Chapter One: Introduction
Purpose of the Element
In response to California’s critical housing needs, the legislature enacted housing element law with the goal of providing adequate, safe and affordable housing for every Californian. The attainment of housing for all requires the cooperation of local and State governments.
Housing element law requires local governments to adequately plan to meet their existing and projected housing needs including their share of the regional housing need. Housing element law is the State’s primary market-based strategy to increase housing supply. The law recognizes the most critical decisions regarding housing development occur at the local level within the context of the general plan. In order for the private sector to adequately address housing needs and demand, local governments must adopt land-use plans and regulatory schemes that provide opportunities for, and do not unduly constrain, housing development for all income groups.
Unlike the other mandatory elements of the general plan, the housing element is subject to detailed statutory requirements regarding its content and must be updated every five years. The housing element is also subject to mandatory review by a State agency. This reflects the statutory recognition that the availability of housing is a matter of statewide importance and that cooperation between all levels of government and the private sector is critical to attainment of the State’s housing goals.
General County Characteristics
Trinity County, one of the original 27 counties created in 1850 by the State Legislature, includes an area of 2,051,988 acres in northwestern California. It is bounded on the north by Siskiyou County, on the east by Shasta and Tehama Counties, on the South by Mendocino County, and on the west by Humboldt County. About 76 percent of the land area is within the Shasta-Trinity, Six Rivers and Mendocino National Forests and in four wilderness areas known as the Yolla Bolly-Middle Eel Reserve, the Trinity Alps, Chanchellula and North Fork Wildernesses. Another 14 percent is zoned for timber use or held in agriculture land-conservation contracts. It is a land of great scenic beauty, with many rugged peaks, wooded mountains and swift streams. The Coast Range Mountains in the southwest area occupy about a fourth of the county and the Klamath Mountains encompass the remainder.
The principal rivers in Trinity County are the main stem of the Trinity River, the South Fork of the Trinity, the New, the Mad, the Van Duzen and the Eel Rivers, all of which flow northwestward in roughly parallel courses. The Coast Ranges are not as high as the Klamath Mountains, but they are also rugged and there are few valleys of any considerable width.
The headwaters of the Trinity River are located in the northeastern part of the county at an elevation of 6200 feet, in what is known as the southern Siskiyou Mountains. The river has been dammed in two points at Lewiston, creating Trinity and Lewiston Lakes. From the dams, it continues its course in roughly a northwesterly direction, joining the Klamath River at Weitchepec in Humboldt County. The Trinity and other rivers have been designated National Wild and Scenic Rivers by the Department of Interior.
The climate of Trinity County is typical of a mountainous region with altitudes ranging from 553 feet to 9,038 feet. The annual precipitation ranges from 30 to 80 inches, and the snowfall is heavy in the higher altitudes. The Weaverville weather station, at an altitude of 2,047 feet, has an average annual precipitation of 35.84 inches, and the temperature varies from a monthly average of 37.2 degrees in January to an average of 71.3 degrees in July. The average annual temperature is 53.2 degrees, but extremes vary from 3 degrees below zero to a maximum of 113 degrees.
The county is dominated by two distinct geomorphic provinces: the Klamath Mountains and the Coast Ranges. The Klamath Mountain province, which covers roughly the upper two thirds (northeastern) of the county's land area, is characterized by flat-topped ridges and glaciated peaks. The regional drainages are westward in direction. The southwestern portion of the county lies within the Coast Ranges province, with drainages trending northwestward. The South Fork Mountain ridge marks the division between the two geomorphic provinces.
Runoff in the major basins varies widely. The Eel River basin yields roughly twice as much (8,080,000) acre feet as the Trinity River basin. The pattern of runoff in all basins closely follows the seasonal distribution of precipitation, which reaches a peak in January or February. Snow is a large percentage of precipitation in the Trinity Alps portion of the Trinity River basin, which delays peak surface runoff until April or May. The steep slopes of the county's mountainous terrain produce swift moving rivers and streams.
The principal industries of the county are tourism and timber. Lewiston, Ruth and Trinity Lakes provide excellent water recreational opportunities, including fishing, boating and camping. The Trinity Alps and Yolla Bolly-Middle Eel Wildernesses afford accessible hiking and camping experiences. The ubiquitous streams and rivers offer the recreationists numerous vacation opportunities and add immense aesthetic value to the county.
Trinity County is the sixth largest timber producer in the state, with substantial acreage in both National Forest and private holdings. Currently, there is one operating mill in the county. The timber and tourism industry are major contributors to the local economy. It can be said that Trinity County has an overall economy that is heavily resource-dependent.
Public Participation
Government Code Section 65583(c) requires local governments to “make a diligent effort to achieve public participation of all economic segments of the community in the development of the housing element, and the element shall describe this effort.”
This Housing Element revision meets public participation requirements with the following actions:
Special advertising and outreach measures were used by publishing display ads in the Trinity Journal, and by posting fliers on bulletin boards in various communities throughout the county, and by sending fliers directly to special interest groups.
The draft Housing Element was circulated to housing interest groups,including the Roderick Senior Center, the Golden Age Center, Human Response Network and CalWORKS.
Community meetings were held in Big Bar, Big Flat, Douglas City, Hayfork, Hyampom, Junction city, Lewiston, Mad River, Salyer, Trinity Center, Trinity Pines, Weaverville and Zenia to provide information to the public on the availability of grant and loan funds available to low income population for housing,
A public workshop was conducted before the Planning Commission.
Public Hearings were held before the Planning Commission and Board of Supervisors.
Consistency with the General Plan
Government Code Section 65300 requires each county or city to adopt a comprehensive, long-term general plan for its physical development. Section 65302 states: "The general plan shall consist of a statement of development policies and shall include a diagram or diagrams and text setting forth objectives, principles, standards, and plan proposals." Section 65302 also enumerates seven elements which every general plan must include: land, circulation, housing, conservation, open-space, noise and safety.
As early as 1979 the Court recognized that the consistency requirement transformed the general plan from just an interesting study to the basic land use charter governing the direction of future land use in the local jurisdiction. The Court stated: "As a result, general plans now embody fundamental land-use decisions that guide the future growth and development of cities and counties" (City of Santa Ana v. City of Garden Grove).
In 1985, the Court noticed that the general plan has been identified as being atop the hierarchy of local government law regulating land use and has been analogized to a constitution for all future developments (Concerned Citizens of Calaveras County v. Board of Supervisors).
In enacting Government Code, Article 10.6 (Housing Elements), detailing requirements for the mandatory housing element, the Legislature declared the availability of housing is a matter of "vital statewide importance" and "the early attainment of decent housing and suitable living environment for every California family is a priority of the highest order." To attain the state housing goal, the Legislature found, requires "cooperative participation" between government and the private sector, cooperation among all levels of government, and use of state and local government power" to facilitate the improvement and development of housing" for "all economic segments of the community." The Legislature recognized each local government in adopting a housing element must also consider economic, environmental and fiscal factors as well as community goals set forth in the general plan.
Trinity County's 2009 housing element update meets the specific requirements of Government Code Article 10.6 and the intent of the Department of Housing and Community Development guidelines. It also meets the requirement of internal consistency.
The Housing Element goals, policies, objectives and programs are consistent with and complement the land use and transportation goals, policies, objectives and programs. Specifically, the land use element provides for more than enough land for future housing needs and quantifies this fact. It goes on to identify that if a deficiency exists it is that adequate services and infrastructure may not be available in the right locations. Both the Housing Element and the General Plan identify the need to expand housing in areas that already have services and infrastructure and to seek ways and means to expand infrastructure in existing communities, consistent with local community plans.
Chapter Two: Housing Needs
Population
Population Growth Trends
Trinity County is composed of several small communities, with no incorporated cities. The majority of the county's population is concentrated in and around the communities of Weaverville, Hayfork and Lewiston. These three communities are Census Designated Places (CDPs). Lesser concentrations of people occur in Douglas City, Junction City and Trinity Center. The rest of the population is dispersed throughout smaller communities, which include Salyer, Hawkins Bar, Burnt Ranch, Big Bar, Del Loma, Big Flat, Coffee Creek, Hyampom, Wildwood, Mad River, Ruth, Zenia and Kettenpom.
According to the U.S. Census, Lewiston and Weaverville have experienced consistent gradual growth over the last three decades. Hayfork, on the other hand, saw a dramatic decrease in population between 1990 and 2000. This decrease in population was mainly due to the hardships felt by the timber industry. A large lumber mill located in Hayfork, one of only two such mills left in the county, closed down and moved their operations to Placer County. Without the mill, many of the ex-mill employees left the area, taking their families with them.
The county population as a whole, between the 1990 and 2000 census decreased slightly. However, between the years 2000 and 2005, the county's population increased by 867 persons according to the California Department of Finance's E-6 report. This information is based on housing activity. This is possibly due to an increase of retired persons moving to the county and/or building vacation homes, and those nearing retirement making the move from the cities. The increase experienced between 2000 and 2005 has leveled off with an average annual change of less than 1% for the period of 2000 to 2008. The recent change is likely due to the inability of retiree to sell their existing home in order to move.
Table II-1: Population Growth Trends (1970 - 2008) – Trinity County
Average Annual ChangeYear / Population / Numerical Change / Number / Percent
1980 / 11,858 / 4,243 / 424 / 5.6%
1990 / 13,063 / 1,205 / 121 / 1.0%
2000 / 13,022 / -41 / -4 / 0.0%
2005 / 13,889 / 867 / 174 / 1.3%
Current / 13,898 / 9 / 3 / 0.0%
Source: Census Bureau (2000 Census, SF3: P1) and (1990 Census, STF3: P1), DOF (Report E-6)
Population Trends – Neighboring Jurisdictions
Population trends in the neighboring Counties have shown greater increases than experienced in Trinity County during the same period. There are many factors that account for the difference in growth rates. Greater access to shopping, more temperate climates and moderate terrain are issues the influence the retirement community that has accounted for most of the recent growth in Trinity County. The remote nature of the County and the lack of access to rail, larger truck routes and broadband are limiting factors to industrial and other commercial growth. These limits affect access to the employment necessary for growth in the number of younger families. These factors account for much of the difference in population trends with neighboring Counties
Table II-2: Population Trends in Neighboring Jurisdictions
Jurisdiction Name / 1990 / 2000 / PopulationChange (1990-2000)Number / Percent
Shasta County / 147036 / 163257 / 16220 / 11%
Humboldt County / 119118 / 126518 / 7400 / 6.2%
Siskiyou County / 43531 / 44301 / 770 / 1.8%
Tehama County / 49625 / 56039 / 6414 / 12.9%
Mendocino County / 80345 / 86265 / 5920 / 7.4%
Population by Age
The changes in Trinity County demographics provide the evidence that the population is gradually changing to primarily a retirement community. The population percentages for ages below 45 have decreased while the percentages have increased for those over 45 years of age. Again, the lack of employment limits the ability for younger families to make their home in Trinity County. Schools in the county are also reporting declines in the number of students providing other evidence of the aging of Trinity County’s population. Table II-3 on the following page shows the number and percentage for this change in population by age.
Table II-3: Population by Age
Age / 1990 / 2000Group / Number / Percent / Number / Percent
0-9 years / 1894 / 14% / 1375 / 11%
10-19 years / 1810 / 14% / 1859 / 14%
20-24 years / 496 / 4% / 403 / 3%
25-34 years / 1662 / 13% / 1026 / 8%
35-44 years / 2341 / 18% / 1934 / 15%
45-54 years / 1441 / 11% / 2400 / 18%
55-59 years / 699 / 5% / 967 / 7%
60-64 years / 758 / 6% / 817 / 6%
65-74 years / 1278 / 10% / 1338 / 10%
75-84 years / 559 / 4% / 729 / 6%
85+ years / 125 / 1% / 174 / 1%
Median Age / 44 / 44.6
Employment
Employment by Industry
The two largest industries in the County are service and government. Services are needed for residents as well as tourists. Tourism is becoming the main focus of employment for the county, as it is in many other small rural counties located in the northwest forest areas. The timber industry has seen reduced harvest numbers in recent years due to increased regulations. Trinity County was extremely hard hit when one of the two last operating lumber mills closed it doors and moved to the central valley.
Future employment in the county is shifting toward the tourism industry, in hopes of rebounding from the blow to the timber industry. Services and attractions for the visitor are being explored more thoroughly. Small wineries are being explored, increasing both agricultural employment and tourist employment. The county also offers many natural recreational features (i.e. rivers, lakes, wilderness areas) that generate service and retail based businesses catering to the recreational users. Where once the timber industry was the largest employer, tourism is replacing that spot in the economic lineup. The timber industry has seen many regulations adopted designed to protect the environment, which has had the effect of reducing overall production. Government and education continue to be another strong source of employment in the county. In addition to tourism the aging of the community will provide opportunities for services directed towards the retirees. .
Health related industries also employ a good percent of the population. As the county appears to be shifting toward an older population, health services will become increasingly important. Recently economic conditions of the only hospital in the County have improved with the creation of a Hospital District and the approval of a Hospital assessment by the voters. These changes will be beneficial to the tourism and retirement communities.
While most of the housing constructed over the last ten years has been directed towards the needs of retirees, the changes in employment opportunities to provide services for tourists and retirees will require an increase in the number of affordable homes in Trinity County for the working class.
Other traditional industries will not likely increase in the near future due to the lack of rail and truck access. There is a multi-County effort to provide broadband access that will benefit future residences of Trinity County. Broadband access will provide employment opportunities not currently available due to the remote nature of the County. When broadband is available there will be a needfor more family-oriented housing.
In 2007 Trinity County commissioned an Affordable Housing Master Plan for the Communities of Weaverville and Hayfork. While the project primarily promoted a single affordable housing site in Weaverville it did identify the need for affordable housing and identified parcels in Weaverville and Hayfork that were suitable for affordable housing development. In addition, the report can be used as a template to determine the suitability of other potential sites.
Table II-4: Employment by Industry (2000) - Trinity County
Industry Type / 2000Number / Percent
Agriculture, forestry, fishing and hunting, and mining: / 352 / 7.8%
Construction / 331 / 7.3%
Manufacturing / 322 / 7.1%
Wholesale trade / 102 / 2.3%
Retail trade / 517 / 11.4%
Transportation and warehousing, and utilities / 202 / 4.5%
Information / 86 / 1.9%
Finance, insurance, real estate and rental and leasing / 108 / 2.4%
Professional, scientific, management, admin. / 297 / 6.6%
Educational, health and social services / 1,189 / 26.3%
Arts, entertainment, recreation, and services / 391 / 8.6%
Other services / 242 / 5.3%
Public administration / 390 / 8.6%
TOTAL / 4,529 / 100.0%
Source: Census Bureau (2000 Census, SF3: P49)
Household Characteristics
Household Growth and Tenure Trends