomous Boards, CCDs reflect and respond to the specific needs of the regions they serve. Since the State Constitution created UCs and CSUs, and therefore controls their organization and governance, they are not subject to regulations of local governments when using the property under their control in furtherance of their academic mission. However, CCDs do not enjoy this same flexibility since they are not state agencies. While all development projects for public institutions remain subject to state-level environmental review under the California Environmental Quality Act (CEQA), only CCDs must follow local zoning. Should CCDs enjoy the same authority that UCs and CSUs enjoy?

4. Gotta keep ‘em separated. A fundamental principle of zoning since the United States Supreme Court upheld an early zoning ordinance in 1926 (Village of Euclid v. Ambler Realty Co., 272 U.S. 365 (1926)) has been that allowing some uses in one area but prohibiting others can be integral to protecting the public welfare. Local governments have historically separated uses to avoid siting incompatible activities, such as agriculture and residential activity, near one another. It also mitigates potential public health issues, such as air pollution impacts from heavy industrial uses on nearby residents. AB 648 exempts faculty, staff, and/or student housing project exempt from local zoning if constructed on property the community college districts owns or leases, which contravenes this principle. It also undermines the planning decisions made by local officials, who established which uses are allowed and at what intensity. However, AB 648 does not define local zoning, meaning it is unclear exactly where this exemption applies. For example, local governments zone some land for industrial purposes only. AB 648 would allow CCDs to build housing in these areas regardless of whether infrastructure and amenities exist to support it. The Committee may wish to consider amending the bill to clarify the parameters of this exemption.

5. Leaving no one behind. While AB 648 is intended to enable more CCDs to construct housing for their students and employees, it does not include provisions to ensure that units are affordable to all students, faculty, and staff, not just those who can already afford market-rate housing. Many other housing bills include affordability requirements to ensure that some percentage of the units developed remain affordable to certain incomes. Without such a restriction, housing may only be affordable to students, faculty, and staff at higher income levels. Students who need affordable housing can receive financial aid to help pay for housing. However, faculty and staff cannot. While some faculty and staff might be able to afford market rate rents, lower earning workers may not afford the housing that get built. AB 648 leaves decisions about the types of housing that gets built up to CCDs, but it is unclear this guarantees affordable housing opportunities. The Committee may wish to consider amending the bill to include an affordability requirement.

6. Let’s get technical. AB 648 applies to faculty, staff, student, and university housing projects. However, faculty, staff, and student housing projects are already included in the definition of university housing projects, including at community colleges. Additionally, the measure applies to satellite campuses, but does not define that term. To clarify which projects the bill applies to, the Committee may wish to consider amending the bill to clean up these definitions.

7. Charter city. The California Constitution allows cities that adopt charters to control their own “municipal affairs.” In all other matters, charter cities must follow the general, statewide laws. Because the Constitution doesn’t define “municipal affairs,” the courts determine whether a topic is a municipal affair or whether it’s an issue of statewide concern. AB 648 says that it applies to all cities, including charter cities. To support this assertion, the bill includes a legislative finding and declaration that addressing California’s growing affordable housing shortage and its impact on students is a matter of statewide concern.

8. Related legislation. The Legislature is considering other measures related to AB 648:

• AB 893 (Fong) expands provisions to allow for the use of the streamlined, ministerial review process for housing development projects to campus development zones. The measure is also scheduled for the Committee’s July 16^th meeting.
• AB 1021 (Wicks), which this Committee passed at its July 2^nd meeting on a 6-1 vote, makes numerous changes to the provisions that make housing developments an allowable use on land owned by a local educational agency and exempts these housing developments from the California Environmental Quality Act. The measure is currently pending in the Committee on Housing.

9. Incoming! The Senate Rules Committee has ordered a double referral of AB 648: first to the Committee on Education, which approved AB 648 at its June 18^th hearing on a vote of 6-1, and second to the Committee on Local Government.

Assembly Actions

Assembly Higher Education Committee: 7-3
Assembly Local Government Committee: 9-0
Assembly Floor: 63-5

Support and Opposition

(7/11/25)

Support: Los Angeles Community College District (Co-Sponsor)
Santa Monica Community College District (Co-Sponsor)
Student Homes Coalition (Co-Sponsor)
Abundant Housing LA
Associated General Contractors, California Chapters
Association of California Community College Administrators
Cabrillo Community College District
California Apartment Association
California Community Colleges Chancellor's Office
California Yimby
Circulate San Diego
City of Santa Monica
Coast Community College District
College of the Redwoods
Community College League of California
Community for Excellent Public Schools
Compton Community College District
County of Los Angeles Board of Supervisors
Cuesta College
East Bay Yimby
Foothill-de Anza Community College District
Genup
Grow the Richmond
Housing Is a Human Right Oc (HHROC)
Long Beach Community College Distict
Los Angeles Community College District Academic Senate
Los Rios Community College District
Mountain View Yimby
Napa-solano for Everyone
Northern Neighbors Sf
Peninsula for Everyone
People for Housing - Orange County
Power CA Action
Power California Action
Riverside Community College District
Safe Place for Youth
San Diego Community College District
San Diego Housing Federation
San Diego Unified School District
San Francisco Yimby
San Jose-evergreen Community College District
Santa Cruz Yimby
Santa Monica Democratic Club
Santa Rosa Yimby
Sloco Yimby
South Bay Yimby
Southern California College Attainment Network
Spur
Streets for All
Student Senate for California Community Colleges
The Two Hundred
Ventura County Yimby
Welcoming Neighbors Home
Yimby Action
Yimby Los Angeles

Opposition: City of Cupertino

-- END --

SENATE COMMITTEE ON EDUCATION

Senator Sasha Renée Pérez, Chair

2025 - 2026 Regular

Bill No: AB 648 Hearing Date: June 18, 2025

Subject: Community colleges: housing: local zoning regulations: exemption.

NOTE: This bill has been referred to the Committees on Education and Local Government. A “do pass” motion should include referral to the Committee on Local Government.

SUMMARY

This bill exempts the construction of student, faculty, and staff housing projects on property owned or leased by a community college district (CCD) from local zoning regulations, provided the property is within a half-mile of a main or satellite campus.

BACKGROUND

Existing law:

1. Establishes the California Community Colleges (CCC) as a postsecondary education system administered by the Board of Governors, composed of locally governed community college districts. (Education Code (EC) § 70900)
2. Authorizes CCDs to lease or develop property and facilities, subject to relevant education and government code provisions. (EC §§ 81330, 70902)
3. Defines “faculty and staff housing project,” “student housing project,” and “university housing development project” with exclusions for high-risk or environmentally sensitive lands. (Public Resources Code § 21080.58)
4. Provides general police power to cities and counties, including authority over land use, zoning, and general plans. (California Constitution, Art. XI, § 7; Government Code (GOV) §§ 65300 et seq.)
5. Requires city and county zoning ordinances to align with general plans and housing elements. (GOV §§ 65588, 65860)
6. Allows K–12 school districts to override local zoning for classroom facilities, but does not clearly extend this authority to CCDs. (GOV § 53094)

ANALYSIS

This bill:

1. Exempts specified housing projects from local zoning laws when built on property owned or leased by a CCD if the site is:
   1. Within a one-half mile radius of a main campus (as defined in EC § 94849); or
   2. Within a one-half mile radius of a satellite campus that existed before July 1, 2025.
2. Defines covered projects using existing statutory definitions:
   1. Student housing projects and faculty and staff housing projects include residential facilities and necessary academic or support spaces.
   2. University housing development projects include such housing unless located on certain environmentally restricted lands.

STAFF COMMENTS

1. Need for the bill. According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”
2. Addresses an urgent student success and equity issue in the CCC system. Housing insecurity is a major impediment to academic persistence and degree completion, particularly in CCCs, where students disproportionately come from low-income households, are older, more likely to work full time, and are often parenting. Data from the Legislative Analyst’s Office (LAO) indicates that roughly 60% of CCC students report housing insecurity and nearly 25% have experienced homelessness. For students navigating transportation barriers, caregiving duties, or unstable living conditions, housing near campus can be the critical difference between continuing and dropping out. This bill supports a policy goal long championed by the state: expanding basic needs infrastructure to promote postsecondary attainment and close equity gaps.
3. Creates a pathway for faculty and staff housing to support recruitment and retention in high-cost regions. Recruiting and retaining high-quality faculty and staff is a persistent challenge for many CCDs, particularly in high-cost regions where housing affordability significantly outpaces public sector wages. While CCC and California State University (CSU) tenure-track faculty salaries are broadly comparable, neither system offers widespread housing stipends, and CCC face additional pressure due to their reliance on part-time faculty and classified support staff. This bill may allow districts to invest in workforce housing solutions that enhance employment stability, improve student support, and reduce attrition among mission-critical personnel.
4. Advances intersegmental alignment with UC and CSU housing policy flexibility. The state has granted the University of California (UC) and CSU broad discretion to develop student and faculty housing projects without local zoning restrictions, recognizing these projects as mission-driven public purposes. This bill would extend similar authority to CCDs, narrowing a structural discrepancy that has hampered CCC participation in recent housing bond programs and constrained project feasibility timelines. From an education policy perspective, this parity supports a more coordinated statewide approach to public postsecondary housing that reflects the state’s “cradle-to-career” strategy.
5. Responds to implementation challenges in the CCC Student Housing Grant Program. The 2021 and 2022 budget agreements created new pathways for CCCs to receive capital funding for student housing. However, several projects stalled or were never submitted due to uncertainty over local zoning, permitting timelines, and potential community opposition. This bill complements that investment by reducing regulatory delays and encouraging more districts to pursue on-campus or near-campus housing solutions. While the bill does not allocate new resources, it may increase the return on existing state investments by unlocking shovel-ready development sites.
6. Maintains discretion for locally elected governing boards while accelerating housing solutions. Unlike UC and CSU, which are governed by state-appointed boards, CCCs are governed by locally elected boards of trustees. This bill retains those governance structures and places the zoning exemption in their hands. As a result, housing projects would still need to undergo local board deliberation and approval, ensuring that decisions are made transparently and reflect district-level priorities. This structure balances the urgency of student housing needs with democratic accountability in local communities.
7. Implementation details—such as affordability thresholds or project eligibility criteria—may merit future clarification. Although the bill is framed as a response to student housing insecurity, it does not impose rent caps, income eligibility standards, or occupancy requirements tied to student enrollment. From a policy perspective, it may be worth considering whether future legislation or program guidelines should define affordability parameters to ensure alignment with basic needs strategies and prevent unintended diversion of public land for market-rate development.
8. Double referral to Local Government Committee will allow for fuller review of zoning and land use implications. While this committee’s focus is on higher education policy, including student success, affordability, and institutional parity across segments, this bill is double-referred and will next be considered by the Senate Local Government Committee. That committee is best positioned to examine the bill’s land use and zoning implications, including concerns raised by local governments—such as those outlined in the opposition letter from the City of Cupertino—related to general plan consistency, Regional Housing Needs Allocation accounting, fair housing obligations, and governance capacity of CCDs in the land use context.

SUPPORT

Abundant Housing LA (Co-Sponsor)
Los Angeles Community College District (Co-Sponsor)
Santa Monica Community College District (Co-Sponsor)
Student Homes Coalition (Co-Sponsor)
Associated General Contractors, California Chapters
Association of California Community College Administrators
Cabrillo Community College District
California Apartment Association
California Community Colleges Chancellor's Office
California Yimby
Circulate San Diego
College of the Redwoods
Community College League of California
Community for Excellent Public Schools
Compton Community College District
Cuesta College
Foothill-De Anza Community College District
Los Rios Community College District
Power CA Action
San Diego Community College District
San Diego Housing Federation
San Diego Unified School District
SPUR
Student Senate for California Community Colleges
The Two Hundred for Homeownership

OPPOSITION

City of Cupertino

-- END --

ASSEMBLY THIRD READING

ATR Bill Id:AB 648

Author:(Zbur)

As Amended Ver:May 05, 2025

Majority vote

SUMMARY

Exempts the construction of faculty and staff housing projects, student housing projects, and university housing development projects, as defined, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a community college district (CCD) if specific requirements are met.

Major Provisions

1. Stipulates that, notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a CCD, if the parcel on which the project will be constructed meets either of the following requirements:
   1. The parcel is contained either wholly or partially within a one-half mile radius of a main campus, as specified; and,
   2. The parcel is contained either wholly or partially within a one-half mile radius of a satellite campus that existed before July 1, 2025.
2. Defines the following terms for purposes of this measure:
   1. "Faculty and staff housing project" has the same meaning as set forth in Section 21080.58 of the Public Resources Code (PRC);
   2. "Student housing project" has the same meaning as set forth in Section 21080.58 of the PRC; and,
   3. "University housing development project" has the same meaning as set forth in Section 21080.58 of the PRC.
3. Finds and declares that the construction of a faculty and staff housing project, student housing project, or university housing development project on property owned or leased by a CCD is a state priority to address California's growing affordable housing shortage and its impact on students, is consistent with the state's development and funding of a holistic, student-centered, affordability and basic needs infrastructure, furthers the state's interest in advancing economic development through education and training, is a matter of statewide concern, and is not a municipal affair, as defined in Section 5 of Article XI of the California Constitution. Therefore, Section 1 of this act adding Section 81055 to the Education Code applies to all cities, including charter cities.

COMMENTS

This measure seeks to provide parity to the CCC and that of the California State University (CSU) and University of California (UC), by exempting the construction of faculty and staff housing projects, student housing projects, and university housing development projects, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a CCD.

The author intends not to infringe upon any existing building requirements, just to provide flexibility to the existing zoning regulations.

Student housing crisis. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst's Office (LAO), student housing insecurity can refer to a range of challenges related to student's living arrangements. At California's higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use "homelessness" to refer more specifically to lacking a stable place to stay at night. The segments' definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends ("couch surfing"), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).

According to LAO, roughly 60% of California's community college students have faced housing insecurity and almost 25% have experienced homelessness.

According to the Author

According to the author, "this bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California's community college students face some of the highest rates of housing insecurity and homelessness in the state.

The author contends that, "with over 70% of CCC students coming from diverse backgrounds, the system has become a critical pathway for marginalized populations seeking access to higher education and economic mobility. By removing barriers to building community college student housing, this bill will help address the housing insecurity experienced by marginalized students."

Arguments in Support

According to the Santa Monica Community College District (SMCCD), co-sponsors of this measure, "this bill will combat housing insecurity and homelessness among community college students while also addressing California's broader housing crisis by increasing the supply of affordable housing in local communities. The bill will streamline the construction of student housing at CCC by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a CCD, the same exemption CCDs already have for classroom facilities."

Additionally, SMCCD states that, "this bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. This will give CCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California."

Arguments in Opposition

According to the League of California Cities (Cal Cities) and the California State Association of Counties (CSAC) in their oppose unless amended letter, "existing law allows land owned or leased by the University of California (UC) or California State Universities (CSU) to bypass local zoning. These entities are owned by the state. However, community colleges are not. It is also important to note that Government Code Section 65913.6 provides specific conditions that student housing must comply with, and AB 648 does not have the same conditions for community college districts. The author should consider harmonizing what is required for UCs and CSUs in this bill."

Further, Cal Cities and CSAC contend that, "at a minimum, the proposal should require community college districts to consult with local planning staff and follow the adopted local general plan and their respective zoning regulations regarding where housing can or cannot be developed. In addition, we would encourage the author to allow local jurisdictions to include student housing in their RHNA progress to account for the efforts at the local level to site and plan for affordable student, faculty, and staff housing."

FISCAL COMMENTS

Unknown. This measure is keyed non-fiscal by the Legislative Counsel.

VOTES

ASM HIGHER EDUCATION: 7-3-0

YES: Fong, Boerner, Jackson, Muratsuchi, Patel, Celeste Rodriguez, Sharp-Collins

NO: DeMaio, Essayli, Jeff Gonzalez

ASM LOCAL GOVERNMENT: 9-0-1

YES: Carrillo, Hoover, Pacheco, Ramos, Ransom, Blanca Rubio, Stefani, Ward, Wilson

ABS, ABST OR NV: Ta

UPDATED

VERSION: May 05, 2025

CONSULTANT: Jeanice Warden / HIGHER ED. / (916) 319-3960 FN: 0000336

Date of Hearing: April 30, 2025

ASSEMBLY COMMITTEE ON LOCAL GOVERNMENT

Juan Carrillo, Chair

ABPCA Bill Id:AB 648 (

Author:Zbur) – As Introduced Ver:February 13, 2025

SUBJECT: Community colleges: housing: local zoning regulations: exemption

SUMMARY: Exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a community college district (CCD). Specifically, this bill:

1. Provides that, notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a CCD.
2. Defines the following terms for purposes of this bill:
   1. “Faculty and staff housing project” means one or more housing facilities to be occupied by faculty or staff of one or more campuses, and owned by a public university, including dining, academic, and faculty and staff support service spaces and other necessary and usual attendant and related facilities and equipment;
   2. “Student housing project” means one or more housing facilities to be occupied by students of one or more campuses and owned by a public university, including dining, academic and student support service spaces, and other necessary and usual attendant and related facilities and equipment;
   3. “University housing development project” means a student housing project or a faculty and staff housing project that is not located, in whole or in part, on a site that is prime farmland or farmland of statewide importance, wetlands, within a very high fire hazard severity zone, a hazardous waste site or hazardous substances release site, within a delineated earthquake fault zone, within a special flood hazard area, within a regulatory floodway, lands identified for conservation, habitat for protected species, or lands under conservation easement, as specified.
3. Finds and declares that the construction of a faculty and staff housing project, student housing project, or university housing development project on property owned or leased by a CCD is a state priority to address California’s growing affordable housing shortage and its impact on students, is consistent with the state’s development and funding of a holistic, student-centered, affordability and basic needs infrastructure, furthers the state’s interest in advancing economic development through education and training, is a matter of statewide concern, and is not a municipal affair, as defined in Section 5 of Article XI of the California Constitution. Therefore, this bill applies to all cities, including charter cities.

EXISTING LAW:

1. Requires each county or city to adopt a general plan for the physical development of the county or city and authorizes the adoption and administration of zoning laws, ordinances, rules, and regulations by cities and counties. (Government Code § 65300)
2. Requires the general plan to contain seven mandatory elements: land use, circulation, housing, conservation, open-space, noise, and safety. (Government Code § 65302)
3. Requires a county or city’s housing element to be updated every five or every eight years, depending on the jurisdiction. (Government Code § 65588)
4. Requires county or city zoning ordinances to be consistent with the general plan of the county or city. (Government Code § 65860)
5. Authorizes the legislative body of any county or city to adopt ordinances that regulate the use of buildings, structures, and land as between industry, business, residences, open space, including agriculture, recreation, enjoyment of scenic beauty, use of natural resources, and other purposes. (Government Code § 65850)
6. Establishes the California Community Colleges (CCC) as a postsecondary education system in this state, under the administration of the Board of Governors; and, specifies that the CCC consist of CCDs. (Education Code § 70900)
7. Provides that every CCD is under the control of a board of trustees, referred to as a “governing board.” The governing board of each CCD is required to establish, maintain, operate, and govern one or more community colleges in accordance with law. In so doing, the governing board may initiate and carry on any program, activity, or may otherwise act in any manner that is not in conflict with or inconsistent with, or preempted by, any law and that is not in conflict with the purposes for which community college districts are established. (Education Code § 70902)
8. Authorizes any CCD to enter into leases and agreements relating to real property and buildings to be used by the district. (Education Code § 81330)
9. Authorizes the governing board of a school district, by a vote of two-thirds of its members, to render a city or county zoning ordinance inapplicable to a proposed use of property by the school district. The governing board of the school district may not take this action when the proposed use of the property by the school district is for nonclassroom facilities, including, but not limited to, warehouses, administrative buildings, and automotive storage and repair buildings. (Government Code § 53094)

FISCAL EFFECT: None.

COMMENTS:

1. Bill Summary and Author’s Statement. This bill exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a CCD.

According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”

This bill is sponsored by Santa Monica College, LA Community College District, Abundant Housing LA, and the Student HOMES Coalition.

1. Police Power. The California Constitution allows cities and counties to “make and enforce within its limits, all local, police, sanitary and other ordinances and regulations not in conflict with general laws.” It is from this fundamental power (commonly called the police power) that cities and counties derive their authority to regulate behavior to preserve the health, safety, and welfare of the public—including land use authority.
2. Planning and Zoning Law. State law provides additional powers and duties for counties and cities regarding land use. Each city and county must prepare and periodically update a comprehensive, long-range general plan to guide future planning decisions. A general plan must contain seven mandatory elements, including a land use element and a housing element. Most of cities’ and counties’ major land use decisions – subdivisions, zoning, public works projects, use permits, etc. – must be consistent with their general plans. Development decisions must carry out and not obstruct a general plan’s policies.

The California Supreme Court has called the general plan “the constitution for all future development” because it presents a vision and a set of principles for future growth in the community. It serves an important role in shaping the location and type of development that will occur, ensuring that there is adequate infrastructure to support that development, providing adequate open space, and mitigating future risks from fire, floods, and climate change. Zoning ordinances then effectuate the requirements in the housing element and general plan. Those ordinances are specific where the general plan is not.

1. Local Zoning. Local governments use their police power to enact zoning ordinances that establish the types of land uses that are allowed or authorized in an area. Local zoning laws are a foundational tool that cities and counties use to ensure compatible land uses that are in alignment with their general plan. By designating specific areas for residential, commercial, industrial, and other uses, zoning helps maintain public health, safety, and quality of life—such as by preventing a factory from being sited next to a school or a nightclub next to a quiet residential block. These local controls also allow communities to plan infrastructure, transportation, and public services in a coherent way.

Zoning often identifies a primary use for parcels in the area, as well as other uses that are allowed if they meet conditions imposed by the local government. For example, an agricultural area may be zoned to allow agricultural uses “by right”—without local discretion—but also allow development of a single family home as an ancillary use, so that the farmer has a house to inhabit. Zoning ordinances also contain provisions to physically shape development and impose other requirements, such as setting maximum heights and densities for housing units, minimum numbers of required parking spaces, setbacks, and lot coverage ratios. These ordinances can also include conditions on development to address aesthetics, community impacts, or other particular site-specific considerations. While zoning laws must be consistent with the general plan they can, in practice, lag behind updates to the general plan.

1. Student Housing Crisis. California has 116 community colleges (CCs), organized into 73 CCDs. Of the 116 CCs, 12 currently offer student housing. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst’s Office (LAO), “Housing insecurity can refer to a range of challenges related to student’s living arrangements. At California’s higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use ‘homelessness’ to refer more specifically to lacking a stable place to stay at night. The segments’ definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends (‘couch surfing’), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).”

According to LAO’s report, 58% of California’s community college students have faced housing insecurity and 24% have experienced homelessness. However, it should be noted that the response rate of this survey was not reported, but LAO estimates the respondents reflect 6% of total headcount at participating colleges. According to the California Community Colleges Student Housing 2024 Report, more than 78% of California community colleges that currently offer housing also have students on waiting lists.

1. Rezoning for Housing. Many efforts have been undertaken, and are currently underway, to alter local zoning processes to encourage more housing.
   1. Rezoning for RHNA. Each city or county must show in its Housing Element how it will zone enough land to meet its share of housing units, based on the Regional Housing Needs Allocation (RHNA). RHNA is set using state and regional data and includes targets for very low-, low-, moderate-, and above moderate-income housing. If a jurisdiction’s Housing Element does not identify enough existing, properly zoned sites to accommodate its RHNA, the Housing Element must have a program to rezone properties for housing to make up for the shortfall within a certain timeframe (typically three years). If a local government fails to complete the rezoning by the deadline, HCD may decertify a housing element and may refer the jurisdiction to the Attorney General.
   2. Legislative Efforts. AB 1398 (Bloom) of 2021 required expedited rezoning for local jurisdictions that fail to adopt a legally compliant housing element within 120 days of the statutory deadline.

SB 330 (Skinner) of 2019, the Housing Crisis Act, restricted, for a period of five years, actions by cities and counties that would reduce the production of housing, including by changing the general plan, land use designation, or zoning of a parcel to a less intensive use.

SB 35 (Wiener) of 2017 established a streamlined, ministerial review process for certain multifamily affordable housing projects that are proposed in local jurisdictions that have not met regional housing needs, until 2026.

SB 9 (Atkins, et al.) of 2021 required ministerial approval of housing developments with two units (duplexes) and subdivision maps that meet certain conditions, and increases the length of time that cities and counties can extend the validity of existing subdivision maps.

SB 10 (Wiener) of 2021 authorized a city or county to pass an ordinance that is not subject to the California Environmental Quality Act (CEQA) to upzone any parcel for up to ten units of residential density if the parcel is located in a transit-rich area or an urban infill site.

AB 2011 (Wicks) of 2022 enacted the "Affordable Housing and High Road Jobs Act of 2022", which created a ministerial, streamlined approval process for 100% affordable housing projects in commercial zones and for mixed-income housing projects along commercial corridors, as specified. The bill also imposed specified labor standards on those projects, including requirements that contractors pay prevailing wages, participate in apprenticeship programs, and make specified healthcare expenditures.

1. CCDs Compared to UCs and CSUs. The California Constitution and existing law treats UCs, CSUs, and CCDs differently.
   1. UCs. UCs are constitutionally created and therefore have full powers of organization and government. As such, the UC is not subject to regulations of local governments, such as city and county general plans and land use and zoning policies, when using the property under the UC’s control in furtherance of the UC’s academic mission. This applies to property owned or leased, regardless of location. This was held up in court in 2024 in The Regents of the University of California v. Superior Court, in which the Court of Appeal concluded that construction of a new hospital at the UCSF Parnassus Heights campus would advance the university’s academic missions and educational purpose, and therefore was immune from local building and zoning regulations. However, it is important to note that most UCs are incorporated into the local city and have zoning agreements with the city. Further, many campuses have additional memorandums of understanding (MOUs) about housing and utilities in addition to zoning.
   2. CSUs. The CSU system, while not constitutionally created, is a state entity established to serve a statewide public purpose. Therefore, CSUs, like UCs, are generally not subject to local zoning regulations when carrying out governmental functions aligned with their mission, unless the Legislature specifies otherwise [Hall v. City of Taft (1956) 47 Cal. 2d 177, 183.]. As described in the CSU CEQA Guidebook from 2019, “whether the CSU enjoys immunity in a particular case will always depend on whether the project is sufficiently related to the governmental purposes of the CSU (e.g., construction and maintenance of its buildings and housing facilities) and the nature of the activity being regulated. (See City of Malibu v. Santa Monica Mts. Conservancy (2002) 98 Cal. App. 4th 1379, 1383; Bame v. City of Del Mar (2001) 86 Cal. App. 4th 1346, 1358; Regents of University of California v. City of Santa Monica (1978) 77 Cal. App. 3d 130, 136- 137; Board of Trustees v. City of Los Angeles (1975) 49 Cal. App. 3d 45, 49-50.) Such immunity may also be transferred to a lessee if the activity to be regulated is in furtherance of the CSU’s governmental purposes. (See Bame, 86 Cal. App. 4th at 1358; Board of Trustees, 49 Cal. App. 4th at 48-49; 57 Ops. Cal. Atty. Gen. 124 (1974); 68 Ops. Cal. Att. Gen. 114 (1985).)”

Housing or other development projects by a UC or CSU remain subject to state-level environmental review under the California Environmental Quality Act (CEQA).

• 1. CCDs. In contrast to UCs and CSUs, CCDs are not state entities. At the highest administrative level, UCs are governed by a Board of Regents, CSUs by a Board of Trustees, and CCDs by a Board of Governors. All three boards are largely appointed by the Governor, but the UC Regents and CSU Trustees require confirmation by the Legislature, while the CCD Governors do not. While the UC and CSU systems operate as centralized state agencies with broad statewide mandates and relatively autonomous Boards, CCDs are designed to reflect and respond to the specific needs of the regions they serve.

The statewide Board of Governors of the California Community Colleges provides guidance and regulatory oversight, but it does not have the same centralized control as the UC Regents or CSU Trustees. Instead, the Board of Governors sets broad policy, while individual CCDs retain significant autonomy. Each CCD is under control of a Board of Trustees (also called a governing board), which consists of locally elected officials. Each district's locally elected Board makes critical decisions about budgets, educational programs, and facilities, often in direct consultation with local agencies and civic organizations.

1. Policy Considerations. The Committee may wish to consider the following:
2. Whether it is reasonable to extend similar, and more permissive, land use authority to CCDs as held by UCs and CSUs, given that UCs and CSUs are state agencies, while CCDs are primarily governed at the local level.
3. Whether incompatible land uses, such as agricultural and residential activity near one another, may occur if CCDs are authorized to build housing on any land they own or lease, regardless of local zoning laws.
4. Several sponsors and supporters of this bill have stated, “The bill will streamline the construction of student housing at California Community Colleges (CCC) by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a California Community College District (CCCD), the same exemption CCCDs already have for classroom facilities.” It is unclear whether existing law, which exempts school districts’ classroom facilities from local zoning laws (Government Code § 53094), applies to CCDs, or only to K-12 school districts and County Offices of Education.
5. Committee Amendments. In order to address some of the policy considerations raised above, the Committee may wish to consider the following amendment:

81055. (b) Notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a community college district, if the parcel meets either of the following requirements:

1. The parcel is contained either wholly or partially within a one-half mile radius of a “main campus,” as defined by Section 94849 of the Education Code;
2. The parcel is contained either wholly or partially within a one-half mile radius of a satellite campus that existed before July 1, 2025.
3. Related Legislation. AB 893 (Fong) expands the eligibility for a streamlined, ministerial approval for a development project to include developments located in a campus development zone, as defined, as long as the development meets certain affordability requirements and objective standards. This bill is pending in this Committee.

AB 1021 (Wicks) makes a number of changes to AB 2295 (Bloom), Chapter 652, Statutes of 2022, which authorized a housing development project as an allowable use on any real property owned by a local educational agency (LEA), and exempts these housing development projects from the California Environmental Quality Act (CEQA). This bill is pending in this Committee.

1. Previous Legislation. AB 2243 (Wicks), Chapter 272, Statutes of 2024, made changes to the Affordable Housing and High Road Jobs Act.

AB 2011 (Wicks), Chapter 647, Statutes of 2022. Created the Affordable Housing and High Road Jobs Act, which deems the development of 100% affordable and qualifying mixed-income housing development projects that are located in commercial corridors and zoning districts to be a use by right and requires local agencies to approve these projects ministerially if certain development and workforce criteria are met.

1. Arguments in Support. According to Santa Monica College, sponsor of this bill, “Community college students often lack basic housing security… While there are multiple factors contributing to this crisis, one that cannot be ignored (and can easily be remedied) is the ease with which educational institutions can build student housing. The CSU and UC systems have long had the authority to build student and staff housing regardless of how a property is zoned, but CCCs have never been given the same authority. This has led to difficulty moving forward with much needed community college housing projects. With over half of CCC students experiencing housing insecurity, it is imperative that the state allow CCCs to increase the student housing supply as quickly as possible.

“This bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. Locally elected community college governing boards will still be responsible for making the final approval of proposed student housing projects for their districts. This will give CCCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California...”

YIMBY Action states, “By exempting these critical projects from local zoning regulations, the bill ensures that much-needed housing can be built more efficient reducing costs and delays. This approach supports students and educational staff while advancing the state’s broader goals of increasing housing supply and affordability…

“California’s severe housing shortage is causing skyrocketing homelessness and poverty, crippling our economy, and exacerbating our global climate crisis. These impacts fall disproportionately on California’s low-income workers and families and disproportionately affect communities of color. AB 648 will help address the housing shortage and ensure a welcoming California where everyone can thrive.”

1. Arguments in Opposition. League of California Cities and the California State Association of Counties (CSAC), state, “A one-size-fits-all approach to local zoning will not achieve our shared goals. Under existing law, all congregate housing, such as college dorms and similar housing does not count for local government's progress in achieving their Regional Housing Needs Allocation (RHNA) process, even though local governments diligently work with state and local community colleges and universities to site for and plan to develop affordable student housing.

“Additionally, while the University of California and California State Universities are governed by board’s controlled by the state, community college boards are made up of locally elected individuals which are primarily responsible to the constituents of the district they represent. The state’s decision in 2023 (AB 358, Addis) to remove community colleges from having to comply with the Field Act’s requirement to have their facilities construction plans reviewed by the state Department of General Services indicates a state desire to relinquish direct oversight of these types of projects. However, we believe it is prudent for cities and counties to retain their oversight role of the land use process to take over the role the state recently abdicated itself from. Retaining local land use authority that county Board’s of Supervisors and City Councils have under existing law would provide an effective partner that could work with their local Community College Board that is pursuing a housing development to ensure the community benefits from the proposed housing.

“This measure would extend the exemptions to community college districts’ land owned or leased by the local jurisdiction without specifying the development must comply with general plan requirements. The general plan is the blueprint for local jurisdictions and is important for local governments to plan for smart economic growth and residential development. By exempting any lands owned or leased from local zoning regulations, local governments cannot account for their multiple-year process to plan for and develop the community. In addition, local community college districts do not have planners on staff with experience that can balance the needs of local communities and the campus. Further, state housing laws require local governments to affirmatively further fair housing by working to prevent the concentration of housing for specific groups in a single area. The broad exemptions provided in this bill favors the development of housing for one group, community college students over others, which is the antithesis of affirmatively further fair housing.

“To further improve the law, our organizations recommend that the author remove the language to include land leased to the community college to be exempt from local zoning regulations and require the development to comply with local general plan and zoning requirements. At a minimum, the proposal should require community college districts to consult with local planning staff and follow the adopted local general plan and their respective zoning regulations regarding where housing can or cannot be developed. In addition, Cal Cities would encourage the author to allow local jurisdictions to include student housing in their RHNA progress to account for the efforts at the local level to site and plan for affordable student, faculty, and staff housing.”

1. Double Referred. This bill is double-referred to the Higher Education Committee, where it passed on a vote of 7-3 on March 18, 2025.

REGISTERED SUPPORT / OPPOSITION:

Support

Santa Monica Community College District [SPONSOR]

Los Angeles Community College District [CO-SPONSOR]

Abundant Housing LA [CO-SPONSOR]

Student HOMES Coalition [CO-SPONSOR]
Allan Hancock College
Antelope Valley Community College District
Associated General Contractors of California
Cabrillo Community College District
California Apartment Association
California Community Colleges Chancellor's Office
California Yimby
Cerritos College
Chabot Las Positas Community College District
Circulate San Diego
City of Santa Monica
Coast Community College District
Community College League of California
Community for Excellent Public Schools
Compton Community College District
Construction Employers' Association
Contra Costa Community College District

Cuesta College
East Bay Yimby
El Camino Community College District
Genup
Grow the Richmond
Los Angeles City College (LACC)
Los Angeles Pierce College
Los Rios Community College District
Mountain View Yimby
Napa-Solano for Everyone
Northern Neighbors
Peninsula for Everyone
Power CA Action
Rio Hondo College
Riverside Community College District
San Bernardino Community College District
San Diego Community College District
San Diego Unified School District
Santa Cruz Yimby
Santa Monica College Associated Students
Santa Monica Forward
Santa Rosa Yimby
Santiago Canyon College
Seed House Project
SF Yimby
South Bay Yimby
Spur
Streets for All
Student Senate for California Community Colleges
The Two Hundred
Ventura County Yimby
Victor Valley Community College District
Welcoming Neighbors Home
Yimby Action
Yimby LA
Yimby SLO

Opposition

California State Association of Counties (unless amended)
League of California Cities (unless amended)

Analysis Prepared by: Julia Mouat / L. GOV. / (916) 319-3958

Date of Hearing: April 23, 2025

ASSEMBLY COMMITTEE ON LOCAL GOVERNMENT

Juan Carrillo, Chair

ABPCA Bill Id:AB 648 (

Author:Zbur) – As Introduced Ver:February 13, 2025

SUBJECT: Community colleges: housing: local zoning regulations: exemption

SUMMARY: Exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a community college district (CCD). Specifically, this bill:

1. Provides that, notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a CCD.
2. Defines the following terms for purposes of this bill:
   1. “Faculty and staff housing project” means one or more housing facilities to be occupied by faculty or staff of one or more campuses, and owned by a public university, including dining, academic, and faculty and staff support service spaces and other necessary and usual attendant and related facilities and equipment;
   2. “Student housing project” means one or more housing facilities to be occupied by students of one or more campuses and owned by a public university, including dining, academic and student support service spaces, and other necessary and usual attendant and related facilities and equipment;
   3. “University housing development project” means a student housing project or a faculty and staff housing project that is not located, in whole or in part, on a site that is prime farmland or farmland of statewide importance, wetlands, within a very high fire hazard severity zone, a hazardous waste site or hazardous substances release site, within a delineated earthquake fault zone, within a special flood hazard area, within a regulatory floodway, lands identified for conservation, habitat for protected species, or lands under conservation easement, as specified.
3. Finds and declares that the construction of a faculty and staff housing project, student housing project, or university housing development project on property owned or leased by a CCD is a state priority to address California’s growing affordable housing shortage and its impact on students, is consistent with the state’s development and funding of a holistic, student-centered, affordability and basic needs infrastructure, furthers the state’s interest in advancing economic development through education and training, is a matter of statewide concern, and is not a municipal affair, as defined in Section 5 of Article XI of the California Constitution. Therefore, this bill applies to all cities, including charter cities.

EXISTING LAW:

1. Requires each county or city to adopt a general plan for the physical development of the county or city and authorizes the adoption and administration of zoning laws, ordinances, rules, and regulations by cities and counties. (Government Code § 65300)
2. Requires the general plan to contain seven mandatory elements: land use, circulation, housing, conservation, open-space, noise, and safety. (Government Code § 65302)
3. Requires a county or city’s housing element to be updated every five or every eight years, depending on the jurisdiction. (Government Code § 65588)
4. Requires county or city zoning ordinances to be consistent with the general plan of the county or city. (Government Code § 65860)
5. Authorizes the legislative body of any county or city to adopt ordinances that regulate the use of buildings, structures, and land as between industry, business, residences, open space, including agriculture, recreation, enjoyment of scenic beauty, use of natural resources, and other purposes. (Government Code § 65850)
6. Establishes the California Community Colleges (CCC) as a postsecondary education system in this state, under the administration of the Board of Governors; and, specifies that the CCC consist of CCDs. (Education Code § 70900)
7. Provides that every CCD is under the control of a board of trustees, referred to as a “governing board.” The governing board of each CCD is required to establish, maintain, operate, and govern one or more community colleges in accordance with law. In so doing, the governing board may initiate and carry on any program, activity, or may otherwise act in any manner that is not in conflict with or inconsistent with, or preempted by, any law and that is not in conflict with the purposes for which community college districts are established. (Education Code § 70902)
8. Authorizes any CCD to enter into leases and agreements relating to real property and buildings to be used by the district. (Education Code § 81330)
9. Authorizes the governing board of a school district, by a vote of two-thirds of its members, to render a city or county zoning ordinance inapplicable to a proposed use of property by the school district. The governing board of the school district may not take this action when the proposed use of the property by the school district is for nonclassroom facilities, including, but not limited to, warehouses, administrative buildings, and automotive storage and repair buildings. (Government Code § 53094)

FISCAL EFFECT: None.

COMMENTS:

1. Bill Summary and Author’s Statement. This bill exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a CCD.

According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”

This bill is sponsored by Santa Monica College, LA Community College District, Abundant Housing LA, and the Student HOMES Coalition.

1. Police Power. The California Constitution allows cities and counties to “make and enforce within its limits, all local, police, sanitary and other ordinances and regulations not in conflict with general laws.” It is from this fundamental power (commonly called the police power) that cities and counties derive their authority to regulate behavior to preserve the health, safety, and welfare of the public—including land use authority.
2. Planning and Zoning Law. State law provides additional powers and duties for counties and cities regarding land use. Each city and county must prepare and periodically update a comprehensive, long-range general plan to guide future planning decisions. A general plan must contain seven mandatory elements, including a land use element and a housing element. Most of cities’ and counties’ major land use decisions – subdivisions, zoning, public works projects, use permits, etc. – must be consistent with their general plans. Development decisions must carry out and not obstruct a general plan’s policies.

The California Supreme Court has called the general plan “the constitution for all future development” because it presents a vision and a set of principles for future growth in the community. It serves an important role in shaping the location and type of development that will occur, ensuring that there is adequate infrastructure to support that development, providing adequate open space, and mitigating future risks from fire, floods, and climate change. Zoning ordinances then effectuate the requirements in the housing element and general plan. Those ordinances are specific where the general plan is not.

1. Local Zoning. Local governments use their police power to enact zoning ordinances that establish the types of land uses that are allowed or authorized in an area. Local zoning laws are a foundational tool that cities and counties use to ensure compatible land uses that are in alignment with their general plan. By designating specific areas for residential, commercial, industrial, and other uses, zoning helps maintain public health, safety, and quality of life—such as by preventing a factory from being sited next to a school or a nightclub next to a quiet residential block. These local controls also allow communities to plan infrastructure, transportation, and public services in a coherent way.

Zoning often identifies a primary use for parcels in the area, as well as other uses that are allowed if they meet conditions imposed by the local government. For example, an agricultural area may be zoned to allow agricultural uses “by right”—without local discretion—but also allow development of a single family home as an ancillary use, so that the farmer has a house to inhabit. Zoning ordinances also contain provisions to physically shape development and impose other requirements, such as setting maximum heights and densities for housing units, minimum numbers of required parking spaces, setbacks, and lot coverage ratios. These ordinances can also include conditions on development to address aesthetics, community impacts, or other particular site-specific considerations. While zoning laws must be consistent with the general plan they can, in practice, lag behind updates to the general plan.

1. Student Housing Crisis. California has 116 community colleges (CCs), organized into 73 CCDs. Of the 116 CCs, 12 currently offer student housing. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst’s Office (LAO), “Housing insecurity can refer to a range of challenges related to student’s living arrangements. At California’s higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use ‘homelessness’ to refer more specifically to lacking a stable place to stay at night. The segments’ definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends (‘couch surfing’), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).”

According to LAO’s report, 58% of California’s community college students have faced housing insecurity and 24% have experienced homelessness. However, it should be noted that the response rate of this survey was not reported, but LAO estimates the respondents reflect 6% of total headcount at participating colleges. According to the California Community Colleges Student Housing 2024 Report, more than 78% of California community colleges that currently offer housing also have students on waiting lists.

1. Rezoning for Housing. Many efforts have been undertaken, and are currently underway, to alter local zoning processes to encourage more housing.
   1. Rezoning for RHNA. Each city or county must show in its Housing Element how it will zone enough land to meet its share of housing units, based on the Regional Housing Needs Allocation (RHNA). RHNA is set using state and regional data and includes targets for very low-, low-, moderate-, and above moderate-income housing. If a jurisdiction’s Housing Element does not identify enough existing, properly zoned sites to accommodate its RHNA, the Housing Element must have a program to rezone properties for housing to make up for the shortfall within a certain timeframe (typically three years). If a local government fails to complete the rezoning by the deadline, HCD may decertify a housing element and may refer the jurisdiction to the Attorney General.
   2. Legislative Efforts. AB 1398 (Bloom) of 2021 required expedited rezoning for local jurisdictions that fail to adopt a legally compliant housing element within 120 days of the statutory deadline.

SB 330 (Skinner) of 2019, the Housing Crisis Act, restricted, for a period of five years, actions by cities and counties that would reduce the production of housing, including by changing the general plan, land use designation, or zoning of a parcel to a less intensive use.

SB 35 (Wiener) of 2017 established a streamlined, ministerial review process for certain multifamily affordable housing projects that are proposed in local jurisdictions that have not met regional housing needs, until 2026.

SB 9 (Atkins, et al.) of 2021 required ministerial approval of housing developments with two units (duplexes) and subdivision maps that meet certain conditions, and increases the length of time that cities and counties can extend the validity of existing subdivision maps.

SB 10 (Wiener) of 2021 authorized a city or county to pass an ordinance that is not subject to the California Environmental Quality Act (CEQA) to upzone any parcel for up to ten units of residential density if the parcel is located in a transit-rich area or an urban infill site.

AB 2011 (Wicks) of 2022 enacted the "Affordable Housing and High Road Jobs Act of 2022", which created a ministerial, streamlined approval process for 100% affordable housing projects in commercial zones and for mixed-income housing projects along commercial corridors, as specified. The bill also imposed specified labor standards on those projects, including requirements that contractors pay prevailing wages, participate in apprenticeship programs, and make specified healthcare expenditures.

1. CCDs Compared to UCs and CSUs. The California Constitution and existing law treats UCs, CSUs, and CCDs differently.
   1. UCs. UCs are constitutionally created and therefore have full powers of organization and government. As such, the UC is not subject to regulations of local governments, such as city and county general plans and land use and zoning policies, when using the property under the UC’s control in furtherance of the UC’s academic mission. This applies to property owned or leased, regardless of location. This was held up in court in 2024 in The Regents of the University of California v. Superior Court, in which the Court of Appeal concluded that construction of a new hospital at the UCSF Parnassus Heights campus would advance the university’s academic missions and educational purpose, and therefore was immune from local building and zoning regulations. However, it is important to note that most UCs are incorporated into the local city and have zoning agreements with the city. Further, many campuses have additional memorandums of understanding (MOUs) about housing and utilities in addition to zoning.
   2. CSUs. The CSU system, while not constitutionally created, is a state entity established to serve a statewide public purpose. Therefore, CSUs, like UCs, are generally not subject to local zoning regulations when carrying out governmental functions aligned with their mission, unless the Legislature specifies otherwise [Hall v. City of Taft (1956) 47 Cal. 2d 177, 183.]. As described in the CSU CEQA Guidebook from 2019, “whether the CSU enjoys immunity in a particular case will always depend on whether the project is sufficiently related to the governmental purposes of the CSU (e.g., construction and maintenance of its buildings and housing facilities) and the nature of the activity being regulated. (See City of Malibu v. Santa Monica Mts. Conservancy (2002) 98 Cal. App. 4th 1379, 1383; Bame v. City of Del Mar (2001) 86 Cal. App. 4th 1346, 1358; Regents of University of California v. City of Santa Monica (1978) 77 Cal. App. 3d 130, 136- 137; Board of Trustees v. City of Los Angeles (1975) 49 Cal. App. 3d 45, 49-50.) Such immunity may also be transferred to a lessee if the activity to be regulated is in furtherance of the CSU’s governmental purposes. (See Bame, 86 Cal. App. 4th at 1358; Board of Trustees, 49 Cal. App. 4th at 48-49; 57 Ops. Cal. Atty. Gen. 124 (1974); 68 Ops. Cal. Att. Gen. 114 (1985).)”

Housing or other development projects by a UC or CSU remain subject to state-level environmental review under the California Environmental Quality Act (CEQA).

• 1. CCDs. In contrast to UCs and CSUs, CCDs are not state entities. At the highest administrative level, UCs are governed by a Board of Regents, CSUs by a Board of Trustees, and CCDs by a Board of Governors. All three boards are largely appointed by the Governor, but the UC Regents and CSU Trustees require confirmation by the Legislature, while the CCD Governors do not. While the UC and CSU systems operate as centralized state agencies with broad statewide mandates and relatively autonomous Boards, CCDs are designed to reflect and respond to the specific needs of the regions they serve.

The statewide Board of Governors of the California Community Colleges provides guidance and regulatory oversight, but it does not have the same centralized control as the UC Regents or CSU Trustees. Instead, the Board of Governors sets broad policy, while individual CCDs retain significant autonomy. Each CCD is under control of a Board of Trustees (also called a governing board), which consists of locally elected officials. Each district's locally elected Board makes critical decisions about budgets, educational programs, and facilities, often in direct consultation with local agencies and civic organizations.

1. Policy Considerations. The Committee may wish to consider the following:
2. Whether it is reasonable to extend similar, and more permissive, land use authority to CCDs as held by UCs and CSUs, given that UCs and CSUs are state agencies, while CCDs are primarily governed at the local level.
3. Whether incompatible land uses, such as agricultural and residential activity near one another, may occur if CCDs are authorized to build housing on any land they own or lease, regardless of local zoning laws.
4. Several sponsors and supporters of this bill have stated, “The bill will streamline the construction of student housing at California Community Colleges (CCC) by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a California Community College District (CCCD), the same exemption CCCDs already have for classroom facilities.” It is unclear whether existing law, which exempts school districts’ classroom facilities from local zoning laws (Government Code § 53094), applies to CCDs, or only to K-12 school districts and County Offices of Education.
5. Committee Amendments. In order to address some of the policy considerations raised above, the Committee may wish to consider the following amendment:

81055. (b) Notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a community college district, if the parcel is contained either wholly or partially within a one-half mile radius of a “main campus,” as defined by Section 94849 of the Education Code.

1. Related Legislation. AB 893 (Fong) expands the eligibility for a streamlined, ministerial approval for a development project to include developments located in a campus development zone, as defined, as long as the development meets certain affordability requirements and objective standards. This bill is pending in this Committee.

AB 1021 (Wicks) makes a number of changes to AB 2295 (Bloom), Chapter 652, Statutes of 2022, which authorized a housing development project as an allowable use on any real property owned by a local educational agency (LEA), and exempts these housing development projects from the California Environmental Quality Act (CEQA). This bill is pending in this Committee.

1. Previous Legislation. AB 2243 (Wicks), Chapter 272, Statutes of 2024, made changes to the Affordable Housing and High Road Jobs Act.

AB 2011 (Wicks), Chapter 647, Statutes of 2022. Created the Affordable Housing and High Road Jobs Act, which deems the development of 100% affordable and qualifying mixed-income housing development projects that are located in commercial corridors and zoning districts to be a use by right and requires local agencies to approve these projects ministerially if certain development and workforce criteria are met.

1. Arguments in Support. According to Santa Monica College, sponsor of this bill, “Community college students often lack basic housing security… While there are multiple factors contributing to this crisis, one that cannot be ignored (and can easily be remedied) is the ease with which educational institutions can build student housing. The CSU and UC systems have long had the authority to build student and staff housing regardless of how a property is zoned, but CCCs have never been given the same authority. This has led to difficulty moving forward with much needed community college housing projects. With over half of CCC students experiencing housing insecurity, it is imperative that the state allow CCCs to increase the student housing supply as quickly as possible.

“This bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. Locally elected community college governing boards will still be responsible for making the final approval of proposed student housing projects for their districts. This will give CCCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California...”

YIMBY Action states, “By exempting these critical projects from local zoning regulations, the bill ensures that much-needed housing can be built more efficient reducing costs and delays. This approach supports students and educational staff while advancing the state’s broader goals of increasing housing supply and affordability…

“California’s severe housing shortage is causing skyrocketing homelessness and poverty, crippling our economy, and exacerbating our global climate crisis. These impacts fall disproportionately on California’s low-income workers and families and disproportionately affect communities of color. AB 648 will help address the housing shortage and ensure a welcoming California where everyone can thrive.”

1. Arguments in Opposition. League of California Cities and the California State Association of Counties (CSAC), state, “A one-size-fits-all approach to local zoning will not achieve our shared goals. Under existing law, all congregate housing, such as college dorms and similar housing does not count for local government's progress in achieving their Regional Housing Needs Allocation (RHNA) process, even though local governments diligently work with state and local community colleges and universities to site for and plan to develop affordable student housing.

“Additionally, while the University of California and California State Universities are governed by board’s controlled by the state, community college boards are made up of locally elected individuals which are primarily responsible to the constituents of the district they represent. The state’s decision in 2023 (AB 358, Addis) to remove community colleges from having to comply with the Field Act’s requirement to have their facilities construction plans reviewed by the state Department of General Services indicates a state desire to relinquish direct oversight of these types of projects. However, we believe it is prudent for cities and counties to retain their oversight role of the land use process to take over the role the state recently abdicated itself from. Retaining local land use authority that county Board’s of Supervisors and City Councils have under existing law would provide an effective partner that could work with their local Community College Board that is pursuing a housing development to ensure the community benefits from the proposed housing.

“This measure would extend the exemptions to community college districts’ land owned or leased by the local jurisdiction without specifying the development must comply with general plan requirements. The general plan is the blueprint for local jurisdictions and is important for local governments to plan for smart economic growth and residential development. By exempting any lands owned or leased from local zoning regulations, local governments cannot account for their multiple-year process to plan for and develop the community. In addition, local community college districts do not have planners on staff with experience that can balance the needs of local communities and the campus. Further, state housing laws require local governments to affirmatively further fair housing by working to prevent the concentration of housing for specific groups in a single area. The broad exemptions provided in this bill favors the development of housing for one group, community college students over others, which is the antithesis of affirmatively further fair housing.

“To further improve the law, our organizations recommend that the author remove the language to include land leased to the community college to be exempt from local zoning regulations and require the development to comply with local general plan and zoning requirements. At a minimum, the proposal should require community college districts to consult with local planning staff and follow the adopted local general plan and their respective zoning regulations regarding where housing can or cannot be developed. In addition, Cal Cities would encourage the author to allow local jurisdictions to include student housing in their RHNA progress to account for the efforts at the local level to site and plan for affordable student, faculty, and staff housing.”

1. Double Referred. This bill is double-referred to the Higher Education Committee, where it passed on a vote of 7-3 on March 18, 2025.

REGISTERED SUPPORT / OPPOSITION:

Support

Santa Monica Community College District [SPONSOR]

LA Community College District [CO-SPONSOR]

Abundant Housing LA [CO-SPONSOR]

Student HOMES Coalition [CO-SPONSOR]
Allan Hancock College
Antelope Valley Community College District
California Apartment Association
California Yimby
Cerritos College
Chabot Las Positas Community College District
Circulate San Diego
City of Santa Monica
Coast Community College District
Community for Excellent Public Schools
Compton Community College District
Construction Employers' Association
Contra Costa Community College District
East Bay Yimby
El Camino Community College District
Genup
Grow the Richmond
Los Angeles City College (LACC)
Los Angeles Pierce College
Los Rios Community College District
Mountain View Yimby
Napa-solano for Everyone
Northern Neighbors
Peninsula for Everyone
Power CA Action
Rio Hondo College
Riverside Community College District
San Bernardino Community College District
San Diego Community College District
San Diego Unified School District
Santa Cruz Yimby
Santa Monica College Associated Students
Santa Monica Forward
Santa Rosa Yimby
Santiago Canyon College, Orange, CA
Sf Yimby
South Bay Yimby
Spur
Streets for All
The Two Hundred
Ventura County Yimby
Victor Valley Community College District
Welcoming Neighbors Home
Yimby Action
Yimby LA
Yimby Slo

Opposition

California State Association of Counties (unless amended)
League of California Cities (unless amended)

Analysis Prepared by: Julia Mouat / L. GOV. / (916) 319-3958

Date of Hearing: April 23, 2025

ASSEMBLY COMMITTEE ON LOCAL GOVERNMENT

Juan Carrillo, Chair

ABPCA Bill Id:AB 648 (

Author:Zbur) – As Introduced Ver:February 13, 2025

SUBJECT: Community colleges: housing: local zoning regulations: exemption

SUMMARY: Exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a community college district (CCD). Specifically, this bill:

1. Provides that, notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a CCD.
2. Defines the following terms for purposes of this bill:
   1. “Faculty and staff housing project” means one or more housing facilities to be occupied by faculty or staff of one or more campuses, and owned by a public university, including dining, academic, and faculty and staff support service spaces and other necessary and usual attendant and related facilities and equipment;
   2. “Student housing project” means one or more housing facilities to be occupied by students of one or more campuses and owned by a public university, including dining, academic and student support service spaces, and other necessary and usual attendant and related facilities and equipment;
   3. “University housing development project” means a student housing project or a faculty and staff housing project that is not located, in whole or in part, on a site that is prime farmland or farmland of statewide importance, wetlands, within a very high fire hazard severity zone, a hazardous waste site or hazardous substances release site, within a delineated earthquake fault zone, within a special flood hazard area, within a regulatory floodway, lands identified for conservation, habitat for protected species, or lands under conservation easement, as specified.
3. Finds and declares that the construction of a faculty and staff housing project, student housing project, or university housing development project on property owned or leased by a CCD is a state priority to address California’s growing affordable housing shortage and its impact on students, is consistent with the state’s development and funding of a holistic, student-centered, affordability and basic needs infrastructure, furthers the state’s interest in advancing economic development through education and training, is a matter of statewide concern, and is not a municipal affair, as defined in Section 5 of Article XI of the California Constitution. Therefore, this bill applies to all cities, including charter cities.

EXISTING LAW:

1. Requires each county or city to adopt a general plan for the physical development of the county or city and authorizes the adoption and administration of zoning laws, ordinances, rules, and regulations by cities and counties. (Government Code § 65300)
2. Requires the general plan to contain seven mandatory elements: land use, circulation, housing, conservation, open-space, noise, and safety. (Government Code § 65302)
3. Requires a county or city’s housing element to be updated every five or every eight years, depending on the jurisdiction. (Government Code § 65588)
4. Requires county or city zoning ordinances to be consistent with the general plan of the county or city. (Government Code § 65860)
5. Authorizes the legislative body of any county or city to adopt ordinances that regulate the use of buildings, structures, and land as between industry, business, residences, open space, including agriculture, recreation, enjoyment of scenic beauty, use of natural resources, and other purposes. (Government Code § 65850)
6. Establishes the California Community Colleges (CCC) as a postsecondary education system in this state, under the administration of the Board of Governors; and, specifies that the CCC consist of CCDs. (Education Code § 70900)
7. Provides that every CCD is under the control of a board of trustees, referred to as a “governing board.” The governing board of each CCD is required to establish, maintain, operate, and govern one or more community colleges in accordance with law. In so doing, the governing board may initiate and carry on any program, activity, or may otherwise act in any manner that is not in conflict with or inconsistent with, or preempted by, any law and that is not in conflict with the purposes for which community college districts are established. (Education Code § 70902)
8. Authorizes any CCD to enter into leases and agreements relating to real property and buildings to be used by the district. (Education Code § 81330)
9. Authorizes the governing board of a school district, by a vote of two-thirds of its members, to render a city or county zoning ordinance inapplicable to a proposed use of property by the school district. The governing board of the school district may not take this action when the proposed use of the property by the school district is for nonclassroom facilities, including, but not limited to, warehouses, administrative buildings, and automotive storage and repair buildings. (Government Code § 53094)

FISCAL EFFECT: None.

COMMENTS:

1. Bill Summary and Author’s Statement. This bill exempts from a city’s or county’s local zoning regulations the construction of faculty, staff, and student housing projects when constructed on property owned or leased by a CCD.

According to the author, “This bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state. By eliminating zoning barriers to the construction of critical housing projects, California will take another bold step toward tackling our affordable housing crisis. Housing is a fundamental need for community college students and staff. This legislation will cut through red tape and ensure that students can focus on their studies, and staff can focus on their work, without the stress of not knowing where they will sleep at night.”

This bill is sponsored by Santa Monica College, LA Community College District, Abundant Housing LA, and the Student HOMES Coalition.

1. Police Power. The California Constitution allows cities and counties to “make and enforce within its limits, all local, police, sanitary and other ordinances and regulations not in conflict with general laws.” It is from this fundamental power (commonly called the police power) that cities and counties derive their authority to regulate behavior to preserve the health, safety, and welfare of the public—including land use authority.
2. Planning and Zoning Law. State law provides additional powers and duties for counties and cities regarding land use. Each city and county must prepare and periodically update a comprehensive, long-range general plan to guide future planning decisions. A general plan must contain seven mandatory elements, including a land use element and a housing element. Most of cities’ and counties’ major land use decisions – subdivisions, zoning, public works projects, use permits, etc. – must be consistent with their general plans. Development decisions must carry out and not obstruct a general plan’s policies.

The California Supreme Court has called the general plan “the constitution for all future development” because it presents a vision and a set of principles for future growth in the community. It serves an important role in shaping the location and type of development that will occur, ensuring that there is adequate infrastructure to support that development, providing adequate open space, and mitigating future risks from fire, floods, and climate change. Zoning ordinances then effectuate the requirements in the housing element and general plan. Those ordinances are specific where the general plan is not.

1. Local Zoning. Local governments use their police power to enact zoning ordinances that establish the types of land uses that are allowed or authorized in an area. Local zoning laws are a foundational tool that cities and counties use to ensure compatible land uses that are in alignment with their general plan. By designating specific areas for residential, commercial, industrial, and other uses, zoning helps maintain public health, safety, and quality of life—such as by preventing a factory from being sited next to a school or a nightclub next to a quiet residential block. These local controls also allow communities to plan infrastructure, transportation, and public services in a coherent way.

Zoning often identifies a primary use for parcels in the area, as well as other uses that are allowed if they meet conditions imposed by the local government. For example, an agricultural area may be zoned to allow agricultural uses “by right”—without local discretion—but also allow development of a single family home as an ancillary use, so that the farmer has a house to inhabit. Zoning ordinances also contain provisions to physically shape development and impose other requirements, such as setting maximum heights and densities for housing units, minimum numbers of required parking spaces, setbacks, and lot coverage ratios. These ordinances can also include conditions on development to address aesthetics, community impacts, or other particular site-specific considerations. While zoning laws must be consistent with the general plan they can, in practice, lag behind updates to the general plan.

1. Student Housing Crisis. California has 116 community colleges (CCs), organized into 73 CCDs. Of the 116 CCs, 12 currently offer student housing. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst’s Office (LAO), “Housing insecurity can refer to a range of challenges related to student’s living arrangements. At California’s higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use ‘homelessness’ to refer more specifically to lacking a stable place to stay at night. The segments’ definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends (‘couch surfing’), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).”

According to LAO’s report, 58% of California’s community college students have faced housing insecurity and 24% have experienced homelessness. However, it should be noted that the response rate of this survey was not reported, but LAO estimates the respondents reflect 6% of total headcount at participating colleges. According to the California Community Colleges Student Housing 2024 Report, more than 78% of California community colleges that currently offer housing also have students on waiting lists.

1. Rezoning for Housing. Many efforts have been undertaken, and are currently underway, to alter local zoning processes to encourage more housing.
   1. Rezoning for RHNA. Each city or county must show in its Housing Element how it will zone enough land to meet its share of housing units, based on the Regional Housing Needs Allocation (RHNA). RHNA is set using state and regional data and includes targets for very low-, low-, moderate-, and above moderate-income housing. If a jurisdiction’s Housing Element does not identify enough existing, properly zoned sites to accommodate its RHNA, the Housing Element must have a program to rezone properties for housing to make up for the shortfall within a certain timeframe (typically three years). If a local government fails to complete the rezoning by the deadline, HCD may decertify a housing element and may refer the jurisdiction to the Attorney General.
   2. Legislative Efforts. AB 1398 (Bloom) of 2021 required expedited rezoning for local jurisdictions that fail to adopt a legally compliant housing element within 120 days of the statutory deadline.

SB 330 (Skinner) of 2019, the Housing Crisis Act, restricted, for a period of five years, actions by cities and counties that would reduce the production of housing, including by changing the general plan, land use designation, or zoning of a parcel to a less intensive use.

SB 35 (Wiener) of 2017 established a streamlined, ministerial review process for certain multifamily affordable housing projects that are proposed in local jurisdictions that have not met regional housing needs, until 2026.

SB 9 (Atkins, et al.) of 2021 required ministerial approval of housing developments with two units (duplexes) and subdivision maps that meet certain conditions, and increases the length of time that cities and counties can extend the validity of existing subdivision maps.

SB 10 (Wiener) of 2021 authorized a city or county to pass an ordinance that is not subject to the California Environmental Quality Act (CEQA) to upzone any parcel for up to ten units of residential density if the parcel is located in a transit-rich area or an urban infill site.

AB 2011 (Wicks) of 2022 enacted the "Affordable Housing and High Road Jobs Act of 2022", which created a ministerial, streamlined approval process for 100% affordable housing projects in commercial zones and for mixed-income housing projects along commercial corridors, as specified. The bill also imposed specified labor standards on those projects, including requirements that contractors pay prevailing wages, participate in apprenticeship programs, and make specified healthcare expenditures.

1. CCDs Compared to UCs and CSUs. The California Constitution and existing law treats UCs, CSUs, and CCDs differently.
   1. UCs. UCs are constitutionally created and therefore have full powers of organization and government. As such, the UC is not subject to regulations of local governments, such as city and county general plans and land use and zoning policies, when using the property under the UC’s control in furtherance of the UC’s academic mission. This applies to property owned or leased, regardless of location. This was held up in court in 2024 in The Regents of the University of California v. Superior Court, in which the Court of Appeal concluded that construction of a new hospital at the UCSF Parnassus Heights campus would advance the university’s academic missions and educational purpose, and therefore was immune from local building and zoning regulations. However, it is important to note that most UCs are incorporated into the local city and have zoning agreements with the city. Further, many campuses have additional memorandums of understanding (MOUs) about housing and utilities in addition to zoning.
   2. CSUs. The CSU system, while not constitutionally created, is a state entity established to serve a statewide public purpose. Therefore, CSUs, like UCs, are generally not subject to local zoning regulations when carrying out governmental functions aligned with their mission, unless the Legislature specifies otherwise [Hall v. City of Taft (1956) 47 Cal. 2d 177, 183.]. As described in the CSU CEQA Guidebook from 2019, “whether the CSU enjoys immunity in a particular case will always depend on whether the project is sufficiently related to the governmental purposes of the CSU (e.g., construction and maintenance of its buildings and housing facilities) and the nature of the activity being regulated. (See City of Malibu v. Santa Monica Mts. Conservancy (2002) 98 Cal. App. 4th 1379, 1383; Bame v. City of Del Mar (2001) 86 Cal. App. 4th 1346, 1358; Regents of University of California v. City of Santa Monica (1978) 77 Cal. App. 3d 130, 136- 137; Board of Trustees v. City of Los Angeles (1975) 49 Cal. App. 3d 45, 49-50.) Such immunity may also be transferred to a lessee if the activity to be regulated is in furtherance of the CSU’s governmental purposes. (See Bame, 86 Cal. App. 4th at 1358; Board of Trustees, 49 Cal. App. 4th at 48-49; 57 Ops. Cal. Atty. Gen. 124 (1974); 68 Ops. Cal. Att. Gen. 114 (1985).)”

Housing or other development projects by a UC or CSU remain subject to state-level environmental review under the California Environmental Quality Act (CEQA).

• 1. CCDs. In contrast to UCs and CSUs, CCDs are not state entities. At the highest administrative level, UCs are governed by a Board of Regents, CSUs by a Board of Trustees, and CCDs by a Board of Governors. All three boards are largely appointed by the Governor, but the UC Regents and CSU Trustees require confirmation by the Legislature, while the CCD Governors do not. While the UC and CSU systems operate as centralized state agencies with broad statewide mandates and relatively autonomous Boards, CCDs are designed to reflect and respond to the specific needs of the regions they serve.

The statewide Board of Governors of the California Community Colleges provides guidance and regulatory oversight, but it does not have the same centralized control as the UC Regents or CSU Trustees. Instead, the Board of Governors sets broad policy, while individual CCDs retain significant autonomy. Each CCD is under control of a Board of Trustees (also called a governing board), which consists of locally elected officials. Each district's locally elected Board makes critical decisions about budgets, educational programs, and facilities, often in direct consultation with local agencies and civic organizations.

1. Policy Considerations. The Committee may wish to consider the following:
2. Whether it is reasonable to extend similar, and more permissive, land use authority to CCDs as held by UCs and CSUs, given that UCs and CSUs are state agencies, while CCDs are primarily governed at the local level.
3. Whether incompatible land uses, such as agricultural and residential activity near one another, may occur if CCDs are authorized to build housing on any land they own or lease, regardless of local zoning laws.
4. Several sponsors and supporters of this bill have stated, “The bill will streamline the construction of student housing at California Community Colleges (CCC) by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a California Community College District (CCCD), the same exemption CCCDs already have for classroom facilities.” It is unclear whether existing law, which exempts school districts’ classroom facilities from local zoning laws (Government Code § 53094), applies to CCDs, or only to K-12 school districts and County Offices of Education.
5. Committee Amendments. In order to address some of the policy considerations raised above, the Committee may wish to consider the following amendment:

81055. (b) Notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a community college district, if the parcel is contained either wholly or partially within a one-half mile radius of a “main campus,” as defined by Section 94849 of the Education Code.

1. Related Legislation. AB 893 (Fong) expands the eligibility for a streamlined, ministerial approval for a development project to include developments located in a campus development zone, as defined, as long as the development meets certain affordability requirements and objective standards. This bill is pending in this Committee.

AB 1021 (Wicks) makes a number of changes to AB 2295 (Bloom), Chapter 652, Statutes of 2022, which authorized a housing development project as an allowable use on any real property owned by a local educational agency (LEA), and exempts these housing development projects from the California Environmental Quality Act (CEQA). This bill is pending in this Committee.

1. Previous Legislation. AB 2243 (Wicks), Chapter 272, Statutes of 2024, made changes to the Affordable Housing and High Road Jobs Act.

AB 2011 (Wicks), Chapter 647, Statutes of 2022. Created the Affordable Housing and High Road Jobs Act, which deems the development of 100% affordable and qualifying mixed-income housing development projects that are located in commercial corridors and zoning districts to be a use by right and requires local agencies to approve these projects ministerially if certain development and workforce criteria are met.

1. Arguments in Support. According to Santa Monica College, sponsor of this bill, “Community college students often lack basic housing security… While there are multiple factors contributing to this crisis, one that cannot be ignored (and can easily be remedied) is the ease with which educational institutions can build student housing. The CSU and UC systems have long had the authority to build student and staff housing regardless of how a property is zoned, but CCCs have never been given the same authority. This has led to difficulty moving forward with much needed community college housing projects. With over half of CCC students experiencing housing insecurity, it is imperative that the state allow CCCs to increase the student housing supply as quickly as possible.

“This bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. Locally elected community college governing boards will still be responsible for making the final approval of proposed student housing projects for their districts. This will give CCCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California...”

YIMBY Action states, “By exempting these critical projects from local zoning regulations, the bill ensures that much-needed housing can be built more efficient reducing costs and delays. This approach supports students and educational staff while advancing the state’s broader goals of increasing housing supply and affordability…

“California’s severe housing shortage is causing skyrocketing homelessness and poverty, crippling our economy, and exacerbating our global climate crisis. These impacts fall disproportionately on California’s low-income workers and families and disproportionately affect communities of color. AB 648 will help address the housing shortage and ensure a welcoming California where everyone can thrive.”

1. Arguments in Opposition. League of California Cities and the California State Association of Counties (CSAC), state, “A one-size-fits-all approach to local zoning will not achieve our shared goals. Under existing law, all congregate housing, such as college dorms and similar housing does not count for local government's progress in achieving their Regional Housing Needs Allocation (RHNA) process, even though local governments diligently work with state and local community colleges and universities to site for and plan to develop affordable student housing.

“Additionally, while the University of California and California State Universities are governed by board’s controlled by the state, community college boards are made up of locally elected individuals which are primarily responsible to the constituents of the district they represent. The state’s decision in 2023 (AB 358, Addis) to remove community colleges from having to comply with the Field Act’s requirement to have their facilities construction plans reviewed by the state Department of General Services indicates a state desire to relinquish direct oversight of these types of projects. However, we believe it is prudent for cities and counties to retain their oversight role of the land use process to take over the role the state recently abdicated itself from. Retaining local land use authority that county Board’s of Supervisors and City Councils have under existing law would provide an effective partner that could work with their local Community College Board that is pursuing a housing development to ensure the community benefits from the proposed housing.

“This measure would extend the exemptions to community college districts’ land owned or leased by the local jurisdiction without specifying the development must comply with general plan requirements. The general plan is the blueprint for local jurisdictions and is important for local governments to plan for smart economic growth and residential development. By exempting any lands owned or leased from local zoning regulations, local governments cannot account for their multiple-year process to plan for and develop the community. In addition, local community college districts do not have planners on staff with experience that can balance the needs of local communities and the campus. Further, state housing laws require local governments to affirmatively further fair housing by working to prevent the concentration of housing for specific groups in a single area. The broad exemptions provided in this bill favors the development of housing for one group, community college students over others, which is the antithesis of affirmatively further fair housing.

“To further improve the law, our organizations recommend that the author remove the language to include land leased to the community college to be exempt from local zoning regulations and require the development to comply with local general plan and zoning requirements. At a minimum, the proposal should require community college districts to consult with local planning staff and follow the adopted local general plan and their respective zoning regulations regarding where housing can or cannot be developed. In addition, Cal Cities would encourage the author to allow local jurisdictions to include student housing in their RHNA progress to account for the efforts at the local level to site and plan for affordable student, faculty, and staff housing.”

1. Double Referred. This bill is double-referred to the Higher Education Committee, where it passed on a vote of 7-3 on March 18, 2025.

REGISTERED SUPPORT / OPPOSITION:

Support

Santa Monica Community College District [SPONSOR]

LA Community College District [CO-SPONSOR]

Abundant Housing LA [CO-SPONSOR]

Student HOMES Coalition [CO-SPONSOR]
Allan Hancock College
Antelope Valley Community College District
California Apartment Association
California Yimby
Cerritos College
Chabot Las Positas Community College District
Circulate San Diego
City of Santa Monica
Coast Community College District
Community for Excellent Public Schools
Compton Community College District
Construction Employers' Association
Contra Costa Community College District
East Bay Yimby
El Camino Community College District
Genup
Grow the Richmond
Los Angeles City College (LACC)
Los Angeles Pierce College
Los Rios Community College District
Mountain View Yimby
Napa-solano for Everyone
Northern Neighbors
Peninsula for Everyone
Power CA Action
Rio Hondo College
Riverside Community College District
San Bernardino Community College District
San Diego Community College District
San Diego Unified School District
Santa Cruz Yimby
Santa Monica College Associated Students
Santa Monica Forward
Santa Rosa Yimby
Santiago Canyon College, Orange, CA
Sf Yimby
South Bay Yimby
Spur
Streets for All
The Two Hundred
Ventura County Yimby
Victor Valley Community College District
Welcoming Neighbors Home
Yimby Action
Yimby LA
Yimby Slo

Opposition

California State Association of Counties (unless amended)
League of California Cities (unless amended)

Analysis Prepared by: Julia Mouat / L. GOV. / (916) 319-3958

Date of Hearing: March 18, 2025

ASSEMBLY COMMITTEE ON HIGHER EDUCATION

Mike Fong, Chair

ABPCA Bill Id:AB 648 (

Author:Zbur) – As Introduced Ver:February 13, 2025

[Note: This bill is double referred to the Assembly Committee on Local Government and will be heard by that Committee as it relates to issues under its jurisdiction.]

SUBJECT: Community colleges: housing: local zoning regulations: exemption.

SUMMARY: Exempts the construction of faculty and staff housing projects, student housing projects, and university housing development projects, as defined, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a community college district (CCD). Specifically, this bill:

1. Stipulates that, notwithstanding any other law, the construction of a faculty and staff housing project, student housing project, or university housing development project shall be exempt from local zoning regulations of a city, county, or city and county when constructed on property owned or leased by a CCD.
2. Defines the following terms for purposes of this measure:
   1. “Faculty and staff housing project” has the same meaning as set forth in Section 21080.58 of the Public Resources Code (PRC);
   2. “Student housing project” has the same meaning as set forth in Section 21080.58 of the PRC; and,
   3. “University housing development project” has the same meaning as set forth in Section 21080.58 of the PRC.
3. Finds and declares that the construction of a faculty and staff housing project, student housing project, or university housing development project on property owned or leased by a CCD is a state priority to address California’s growing affordable housing shortage and its impact on students, is consistent with the state’s development and funding of a holistic, student-centered, affordability and basic needs infrastructure, furthers the state’s interest in advancing economic development through education and training, is a matter of statewide concern, and is not a municipal affair, as defined in Section 5 of Article XI of the California Constitution. Therefore, Section 1 of this act adding Section 81055 to the Education Code applies to all cities, including charter cities.

EXISTING LAW:

1. Establishes the California Community Colleges (CCC) as a postsecondary education system in this state, under the administration of the Board of Governors; and, specifies that the CCC consist of CCDs (Education Code (EC) Section 70900).
2. Establishes the mission and function of the CCC, which, in part is to: 1) offer academic and vocational instruction at the lower division level for both younger and older students, including those persons returning to school; 2) authorizes the CCC to grant the associate in arts and the associate in science degrees; 3) requires the CCC to offer English as a Second Language instruction, adult noncredit instruction, and support services which help students succeed at the postsecondary level; and, 4) advance California’s economic growth and global competitiveness through education, training, and services that contribute to continuous work force improvement (EC Section 66010.4).
3. Defines the following terms:
   1. “Faculty and staff housing project” to mean one or more housing facilities to be occupied by faculty or staff of one or more campuses, and owned by a public university, including dining, academic, and faculty and staff support service spaces and other necessary and usual attendant and related facilities and equipment;
   2. “Student housing project” to mean one or more housing facilities to be occupied by students of one or more campuses and owned by a public university, including dining, academic and student support service spaces, and other necessary and usual attendant and related facilities and equipment; and,
   3. “University housing development project” means a student housing project or a faculty and staff housing project that is not located, in whole or in part, on a site that is any of the following:
      1. Either prime farmland or farmland of statewide importance, as defined;
      2. Wetlands, as defined in the United States Fish and Wildlife Service Manual, Part 660 FW 2 (June 21, 1993);
      3. Within a very high fire hazard severity zone, as specified;
      4. Either a hazardous waste site as specified;
      5. Within a delineated earthquake fault zone as determined by the State Geologist in any official maps published by the State Geologist; and
      6. Within a special flood hazard area subject to inundation by a 1% annual chance flood (100-year flood) as determined by the Federal Emergency Management Agency in any official maps published by the Federal Emergency Management Agency (PRC Section 21080.58).

FISCAL EFFECT: Unknown. This measure is keyed non-fiscal by the Legislative Counsel.

COMMENTS: Purpose of the measure. According to the author, “this bill is aimed at addressing housing insecurity for our community college students and staff and preventing homelessness. California’s community college students face some of the highest rates of housing insecurity and homelessness in the state.

The author contends that, “with over 70% of CCC students coming from diverse backgrounds, the system has become a critical pathway for marginalized populations seeking access to higher education and economic mobility. By removing barriers to building community college student housing, this bill will help address the housing insecurity experienced by marginalized students.”

This measure seeks to provide parity to the CCC and that of the California State University (CSU) and University of California (UC), by exempting the construction of faculty and staff housing projects, student housing projects, and university housing development projects, from local zoning regulations of any city, county, or city and county when constructed on property owned or leased by a CCD.

Committee Staff understands that the author intends not to infringe upon any existing building requirements, just to provide flexibility to the existing zoning regulations.

Student housing crisis. According to the May 2024 Update on Student Housing Assistance by the Legislative Analyst’s Office (LAO), student housing insecurity can refer to a range of challenges related to student’s living arrangements. At California’s higher education segments, students are commonly described as housing insecure if they face challenges such as difficulty paying rent or utilities, living in overcrowded units, or needing to move frequently. The higher education segments tend to use “homelessness” to refer more specifically to lacking a stable place to stay at night. The segments’ definitions of homelessness typically include students without a permanent home who are temporarily staying with relatives or friends (“couch surfing”), at hotels or motels, in emergency shelters or transitional housing, and in places not meant for habitation (such as cars or tents).

According to LAO, roughly 60% of California’s community college students have faced housing insecurity and almost 25% have experienced homelessness.

Arguments in support. According to the Santa Monica Community College District (SMCCD), co-sponsors of this measure, “this bill will combat housing insecurity and homelessness among community college students while also addressing California’s broader housing crisis by increasing the supply of affordable housing in local communities. The bill will streamline the construction of student housing at CCC by exempting new student and staff housing projects from local zoning regulations if the project is constructed on property owned or leased by a CCD, the same exemption CCDs already have for classroom facilities.”

Additionally, SMCCD states that, “this bill will give community colleges the authority to build housing for students and staff on property owned or leased by the CCD without spending years going through the onerous rezoning processes. Community colleges will still be required to follow other local regulations and consult with their local planning department. This will give CCDs the same authority to override local zoning that the UC and CSU systems currently have. In doing so, this bill will remove a significant barrier to addressing homelessness and housing amongst community college students in California.”

Related legislation. AB 893 (Fong), which is pending a hearing by the Assembly Committee on Housing and Community Development, in part, expands the eligibility for ministerial approval of affordable housing developments to include developments located in a campus development zone, as defined, as long as the development meets certain affordability requirements and objective standards, as provided.

Prior legislation. AB 1630 (Eduardo Garcia) of the 2023-24 Legislative Session, which was not heard by the Assembly Committee on Housing and Community Development, in part, would have streamlined student housing projects within 1000 feet from a college campus.

SB 886 (Wiener), Chapter 663, Statutes of 2022, in part, exempts, until January 1, 2030, faculty and staff housing projects and student housing projects meeting specified requirements from the California Environmental Quality Act (CEQA).

REGISTERED SUPPORT / OPPOSITION:

Support

Abundant Housing LA
California Apartment Association
California Home Building Alliance 
California Yimby
Circulate San Diego
Construction Employers' Association
Los Angeles Community College District (Co-Sponsor)
Santa Monica Community College District (Co-Sponsor)
Santa Monica College Associated Students

Student Homes Coalition (Co-Sponsor)
The Two Hundred

Opposition

None on file.

Analysis Prepared by: Jeanice Warden / HIGHER ED. / (916) 319-3960