Bringing California's Hidden Housing Out of the Shadows: ADU Amnesty Reform
The Golden State is a melting pot where ambitious people from all walks of life are drawn to chase their dreams and get ahead-regardless of the risk. Few things redefine a family’s journey more than reaching the dream of homeownership, and affordability is at the core of protecting that dream. For many, converting garages, attics or building in their backyard has been a proven strategy to create housing affordability. Long before the state and local governments began embracing ADUs (Accessory Dwelling Units), historic zoning barriers left homeowners with few options to create housing on their property beyond the confines of their existing home. Thousands of unpermitted units were built anyway. These structures quietly exist in communities across the state, representing a grassroots housing movement that has stood the test of time.
Urban Planner and former Los Angeles County Zoning Enforcement Officer Jonathan Pacheco Bell says robust ADU amnesty laws are long overdue. Bell spent more than a decade inspecting unpermitted ADUs across South Central LA’s dense, built-out unincorporated areas, such as Florence-Firestone, Willowbrook, and West Athens-Westmont. As a rookie inspector, Bell was strict and “letter of the law,” but his views about unpermitted ADUs evolved as he started understanding the reasons why people make self-built housing. “As an enforcement planner, you learn a lot when you talk to people at their doorsteps. I learned that when people need housing, people build housing, especially in low-income communities of color. If the code is an obstacle, folks sidestep the code. They may not even know the code exists.” Although current ADU laws are permissive of many of these types of homes, this shadow inventory continues to exist. Says Bell, “The permit process can be intimidating, expensive, and confusing, even worse if you’re trying to legalize an ADU after-the-fact. I don’t blame my community members for wanting to stay under the radar.”
This ADU could have been preserved
An informal ADU behind a garage in South Central LA. Photo by Jonathan Pacheco Bell-serves as an example of an ADU ultimately torn down in the years before ADU amnesty paved pathways for legalization.
Earlier legislation aimed to create pathways for legalization, but inconsistent implementation across the state prevented many homeowners from obtaining permits. Now, with the passage of Assembly Bill 2533 (Carrillo-2024), we are inviting these original housing innovators to come out of the shadows. AB 2533 offers a simplified, streamlined, and predictable pathway for homeowners to legalize their existing, unpermitted units—provided they meet safety standards. This process will allow these homes to finally be recognized as ADUs, bringing them into compliance with the law while ensuring tenant safety and offering homeowners greater peace of mind. For the many homeowners who have long feared penalties for building these units on their properties, this new law provides a pathway forward without punitive measures.
“ADUs are an important asset for our middle and low-income homeowners to build generational wealth and for multigenerational families to care for each other. These units provide critically needed homes for renters amidst a housing crisis and offer steady supplemental income for owners at risk of displacement. While no single solution will solve the housing crisis, AB 2533 is designed to support and empower cost-burdened homeowners by providing a pathway to legalize their unpermitted ADUs, allowing them to safely house family members and others in the community. AB 2533 is a step in the right direction to further expand California’s ADU market by offering the necessary tools and simplified processes homeowners need.”
Safety is central to this initiative—under AB 2533, only units meeting health and safety standards will qualify for legalization, ensuring substandard homes are excluded. This protects homeowners and occupants while promoting safer housing. Bell lauds the bill’s commitment to public safety, adding, “I certainly inspected some unsafe informal dwellings, like folks living in converted tool sheds, but the vast majority of unpermitted units were not substandard. Many were built to proper standards, just without the benefit of permits. AB 2533 provides a viable option to legalize unpermitted ADUs.” By focusing on safety and feasibility, California is helping to unlock a hidden supply of housing, particularly in diverse and lower-income communities where unpermitted units have long existed to address acute housing needs.
Dispelling the misinformation
A tool shed converted into housing in South Central LA. Photo by Jonathan Pacheco Bell-serves as an example of a substandard unit that would not be eligible for amnesty under AB 2533.
We thank bill author and friend of Casita Coalition, Assemblymember Carrillo, for his leadership. We applaud the Governor for signing this important legislation and are optimistic about its impact. By making it easier and less costly to legalize these homes, we will not only increase the supply of safe, affordable housing but also empower homeowners to generate equity, access financing for improvements, and contribute to a broader housing solution. AB 2533 marks a pivotal moment in California’s ongoing ADU revolution, demonstrating once again that innovation in housing starts here.
The Casita Coalition is committed to collaborating with stakeholders to support the educational aspects of this bill which include requirements that local governments provide clear and complete educational materials about ADU amnesty on their websites, along with checklists to guide homeowners through the process of permitting their unpermitted units.
Rafael Perez, Board Chair
Casita Coalition, AB 2533 Co-sponsor.