pursuant to Government Code sections 65583, subdivision (c)(1)(A) and 65583.2, subdivision (c).
Public participation in the development, adoption and implementation of the housing element is essential to effective housing planning. Throughout the housing element process, the City should continue to engage the community, including organizations that represent lower-income and special needs households, by making information regularly available and considering and incorporating comments where appropriate. Please be aware, any revisions to the element must be posted on the local government’s website and to email a link to all individuals and organizations that have previously requested notices relating to the local government’s housing element at least seven days before submitting to HCD.
Several federal, state, and regional funding programs consider housing element compliance as an eligibility or ranking criteria. For example, the CalTrans Senate Bill (SB) 1 Sustainable Communities grant, the Affordable Housing and Sustainable Communities program, and HCD’s Permanent Local Housing Allocation consider housing element compliance and/or annual reporting requirements pursuant to Government Code section 65400. With a compliant housing element, the City will meet housing element requirements for these and other funding sources.
For your information, some general plan element updates are triggered by housing element adoption. HCD reminds the City to consider timing provisions and welcomes the opportunity to provide assistance. For information, please see the Technical Advisories issued by the Governor’s Office of Planning and Research at:
https://www.opr.ca.gov/planning/general-plan/guidelines.html.
HCD appreciates the hard work and effort provided during the course of our review. We are committed to assisting the City in addressing all statutory requirements of State Housing Element Law. If you have any questions or need additional technical assistance, please contact Emily Hovda, of our staff, at [email protected].
Sincerely,
Paul McDougall
Senior Program Manager
Enclosure
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City of Ceres’ 6th Cycle (2023-2031) Revised Draft Housing Element Page 1 August 30, 2024
APPENDIX
CITY OF CERES
The following changes are necessary to bring the City’s housing element into compliance with Article 10.6 of the Government Code. Accompanying each recommended change, we cite the supporting section of the Government Code.
Housing element technical assistance information is available on HCD’s website at https://www.hcd.ca.gov/planning-and-community-development/hcd-memos. Among other resources, the housing element section contains HCD’s latest technical assistance tool, Building Blocks for Effective Housing Elements (Building Blocks), available at https://www.hcd.ca.gov/planning-and-comm
unity-development/housing-elements/building-
blocks and includes the Government Code addressing State Housing Element Law and other resources.
A. Housing Needs, Resources, and Constraints
1. Affirmatively further[ing] fair housing in accordance with Chapter 15 (commencing with Section 8899.50) of Division 1 of Title 2…shall include an assessment of fair housing in the jurisdiction. (Gov. Code, § 65583, subd. (c)(10)(A).)
Disproportionate Housing Needs:
While the element now discusses areas of the City
with a relatively higher need of rehabilitation, it should still analyze coincidences across other fair housing components (e.g., segregation and integration, disparities in access to opportunity).
Identified Sites and Affi rmatively Furthering Fair Housing (AFFH): In response to HCD’s prior review, the element now provides data and analysis of the regional housing need allocation (RHNA) by location and various socio-economic characteristics. For example, the element acknowledges a significant portion of the RHNA by income group is accommodated in new growth areas that are isolated, particularly, in the eastern and western portions of the City. While the element discusses these areas will accommodate a mix of housing choices and affordability, it should also discuss the impact of isolating the RHNA, even if for a mix of incomes. For example, the element should discuss how the isolation of the RHNA in new growth areas may result in differences in neighborhood quality and disparities in access to opportunity. Based on the
outcomes of a complete analysis, the element should add or modify programs as appropriate such as promoting housing choices and affordability throughout the City and place-based strategies for community revitalization to facilitate more inclusive and equitable neighborhoods throughout the City.
Cont
ributing Fact ors to Fair Housing Issues: Upon a complete analysis of AFFH, the element should re-assess and prioritize contributing factors to fair housing issues.
2. An inventory of land suitable and available for residential development, including vacant sites and sites having realistic and demonstrated potential for redevelopment during the planning period to meet the locality’s housing need for a designated income level, and
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an analysis of the relationship of zoning and public facilities and services to these sites. (Gov. Code, § 65583, subd. (a)(3).)
Progress in M eeting the RHNA: While the element now includes information to demonstrate the availability of units included in pipeline projects during the planning period, the element must still demonstrate the anticipated affordability for the Dhillon Villas and Moffett projects. Please see HCD’s prior review for additional information.
Specific Plan Areas: I
n response to HCD’s prior review, the element now states that Phase 1 of the West Landing Specific Plan is anticipated to be complete by 2026 (p. C- 38), with additional phases requiring construction of a sewer lift station, anticipated for completion by 2027 (pg. C-42). However, the element should be revised to explicitly clarify the total and planned infrastructure capacity of the West Landing Specific Plan area. Also, the element includes conflicting information regarding the anticipated number of units for the Whitmore Ranch Specific Plan. More specifically, while Table C-8 states the plan area has a buildout capacity of 441 units (p. C-44), the element later states only 372 units are anticipated (pg. C-45). The element should be revised to reconcile this information.
Suitability of Nonva cant Sites: In response to HCD’s prior review, the element now includes some additional information on existing uses and revised capacity assumptions for non-vacant sites (Appendix C). However, the analysis identifies several sites with existing single-family residences with minimal analysis provided to demonstrate whether these uses would impede additional development within the planning period. The element could relate past development trends to the site characteristics identified in Table C-5 and summarize past experiences converting similar existing uses to higher density residential development to support assumptions that existing residential uses on these sites will be discontinued. Please see HCD’s prior review for additional information.
Accessory Dwelling Units (ADU): T he element now includes discussion of ADU trends and programs to encourage the development of ADUs but should also support assumptions related to anticipated affordability. Please see HCD’s prior review for additional information.
Electronic Si tes Inventory: As noted in the prior review, pursuant to Government Code section 65583.3, subdivision (b), the City must utilize standards, forms, and definitions adopted by HCD when preparing the sites inventory and submit an electronic version of the sites inventory. While the City has submitted an electronic version of the sites inventory, if changes occur, any future adopted versions of the element must also submit the electronic version of the sites inventory.
Zoning for a Variety of Housing Types (Emergency Shelters):
In response to HCD’s
prior review, the element states emergency shelters are permitted in the M-1, H-1, and PC zones, but should also explicitly identify which of these zones allow emergency shelters by-right, without discretionary approval. Please be advised, if the City does not have a zone to permit emergency shelters without discretionary action, HCD cannot find the element in compliance until the appropriate zoning is available.
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B. Housing Programs
1. Include a program which sets forth a schedule of actions during the planning period, eac
h with a timeline for implementation, which may recognize that certain programs are ongoing, such that there will be beneficial impacts of the programs within the planning period, that the local government is undertaking or intends to undertake to implement the policies and achieve the goals and objectives of the Housing Element…(Gov. Code, § 65583, subd. (c).)
As
noted in HCD’s prior review, programs must have specific commitment and discrete timing (e.g., at least annually and by 2025) to have a beneficial impact within the planning period and achieve the goals and objectives of the housing element. Programs to be revised include the following:
• Program 1.9 (Changes to the Zoning Code): Program 1.9 commits the City to permitting unlicensed residential care facilities where single-family uses are permitted and subject only to those laws applicable to single-family homes.
However, the Program should be modified to amend zoning and permit procedures to permit group homes for six or fewer persons (regardless of licensing) as single-family uses and to permit group homes for seven or more persons (regardless of licensing) in all zones allowing residential uses and only subject to requirements of other residential uses of the same type in the same zone.
• Program 1.12 (Whitmore Ranch Specific Plan Development): The Program includes actions to monitor and take alternative actions, including upzoning, should residential development in the plan area is not actualized within the planning period. However, the Program should be modified to also include monitoring and appropriate actions taken for the remaining phases of development required to meet the entire RHNA, similar to Program 1.10. This is especially significant given the challenges the City has identified with respect to Whitmore Ranch, including the need for additional sewer and water infrastructure expansion, lack of developer interest in developing higher-density residential, and the fact that Phase 1 of the plan area only includes single-family development.
• Program 2.3 (Housing Rehabilitation Programs): The Program should consider applying, with discrete timing, for additional funding sources.
• Program 3.4 (Temporary/Seasonal Farmworker Housing): The Program should include significant and specific commitment(s) beyond developing marketing materials to address the housing needs of farmworkers. For example, the element could commit to proactive actions to coordinate with nonprofit developers, employers, and other related organizations, to explore funding and incentives and to identify specific development opportunities. The Program
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City of Ceres’ 6th Cycle (2023-2031) Revised Draft Housing Element Page 4 August 30, 2024
should address new construction, rehabilitation and conservation of the existing housing stock.
2. Identify actions that will be taken to make sites available during the planning period with appropriate zoning and development standards and with services and facilities... Sites shall be identified as needed to facilitate and encourage the development of a variety of types of housing for all income levels, including… …emergency shelters... (Gov. Code, § 65583, subd. (c)(1).)
As
noted in Finding A2, the element does not include a complete site analysis; therefore, the adequacy of sites and zoning were not established. Based on the results of a complete sites inventory and analysis, the City may need to add or revise programs to address a shortfall of sites or zoning available to encourage a variety of housing types.
3. Address and, where appropriate and legally possible, remove governmental and nongovernmental constraints to the maintenance, improvement, and development of housing, including housing for all income levels and housing for persons with disabilities... (Gov. Code, § 65583, subd. (c)(3).)
As
noted in Finding A3, the element requires a complete analysis of potential governmental constraints. Depending upon the results of that analysis, the City may need to revise or add programs and address and remove or mitigate any identified constraints.
In addition, the element includes Program 1.14 (Adopt Approval Findings for Residential Development) to promote approval certainty in the entitlement process. However, some proposed findings of approval appear to be subjective and may impact approval certainty. For example, approval findings related to compatibility with the surrounding area or character of the architecture could impact approval certainty. To address these potential constraints, Program 1.14 should be modified to remove or revise these decision-making criteria or establish mechanisms or other strategies to promote approval certainty.
4. P romote and affirmatively further fair housing opportunities and promote housing throughout the community or communities for all persons regardless of race, religion, sex, marital status, ancestry, national origin, color, familial status, or disability, and other characteristics… (Gov. Code, § 65583, subd. (c)(5).)
As
noted in Finding A1, the element does not include a complete analysis of AFFH.
Depending upon the results of that analysis, the City may need to revise or add programs. Goals and actions must specifically respond to the analysis and to the identified and prioritized contributing factors to fair housing issues and must be significant and meaningful enough to overcome identified patterns and trends. Actions must have specific commitment, metrics, and milestones as appropriate, geographic targeting, and must address housing mobility enhancement, new housing choices and affordability in high opportunity areas, place-based strategies for community preservation and revitalization and displacement protection. For example, Programs 5.4
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City of Ceres’ 6th Cycle (2023-2031) Revised Draft Housing Element Page 5 August 30, 2024
(Place-Based Strategies to Support Infrastructure Improvements) and 5.5 (Place-Based Strategies to Support Economic Mobility) are limited in scope by only targeting infrastructure improvements in low-density areas and tracts with generally higher- income households. As another exa mple, Program 2.7 (Promote Walkability and Active Transportation) should include specific project examples with commitment(s) and geographic targeting that promote walkability and the development of active transportation infrastructure in the City.
C. P
ublic Participation
Local governments shall make a diligent effort to achieve public participation of all econom
ic segments of the community in the development of the Housing Element, and the element shall describe this effort. (Gov. Code, § 65583, subd.(c)(9).)
Whil
e the element includes Table 1 in Appendix E (p. 2-2), it should expand on the City’s response to public comments related to site feasibility in Comment 21 and include discussion of how comments were incorporated in the element.
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HCD Revised Draft
6th Cycle Housing Element Update
(2023-2031)
City of Ceres
January 10, 2025
Prepared by
EMC Planning Group
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HCD REVISED DRAFT
6TH CYCLE HOUSING ELEMENT UPDATE
(2023-2031)
C I T Y O F C E R E S
PREPARED FOR
City of Ceres
Lea Simvoulakis, Community Development Director
2220 Magnolia Street
Ceres, CA 95307
Tel 209.538.5774
PREPARED BY
EMC Planning Group Inc.
601 Abrego Street
Monterey, CA 93940
Tel 831.649.1799
Fax 831.649.8399
Anastazia Aziz, AICP, Principal
[email protected]
www.emcplanning.com
January 10, 2025
This document was produced on recycled paper.
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EMC Planning Group Inc.
Table of Contents
1.0 I NTRODUCTION.................................................................................................... 1-1
1.1 Introduction ...................................................................................................................... 1-1
1.2 California’s Housing Crisis .............................................................................................. 1-2
1.3 Regional Housing Needs Allocation .............................................................................. 1-3
1.4 Affirmatively Furthering Fair Housing .......................................................................... 1-4
1.5 Overview of Planning Efforts ........................................................................................ 1-7
1.6 Public Participation ........................................................................................................ 1-10
2.0 G OALS, POLICIES, AND PROGRAMS .................................................................. 2-1
2.1 Introduction ...................................................................................................................... 2-1
2.2 What’s New ....................................................................................................................... 2-1
2.3 Program Overview and Quantified Objectives ............................................................ 2-2
2.4 Goals, Policies, and Programs ........................................................................................ 2-3
3.0 O VERVIEW OF HOUSING NEEDS AND CONSTRAINTS ................................... 3-1
3.1 Introduction ...................................................................................................................... 3-1
3.2 Overview of Housing Needs .......................................................................................... 3-1
3.3 Governmental and Non-Governmental Constraints ................................................ 3-14
4.0 A FFH ANALYSIS OF THE SITE INVENTORY ...................................................... 4-3
4.1 Introduction ...................................................................................................................... 4-3
4.2 Prohousing Community Designation ............................................................................ 4-3
4.3 Regional Housing Needs Allocation .............................................................................. 4-4
4.4 Site Inventory .................................................................................................................... 4-4
4.5 Site Inventory Analysis Requirements ........................................................................... 4-5
4.6 Quadrant- Based Analysis................................................................................................. 4-6
4.7 Census Tract Analysis .................................................................................................... 4-17
4.8 Summary and Conclusions ............................................................................................ 4-41
5.0 E NERGY CONSERVATION ................................................................................... 5-1
5.1 Introduction ...................................................................................................................... 5-1
5.2 Opportunities for Energy Conservation ....................................................................... 5-1
5.3 Housing Element Programs Related to Energy Efficiency ........................................ 5-2
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Appendices
Appendix A Housing Needs & Fair Housing Report
Appendix B Housing Constraints
Appendix C Vacant and Available Sites
Appendix D Review of Previous Housing Element
Appendix E Outreach and Public Participation
Figures
Figure 4-1 Distribution of Housing Opportunity Sites by Income Designation .................... 4-8 Figure 4-2 Planned Capital Improvement Projects ................................................................... 4-12 Figure 4-3 Sites Inventory Analysis by TCAC/HCD Opportunity Areas ............................. 4-19 Figure 4-4 Sites Inventory Analysis by TCAC/HCD Economic Opportunity ..................... 4-21 Figure 4-5 Sites Inventory Analysis by TCAC/HCD Educational Opportunity .................. 4-23 Figure 4-6 Sites Inventory Analysis by TCAC/HCD Environmental Health ....................... 4-26 Figure 4-7 Sites Inventory Analysis by Predominant Population ............................................ 4-28 Figure 4-8 Sites Inventory Analysis by Median Income ........................................................... 4-31 Figure 4-9 Sites Inventory Analysis by Poverty Status .............................................................. 4-32 Figure 4-10 Sites Inventory Analysis by Population with a Disability ...................................... 4-35 Figure 4-11 Sites Inventory Analysis by Overcrowding .............................................................. 4-37 Figure 4-12 Sites Inventory Analysis by Cost Burdened Renter Households .......................... 4-40 Tables
Table 1-1 Regional Housing Needs Allocation ........................................................................... 1-3 Table 2-1 Quantified Objectives ................................................................................................... 2-2 Table 3-1 Population Growth by Jurisdiction, 2010- 2019 ........................................................ 3-1 Table 3-2 Population Age Distribution by Jurisdiction, 2019 .................................................. 3-2 Table 3-3 Population by Race by Jurisdiction, 2019 .................................................................. 3-3 Table 3-4 Employment Growth Forecast by Jurisdiction, 2020- 2050 .................................... 3-3 Table 3-5 Unemployment Rate, Ceres, 2019 ............................................................................... 3-4 Table 3-6 Housing Forecast by Jurisdiction, 2020- 2050............................................................ 3-4 Table 3-7 Households by Income Category, Ceres, 2015- 2019 ............................................... 3-5 Table 3-8 Housing Units by Type and Tenure, Ceres, 2019 ..................................................... 3-6 Table 3-9 Housing Unit Growth Trends by Jurisdiction, 2010- 2019 .................................... 3-11 Table 3-10 Housing Permits by Income Group, Ceres, 2015- 2021 ......................................... 3-12 Table 3-11 Vaca nt Housing Units by Type, Ceres, 2019 ........................................................... 3-13 Table 3-12 Housing Affordability, Ceres, 2022........................................................................... 3-14 Table 4-1 City of Ceres Regional Housing Needs Allocation – 2023–2031 ........................... 4-4 Table 4-2 Overview of Sites Inventory ........................................................................................ 4-5
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Table 4-3 Distribution of Housing Sites and AFFH Indicators .............................................. 4-9 Table 4-4 Site Inventory Unit Count by TCAC/HCD Opportunity Area, 2023 ................ 4-18 Table 4-5 Site Inventory Unit Count by TCAC/HCD Economic Opportunity, 2021 ...... 4-20 Table 4-6 Site Inventory Unit Count by TCAC/HCD Environmental Health, 2021 ........ 4-24 Table 4-7 Site Inventory Unit Count by Diversity Index, 2023 ............................................. 4-27 Table 4-8 Site Inventory Unit Count by Median Income and Poverty Status ..................... 4-29 Table 4-9 Sites Inventory Unit Count by Female-Headed Households ............................... 4-33 Table 4-10 Sites Inventory Unit Count by Population with a Disability ................................ 4-34 Table 4-11 Sites Inventory Unit Count by Overcrowding ........................................................ 4-36 Table 4-12 Site Inventory Unit Count by Cost Burdened Renter Households ..................... 4-38 Table 5-1 Stanislaus County Programs and Incentives for Residential Properties ............... 5-2
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Chapter 1.0 – Introduction 1-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
1.0 Introduction
1.1 Introduction
The City of Ceres is a suburban community regarded for its diversity and tight-knit community. The City’s name “Ceres” originates from the Roman goddess of agriculture, paying homage to the land, the wealth of the community. Strengthened by the support of local businesses, organizations, and nonprofit community service groups, Ceres’ supportive neighborhood character has shaped the existing social fabric. The long-term vitality of Ceres depends upon the availability of various types of housing to satisfy the community’s local housing needs. In addition to the rising costs of development, the city faces the oncoming pressures of being somewhat of an affordable housing outlet for many Bay Area employees, increasing the challenges local residents face in obtaining affordable housing in their community with Altamont Corridor Express, or ACE, rail service around the corner.
As Ceres looks toward the future, increasing the range and diversity of housing options is integral to the City’s success, as well as developing policies and programs that ensure local community members are able to live in the community they work in and support. This Housing Element serves as a continuation of the City’s commitment to ensuring new opportunities for residential development, as well as preserving and enhancing existing neighborhoods.
This 2023-2031 Housing Element represents the City of Ceres’ intent to plan for the housing needs of the Ceres community while meeting the State's housing goals as set forth in Article 10.6 of the California Government Code. The California State Legislature has identified the attainment of a decent home and a suitable living environment for every Californian as the State's major housing goal. The Ceres Housing Element represents a sincere and creative effort to meet local and regional housing needs.
Pursuant to State law, the Housing Element must be updated periodically according to statutory deadlines. This 6
th Cycle Housing Element covers the planning period 2023 through 2031 and replaces the City's 5th Cycle Housing Element that covered the period 2014 through 2023.
Per State Housing Element law, the document must be periodically updated to:
Outline the community’s housing production objectives consistent with State and regional growth projections;
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Chapter 1.0 – Introduction 1-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Describe goals, policies and implementation strategies to achieve local housing objectives; Examine the local need for housing with a focus on special needs populations; Identify adequate sites for the production of housing serving various income levels; Analyze potential constraints to new housing production; Evaluate the Housing Element for consistency with other General Plan elements; and Evaluate Affirmatively Furthering Fair Housing.
1.2 California’s Housing Crisis
The 6th Cycle Housing Element update comes at a critical time because California is experiencing a housing crisis, and as is the case for all jurisdictions in California, Ceres is committed to playing its part in meeting the growing demand for housing. In the coming 30-year period, the Stanislaus Council of Governments (StanCOG) region is projected to add 64,266 jobs,1 which represents a 27 percent increase. These changes will increase demand for housing across all income levels, and if the region can’t identify ways to significantly increase housing production, it risks worsening the burden for existing lower-income households, many of whom don’t have the luxury or skill set to move to a new job center but that are nonetheless faced with unsustainable increases in housing cost.
If the region becomes less competitive in attracting high-skilled workers and increasingly unaffordable to lower-income workers and seniors, then social and economic segregation will worsen, only exacerbating historic patterns of housing discrimination, racial bias, and segregation.
This potentiality has become so acute in recent years that the California Legislature addressed the issue with new legislation in 2018. Assembly Bill (AB) 686 requires all state and local agencies to explicitly address, combat, and relieve disparities resulting from past patterns of housing segregation to foster more inclusive communities. This is commonly referred to as Affirmative Furthering Fair Housing, or AFFH.
Like many other communities, Ceres has had little success in meeting its housing needs. In the last housing element cycle (2014-2023), the City issued 79 housing permits. This was only a small fraction of Ceres’ Regional Housing Needs Allocation (RHNA), which called for the construction of 2,571 new housing units. Of the units built, 71 were for above moderate-income housing, seven (7) were for moderate-income housing, and one (1) was for low-income housing.
1 Source: Stanislaus County Demographic and Employment Forecast, 2021
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Chapter 1.0 – Introduction 1-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
1.3 Regional Housing Needs Allocation
The 2021 Stanislaus County Demographic and Employment Forecast calculates that the StanCOG region will add 50,796 new households between 2020 and 2050, a 28 percent increase. For the eight- year time frame covered by this Housing Element Update, the Department of Housing and Community Development (HCD) has identified the region’s housing need as 34,344 units. The total number of housing units assigned by HCD is separated into four income categories that cover housing types for all income levels, from very low-income households to market rate housing. 2 This
calculation is based on population projections produced by the California Department of Finance as well as adjustments that incorporate the region’s existing housing need.
All jurisdictions in the StanCOG region received a larger RHNA this cycle compared to the last cycle, primarily due to changes in state law that led to a considerably higher Regional Housing Need Determination (RHND) compared to previous cycles.
In August 2022, StanCOG issued its Final 6th Cycle Regional Housing Needs Allocation Plan. For Ceres, the RHNA to be planned for this cycle is 3,361 units, a substantial increase from the last cycle. Table 1-1 shows the RHNA for Ceres for the planning period 2023 through 2031.
Table 1-1 Regional Housing Needs Allocation
Income Group Percentage of AMI Share
Extremely Low-Income3 0-30 353
Very Low-Income <50 353
Low Income 51-80 489
Moderate-Income 81-120 661
Above Moderate-Income 121+ 1,505
Total 3,361
Source: StanCOG Adopted Final Regional Housing Needs Allocation Plan, 2022
2 HCD divides the RHNA into the following four income categories:
Very Low income: 0-50% of Area Median Income
Low income: 50-80% of Area Median Income
Moderate income: 80-120% of Area Median Income
Above Moderate income: 120% or more of Area Median Income 3 Extremely low-income RHNA is found as a subset within the very low-income category
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Chapter 1.0 – Introduction 1-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
1.4 Affirmatively Furthering Fair Housing
In 2018, Assembly Bill (AB) 686, signed in 2018, established an independent state mandate to affirmatively furthering fair housing (AFFH). AB 686 extends requirements for federal grantees and contractors to “affirmatively further fair housing,” including requirements in the federal Fair Housing Act, to public agencies in California. Affirmatively furthering fair housing is defined specifically as taking meaningful actions that, taken together, address significant disparities in housing needs and in access to opportunity by replacing segregated living patterns with truly integrated and balanced living patterns; transforming racially and ethnically concentrated areas of poverty into areas of opportunity; and fostering and maintaining compliance with civil rights and fair housing laws.
AB 686 requires public agencies to:
Administer their programs and activities relating to housing and community development in a manner to affirmatively further fair housing;
Not take any action that is materially inconsistent with the obligation to affirmatively further fair housing;
Ensure that the program and actions to achieve the goals and objectives of the Housing Element affirmatively further fair housing; and
Include an assessment of fair housing in the Housing Element.
The requirement to Affirmatively Further Fair Housing (AFFH) is derived from The Fair Housing Act of 1968, which prohibited discrimination concerning the sale, rental, and financing of housing based on race, color, religion, national origin, or sex—and was later amended to include familial status and disability. The 2015 U.S. Department of Housing and Urban Development (HUD) Rule to Affirmatively Further Fair Housing and California Assembly Bill 686 (2018) mandate that each jurisdiction takes meaningful action to address significant disparities in housing needs and access to opportunity. AB 686 requires that jurisdictions incorporate AFFH into their Housing Elements, which includes inclusive community participation, an assessment of fair housing, a site inventory reflective of AFFH, and the development of goals, policies, and programs to meaningfully address local fair housing issues.
An AFFH analysis was prepared by EMC Planning Group and is included as Appendix A to this housing element.
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Chapter 1.0 – Introduction 1-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Defining Segregation
Segregation is the separation of different demographic groups into different geographic locations or communities, meaning that groups are unevenly distributed across geographic space. This report examines two spatial forms of segregation: neighborhood level segregation within a local jurisdiction and city level segregation between jurisdictions in the StanCOG region.
Neighborhood level segregation (within a jurisdiction, or intra -city ): Segregation of race and income groups can occur from neighborhood to neighborhood within a city. For example, if a local jurisdiction has a population that is 20 percent Latino, but some neighborhoods are 80 percent Latino while others have nearly no Latino residents, that jurisdiction would have neighborhoods which are segregated.
City level segregation (between jurisdictions in a region, or inter -city ): Race and income divides also occur between jurisdictions in a region. A region could be very diverse with equal numbers of white, Asian, Black, and Hispanic and Latino residents, but the region could also be highly segregated with each city comprised solely of one racial group.
There are many factors that have contributed to the generation and maintenance of segregation.
Historically, racial segregation stemmed from explicit discrimination against people of color, such as restrictive covenants, redlining, and discrimination in mortgage lending. This history includes many overtly discriminatory policies made by federal, state, and local governments
4. Segregation patterns
are also affected by policies that appear race-neutral, such as land use decisions and the regulation of housing development.
Segregation has resulted in vastly unequal access to public goods such as quality schools, neighborhood services and amenities, parks and playgrounds, clean air and water, and public safety.5 This generational lack of access for many communities, particularly people of color and lower income residents, has often resulted in poor life outcomes, including lower educational attainment, higher morbidity rates, and higher mortality rates.
6,7,8,9,10,11
4 Source: The Color of Law: A Forgotten History of How Our Government Segregated America, Richard Rothstein, 2017. 5 Source: Segregation and Inequality in Public Goods, Jessica Trounstine, 2015. 6 Source: The Impacts of Neighborhoods on Intergenerational Mobility, Raj Chetty and Nathaniel Hendren, 2018. 7 Source: The Wrong Side(s) of the Tracks: The Causal Effects of Racial Segregation on Urban Poverty and Inequality , Elizabeth Ananat, 2011.
8 Source: The Old Jim Crow: Racial Residential Segregation and Neighborhood Imprisonment, Traci Burch, 2014. 9 Source: Are Ghettos Good or Bad?, David M. Cutler and Edward L. Glaeser, 1997. 10 Source: Moving and the Neighborhood Glass Ceiling, Robert J. Sampson, 2012. 11 Source: Stuck in Place: Urban Neighborhoods and the End of Progress Toward Racial Equity, Patrick Sharkey, 2013.
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Chapter 1.0 – Introduction 1-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Segregation and Land Use
It is difficult to address segregation patterns without an analysis of both historical and existing land use policies that impact segregation patterns. Land use regulations influence what kind of housing is built in a city or neighborhood.
12,13 These land use regulations in turn impact demographics: they can be used to affect the number of houses in a community, the number of people who live in the community, the wealth of the people who live in the community, and where within the community they reside.14 Given disparities in wealth by race and ethnicity, the ability to afford housing in different neighborhoods, as influenced by land use regulations, is highly differentiated across racial and ethnic groups (Bayer, McMillan, and Reuben 2004).
15 Segregation Patterns in the StanCOG Region
Across the StanCOG region, Hispanic or Latino residents represent the predominant racial/ethnic group followed by non-Hispanic White residents. Stanislaus County has a moderate-high level of segregation, which is primarily represented between these two populations. Additionally, above- moderate and moderate-income residents are significantly more segregated from other racial and income groups. The analysis completed for this report indicates that the amount of racial segregation both within the StanCOG region and across jurisdictions in the region has decreased since the year 2000.
Segregation in Ceres
The following are highlights of segregation metrics as they apply in Ceres. For further information regarding the history of racial segregation, please refer to Appendix A. As of 2019, Hispanic or Latino individuals comprise 61 percent of Ceres’ population followed by non-Hispanic White (24 percent), Asian (7 percent) Black or African American (4 percent), and two or more races (3 percent); and
American Indian or Alaska Native and Native Hawaiian and Other Pacific Islander individuals each represent less than 1 percent of the City’s population.
12 Source: Do Strict Land Use Regulations Make Metropolitan Areas More Segregated by Income?, Michael C. Lens and Paavo Monkkonen, 2016.
13 Source: Local Land Use Regulation and the Chain of Exclusion, Rolf Pendall, 2000. 14 Source: Segregation by Design: Local Politics and Inequality in American Cities, Jessica Trounstine, 2018. 15 Source: An Equilibrium Model of Sorting in an Urban Housing Market, Patrick Bayer, Robert McMillan, and Kim Rueben, 2004.
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ITEM 16
Chapter 1.0 – Introduction 1-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Ceres’ General Plan and Municipal Code historically emphasized single-family residential development patterns and consequently, the City offers a limited variety of housing types with 79 percent single family detached units. Historically, this type of development contributed to segregation patterns, including in Ceres, due to, among other factors, the higher purchase costs that accompany single-family homes. Though Ceres’ population demographics are more diverse than neighboring jurisdictions within Stanislaus County and restrictive covenants were not enacted specifically in the City, enacting policies and programs that promote AFFH and an inclusive housing stock could assist existing community members in obtaining adequate and affordable housing.
Regional Segregation
The following are highlights of regional segregation metrics as they apply to Ceres. Ceres has a lower share of White residents than the County, a higher share of Hispanic or Latino residents, a higher share of Black residents, and a higher share of Asian and Native Hawaiian and Other Pacific Islander residents; and
Regarding income groups, Ceres has a lower share of above moderate-income residents than the County and a higher share of lower income residents.
1.5 Overview of Planning Efforts
This section provides an overview of planning and legislative efforts that provide the context for development of the 6
th Cycle Housing Element.
Effectiveness of Previous Housing Element
The City of Ceres experienced significantly less development than projected in its Quantified Objectives (79 permits issued v. 2,571 projected). It failed to meet its RHNA allocation in every income category. The goals, objectives, policies, and actions in the 2014 Housing Element complied with State Housing Law and provided proper guidance for housing development in the City. In the 2023-2031 Housing Element update, objectives for each of the goals will be modified as appropriate to more specifically respond to the housing environment in Ceres from 2023 to 2031. Policies will also be modified as needed to respond to current housing element law and existing and anticipated residential development conditions. See Appendix D for a complete review and analysis of Ceres’ 5th Cycle Housing Element (2014-2023).
New State Laws Affecting Housing
While the City has taken steps throughout the 5th cycle to increase housing production locally, the State passed numerous laws to address California’s housing crisis during the same period. As the State passes new legislation in the remainder of the 5
th cycle and during the 6th cycle, the City will
continue to amend the Municipal Code; to monitor and evaluate policies and programs designed to meet State requirements; and to proactively implement new policies and programs to help increase housing production citywide.
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ITEM 16
Chapter 1.0 – Introduction 1-8 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In 2019, several bills were signed into law that include requirements for local density bonus programs, the Housing Element, surplus lands, accessory dwelling unit (ADU) streamlining, and removing local barriers to housing production. The City will implement changes required by State law through amendments to the Ceres Municipal Code. The following is a summary of recent legislation and proposed City activities that will further the City’s efforts to increase housing production during the 6
th cycle. Please see the section above for a discussion of AB 686 (Affirmatively Furthering Fair Housing).
Incentives for Accessory Dwelling Units
AB 68, AB 587, AB 671, AB 881, and SB 13 further incentivize the development of accessory dwelling units (ADUs), through streamlined permits, reduced setback requirements, increased allowable square footage, reduced parking requirements, and reduced fees. In March 2020, the City amended its regulations and procedures to make it easier and less expensive to build ADUs.
Additionally, the City has invested in designing eight (8) distinct ADU building plans that property owners may choose from, eliminating costs of structural design plans for property owners. Further changes will be incorporated into the City’s Municipal Code to ensure compliance with new legislation. In addition to these actions, the City will identify options for incentivizing the construction of ADUs that are available specifically for, and affordable to, lower-income households.
Density Bonus
AB 1763 requires jurisdictions to provide a density bonus to development projects that restrict 100 percent of their units as affordable to lower and moderate-income households. Program 1.7 has been included in Chapter 2 of the Housing Element to ensure a timely update of the Zoning Ordinance to comply with State law.
Low-Barrier Navigation Centers
AB 101 requires jurisdictions to allow “low-barrier navigation centers” by-right in areas zoned for mixed uses and in nonresidential zones permitting multifamily uses, if the center meets specified requirements. Program 3.7 has been included in Chapter 2 of the Housing Element to develop by- right procedures for processing Low Barrier Navigation Centers in Ceres.
Surplus Public Land
In 2019, Governor Gavin Newsom signed an executive order to identify State owned sites to help address the California housing crisis. AB 1255 and AB 1486 seek to identify and prioritize state and local surplus lands available for housing development affordable to lower-income households. As of August 2023, the City is in the process of identifying potential surplus lands, but has not yet identified any.
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ITEM 16
Chapter 1.0 – Introduction 1-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Accelerated Housing Production
AB 2162 and SB 2 address various methods and funding sources that jurisdictions may use to accelerate housing production.
Priority Processing
SB 330 enacts changes to local development policies, permitting, and processes that will be in effect through January 1, 2025. SB 330 places new criteria on the application requirements and processing times for housing developments; prevents localities from decreasing the housing capacity of any site, such as through downzoning or increasing open space requirements, if such a decrease would preclude the jurisdiction from meeting its RHNA housing targets; prevents localities from establishing non-objective standards; and requires that any proposed demolition of housing units be accompanied by a project that would replace or exceed the total number of units demolished.
Additionally, any demolished units that were occupied by lower-income households must be replaced with new units affordable to households with those same income levels.
Housing and Public Safety
Finally, in response to SB 379 and other recent state legislation, local jurisdictions must update their safety element to comprehensively address climate adaptation and resilience (SB 379) and SB 1035 (2018) and identify evacuation routes (SB 99 and AB 747). These updates are triggered by the 6 th
Cycle housing element update. This housing element contains an evaluation of the existing safety element and contains programming actions to update the safety element to satisfy the new state requirements. Also, as sites are identified and analyzed for inclusion in the City’s housing site inventory, special attention will be paid to the risk of wildfire and the need for evacuation routes. In this way, the City will coordinate updates to all three elements (land-use, housing, and safety), so that it can direct future development into areas that avoid or reduce unreasonable risks while also providing needed housing and maintaining other community planning goals.
Consistency with General Plan
The City of Ceres General Plan was adopted in May 2018 and is comprised of the following elements: 1) Land Use and Community Design; 2) Transportation and Circulation; 3) Agriculture and Natural Resources; 4) Health and Safety; 5) Public Facilities and Services; and 6) Economic and Community Development.
Ceres’ housing element is being updated at this time in conformance with the 2023-2031 update cycle for jurisdictions in the Stanislaus Council of Governments (StanCOG) region. The housing element builds upon the other general plan elements and contains policies to ensure that it is consistent with other elements of the general plan. As portions of the general plan are amended in the future, the plan (including the housing element) will be reviewed to ensure that internal consistency is maintained.
ATTACHMENT E
ITEM 16
Chapter 1.0 – Introduction 1-10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
1.6 Public Participation
The City of Ceres’ public participation efforts include extensive outreach including but not limited to the following:
Development of a dedicated housing element update website:
https://engage.emcplanning.com/cereshousingplan;
Housing Element informational flyer educating the public on the 6th Cycle Housing Element Update planning process, Stakeholder Survey, Property Owner Interest Form, and the release of the Public Draft;
Public meetings held to inform the public and elected officials of the 6 th Cycle Housing Element
Update process on the following dates, July 17, August 7, and August 14, 2023; and Formal consultation with representatives from five (5) Native American tribes in Stanislaus County.
For a comprehensive review of outreach, refer to Appendix E – Outreach and Public Participation, which details all public engagement and outreach conducted throughout the 6 th Cycle Housing
Element Update planning process. The following attachments are included with Appendix E:
Attachment A – Public Draft Comment Report
Attachment B – Stakeholder Survey Report
Attachment C – Outreach Materials
Appendix E will continue to be updated throughout the planning process.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
2.0 Goals, Policies, and Programs
2.1 Introduction
The City of Ceres is responsible for enabling the production of housing by reducing regulatory barriers, providing incentives, and supporting programs that create or preserve housing, especially for vulnerable populations. To enable the construction of quality housing, the City has identified five goals:
Goal 1 Facilitate Housing Construction
Goal 2 Improve the Existing Housing Stock and Pr eserve Affordable Housing Goal 3 Support New Affordable and Other Special Needs Housing Goal 4 Exemplify Sustainable Development and Energy Conservation Goal 5 Publicize Housing Needs and Resources
2.2 What’s New
This section provides an overview of significant new policy and program directions being taken by the City of Ceres to address housing issues in the community and the larger Central Valley Area.
PRO: Prohousing Community
The first new policy direction being taken by the City of Ceres is the decision to pursue becoming a “Prohousing” community. As part of the 2019-20 California Budget Act, AB 101 enacted the Prohousing Designation Program. This program enables the California Department of Housing and Community Development (HCD) to designate jurisdictions throughout the state as Prohousing when they demonstrate policies and planning that accelerate the production of housing. The benefit to jurisdictions receiving the Prohousing designation includes being given preference and, in some cases, additional points, when participating in various state funded programs including the Affordable Housing and Sustainable Communities (AHSC) for disadvantaged communities, and Infill Infrastructure Grant (IIG) programs.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City’s submittal of an application to HCD to gain Prohousing designation is planned to be concurrent with the preparation and certification of its 6th Cycle Housing Element. Part of that effort includes the housing sites inventory. Policies and programs that support the City’s designation by HCD as a Prohousing Community are identified with the letters “PRO”.
AFFH: Affirmatively Furthering Fair Housing
The next policy direction that the City will undergo during the 6th Cycle Housing Element Update involves addressing historic economic and racial segregation patterns. In 2018, the California Legislature established an independent state mandate to affirmatively further fair housing (AFFH).
Affirmatively furthering fair housing is defined specifically as taking meaningful actions that, taken together, address significant disparities in housing needs and in access to opportunity by replacing segregated living patterns with truly integrated and balanced living patterns; transforming racially and ethnically concentrated areas of poverty into areas of opportunity; and fostering and maintaining compliance with civil rights and fair housing laws.
The City of Ceres is adopting new policies and programs through the update of this 6 th Cycle
Housing Element to align with the state’s new AFFH mandate. Policies and programs that support this alignment are identified with the letters “AFFH.”
2.3 Program Overview and Quantified Objectives
Quantified objectives estimate the number of units likely to be constructed, rehabilitated, or conserved/preserved by income level during the planning period. The quantified objectives do not represent a ceiling on development, but rather set a target goal for the jurisdiction to achieve, based on needs, resources, and constraints. Table 2-1 provides an overview of quantified objectives for Ceres.
Table 2-1 Quantified Objectives
Income Category New Construction Rehabilitation Conservation/Preservation Extremely Low 371 5 353
Very Low 371 5 --
Low 513 10 --
Moderate 711 -- --
Above Moderate 1,683 -- --
SOURCE: City of Ceres
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
2.4 Goals, Policies, and Programs
The purpose of this section is to set forth goals, policies, and programs to further the development of housing for all income levels in the community. For each program, the following is true unless otherwise noted:
“Responsible Party” is the City of Ceres Community Development Department; and “Funding Source” is anticipated to be the General fund except in cases where it can be grant funded or subsidized via third-party.
GOAL 1: Facilitate Housing Construction
Policies
Policy 1.1: The City shall establish flexible land use regulations through a planned development process for large tracts of land that allows for a range of housing types and densities within a single development.
Policy 1.2: The City shall encourage the use of specific plans and development agreements on large tracts of land to improve the site planning/development process and increase the predictability of the development process.
Policy 1.3: The City shall continue to expeditiously process residential development proposals that conform to General Plan policies and City regulatory requirements.
Policy 1.4: The City shall allow the installation of mobile homes and factory-built housing on permanent foundations in accordance with residential design standards administered by the City. These standards will not distinguish between site built and factory-built homes.
Policy 1.5: The City shall update the capital improvement plan, as needed, for necessary public facilities and services for new residential projects. The plan will provide for a schedule for completion of capital facilities, depending on when they will be needed in conjunction with development.
Policy 1.6: The City shall encourage mixed commercial/housing developments through its planned development process, when said development can contribute to the City's balance of housing in relation to jobs and/or provide affordable housing for low- and moderate- income households.
Policy 1.7: The City will include a variety of housing types and densities in all annexations that include residential development in compliance and support of State mandated annexation requirements and LAFCO annexation approval procedures in accordance with the Cortese-Hertzberg Act.
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Programs
P rog ra m 1.1: No Net Loss of Residential Capacity to Accommodate the RHNA The City will designate sufficient land to meet its RHNA for 2023-2031, reviewing housing production and vacant land annually to assess if General Plan adjustments are needed.
The Planning Division will annually report progress to the City Council on Housing Element goals and ensure compliance with no-net-loss requirements under Government Code Section 65863. A project-by-project evaluation system will track housing units and site capacity by income category for sites identified in the Site Inventory in Appendix C to maintain RHNA targets.
No action can reduce site density unless replacement sites are identified, and if lower-density developments occur, additional sites must be identified within 180 days. A program to secure and ensure the adequacy of these replacement sites will be adopted before or during the development approval process.
To prevent net loss, the City will monitor built densities annually and make adjustments if needed. If multi-family projects are not meeting the densities in the Sites Inventory by December 2027, the City will explore alternative strategies, such as upzoning or increasing density, to ensure sufficient land is available to meet the RHNA.
Implementation Policies: 1.1 and 1.2
Responsible Department: Community Development Department Timeframe: Review annually; Pursue alternative actions by December 2027, if necessary; Funding Source: General Fund
Quantified Objective: Submit APR annually to HCD
Performance Metric(s): N/A
(Previously Program 1.0, 1.7, and 1.11)
Program 1.2: Master Plans, Specific Plans, and Planned Developments The City shall require that large tracts of vacant land be developed through a specific plan process or a planned development process, to provide for a mixture of housing types and a range of housing densities. The purpose of this requirement will be to ensure that each undeveloped area within the city limits and the Sphere of Influence contains percentages of land at various densities that correspond to the proportion of the City's regional housing needs for each income group and support housing variety in compliance with Government Code Sections 65583 and 65583.2.
Implementation Policies: 1.2, 1.5 and 1.6
Responsible Department: Community Development Department Timeframe: June 2025
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): N/A
(Previously program 1.3)
Program 1 .3: Smaller Minimum Lot Sizes
The City shall amend the Zoning Ordinance’s minimum lot size requirement for single-family dwelling units to 5,000 square feet in the R-2 District.
Implementation Policies: 1.1
Responsible Department: Community Development Department Timeframe: Complete zoning ordinance amendment by June 2025 Funding Source: General Fund
Quantified Objective: 10 additional housing units for future subdivision and new SFR Performance Metric(s): Amend Zoning Ordinance minimum lot size for SF development in the R-2 district
(Previously program 1.6)
Program 1.4: Infill Site Inventory
The City shall create and maintain a citywide inventory of potential residential infill sites. The sites will consist of vacant and underutilized lots that allow residential uses. To ensure that developers are aware of all potential multi-family residential sites, the inventory will identify commercial land use designations that allow accessorial residential uses above ground floor retail, such as Neighborhood Commercial (C-1), Community Commercial (C-2), Downtown Mixed Use (DMU), Mixed Use (MX- 1/MX-2), and Office/Downtown Office/Administrative Professional (O/DO/A-P) Zoning Districts. The City shall make this information available to the public by posting the inventory on the City’s website and providing the inventory at the Planning Division counter.
Implementation Policies: 1.1, 1.2, 1.5, 1.6, and 1.7
Responsible Department: Community Development Department Timeframe: Develop infill site inventory by December 2025 Funding Source: General Fund
Quantified Objective: 10 new infill housing units constructed by July 2031 Performance Metric(s): Expand the City’s affordable housing stock by promoting infill development
(Previously program 1.8)
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 1.5: Promote Second ary Dwelling Units (ADU and JADU) (PRO) To enable the development of ADU/JADUs with the construction of new single-family units, the City shall require construction of at least 10 percent of new single-family development in the West Landing Specific Plan Area to include either an ADU or JADU. This aims to encourage a balanced mix of housing typologies in the City’s new West Landing community.
To further encourage the development of ADUs and JADUs throughout the City, the City is committed to the following actions:
Continue publicizing ADU/ JADU information in the City's newsletter and general application packet; providing a brochure at the Planning Division and posting information on the City's website. Information will include permit requirements, changes in State law, and benefits of secondary dwelling units to property owners and the community. The City shall review and update the promotional materials on an annual basis.
Continue to implement the development of ADU/JADUs through a ministerial process in conformance with State law. The City will develop guidance materials and create a Frequently Asked Questions webpage.
Prioritize permit processing, reduce permit fees, and continue to provide and promote eight unique and free, pre-approved plans for ADU/JADUs.
Monitor permitted ADU/JADUs and their affordability levels on a bi-annual basis to determine the success of the incentive program and if modifications to the program are necessary.
Additionally, based on the number of ADU/JADUs permitted and their affordability, the City will adjust ADU/JADU development assumptions by December 2027, if necessary.
Additionally, the City will update its ADU Ordinance in accordance with State law by June 2025.
Implementation Policies: 1.1, 1.6, and 1.7
Responsible Department: Community Development Department Timeframe: Monitor the number of ADU/JADUs permitted and affordability bi-annually; If necessary, adjust ADU/JADU assumptions by December 2027; Prioritize permit processing and provide eight unique pre-approved plans for ADUs (ongoing); Review and update promotional materials annually; and Adopt ADU Ordinance that complies with State law by June 2025.
Funding Source: General Fund
Quantified Objective: 5 ADU/JADUs (other than the West Landing area) by July 2031 Performance Metric(s): Incentivize ADU/JADU construction through implementing public marketing and developer incentives
(Previously program 1.2)
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 1.6: Zoning for Transitional and Permanent Supportive Housing In compliance with SB 2, the City will continue to allow transitional/supportive housing as a residential use, subject only to those requirements of other residential dwellings of the same type in the same zone.
The City will also amend the Municipal Code to allow supportive housing by-right, requiring no discretionary review in zones where multi-family and mixed-uses are permitted, including nonresidential zones permitting multi-family uses (Government Code Section 65651).
Implementation Policies: 1.1, 1.6, and 1.7
Responsible Department: Community Development Department Timeframe: June 2025
Funding Source: General Fund
Quantified Objective: Five new transitional or supportive housing units constructed by June 2031
Performance Metric(s): Amend the Municipal Code by June 2025 to make provision for transitional and permanent supportive housing
Program 1.7: Amend the Zoning Ordinance to align with Density Bonus State Law (PRO ) In 2020, the City updated the Density Bonus Program as part of their Zoning Ordinance. Chapter
18.39 of the City’s Zoning Ordinance provides a detailed description of the program. The City’s Density Bonus Program was adopted to contribute significantly to the economic feasibility of affordable housing in proposed developments by offering incentives to developers consisting of density bonuses or other concessions of equal financial value, in compliance with Government Code sections 65915 and 65917.
Density bonuses serve as incentives to provide very low- and low-income housing. According to State law, a density bonus of at least 50 percent over the maximum authorized will be allotted for any housing development consisting of 24 percent low-income units or 15-percent very low-income units. The City shall also update the Zoning Ordinance to be consistent with the newly adopted General Plan.
Implementation Policies: 1.1, 1.2, and 1.6
Responsible Department: Community Development Department Timeframe: Amend Zoning Ordinance by December 2024
Funding Source: General Fund
Quantified Objective: 20 Housing units affordable to lower-income households by July 2031
Performance Metric(s): Amend Zoning Ordinance to update Density Bonus Law
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-8 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 1.8: Streamline Permit Processing Procedures (PRO) Processing and permit procedures can pose a considerable constraint to the production and improvement of housing. Unclear permitting procedures add uncertainty in the development of the project, and increase overall financial risk assumed by the developer.
The Municipal Code will be updated to simplify and clarify both the required permit type(s) for multi-family residential uses and the decision-making authority. Additionally, the City will develop an associated easy-to-read handout that clearly illustrates the process and develop a universal application for planning permits. These changes will increase certainty and improve the transparency of entitlement procedures.
The City will also complete the following actions:
Establish permit processes that take 4 months or less; Streamline permit procedures to minimize the levels of review and approval required for projects;
Establish a single point of contact across departments in which entitlements are coordinated through City approval functions from entitlement application to certificate of occupancy; Establish a standardized application form for all entitlement applications; Limit the total number of required hearings for any project to three or fewer; and Publicly post status updates on project permit approvals on the City website.
Implementation Policies: 1.3
Responsible Department: Community Development Department Timeframe: Update Municipal Code by June 2025
Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Simplify and streamline permit processing procedures by June 2025
Program 1.9: Changes to the Zoning Code
In an effort to increase housing development for all income categories towards meeting RHNA goals, the City of Ceres will make the following changes to the Zoning Code:
General Amendments to Zoning Code
Update the Zoning Code to ensure that allowable locations of residential and mixed-use zoning districts are fully consistent with the General Plan Land Use Diagram;
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Prohibit single-family detached residential uses in the R-3, R-4, and R-5 Districts; Codify SB 9 regulations to facilitate new construction on single-family parcels according to Government Code Sections 66452.6, 65852.21 and 66411.7; Establish minimum density requirement of 7 dwelling units per acre in the R-3 Zoning District; Establish minimum density requirement of 12 dwelling units per acre in the R-4 Zoning District; Establish minimum density requirement of 20 dwelling units per acre in the R-5 Zoning District; Amend development standards for the R-3, R-4, and R-5 Zoning Districts to permit a minimum lot coverage of 70 percent and maximum front-yard setbacks of 15 feet; Increase permitted FAR in R-3 Zoning District to allow a FAR of at least 0.60 for single-story buildings on interior lots and a FAR of at least 0.70 for single-story buildings on corner lots; Increase permitted FAR in R-4 Zoning District to allow a FAR of at least 0.70 for single-story buildings on corner lots;
Increase permitted FAR in R-5 Zoning District to allow a FAR of at least 0.70 for single-story buildings on corner lots;
Reduce parking standards for R-3, R-4, and R-4 Zoning Districts to require one and a half (1.5) parking spaces regardless of the number of bedrooms and further reduce to on-half (0.5) parking spaces for affordable residential units;
Identify height limit for the M-1 Zoning District of a maximum of 50 feet requiring no Planning Commission approval; and
Remove the on-site improvement requirement for a wall or vegetative barrier for multi-family projects located adjacent to single-family uses.
Permit Zoning for a Variety of Housing Types According to State Law Add the definition for Single Room Occupancy (SROs), and permit SROs by-right, requiring no discretionary review in all zones that allow mixed-uses; Eliminate open space and parking requirements for SROs; Permit mobile and manufactured housing in all zones (specifically the R-A Zone) where single- family residential is allowed, in compliance with Government Code Section 65852.3(a); Amend the definition of emergency shelters in compliance with AB 2339, Statutes of 2022; Amend the written development standards for emergency shelters to allow proximity requirements in compliance with Government Code Section 65583.(a)(4), such that emergency shelters shall not be required to be more than 300 feet apart;
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Amend the written development standards for emergency shelters to require parking consistent with AB 139, requiring only sufficient parking to accommodate all staff working in the emergency shelter;
Permit emergency shelters by-right in the Highway Commercial Zone (H-1) and PC Zone with Service Commercial General Plan Designation;
Review all development standards, related to emergency shelters, and make necessary revisions to ensure consistency with State Law;
Permit residential care facilities serving six or fewer persons as a single-family use, subject only to the generally applicable, nondiscriminatory health, safety, and zoning laws that apply to all single-family residences; and
Permit residential care facilities serving seven or more persons in all zones allowing residential uses, only subject to requirements of other residential uses of the same type in the same zone.
Implementation Policies: N/A
Responsible Department: Community Development Department Timeframe: Complete all zoning code amendments by January 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Amend Municipal Code to facilitate residential development
Program 1 .1 0: West Landing Specific Plan Development The City’s housing sites inventory includes the West Landing Specific Plan (WLSP) Area (Site 1), which is anticipated to develop a total of 2,631 residential units over the eight-year planning period.
The housing distribution for this site is planned as follows:
Lower-income units: 865 multi-family dwelling units;
Moderate-income units: 459 townhouse/single-family dwelling units; Above moderate-income units: 1,307 single-family dwelling units; and ADUs: 131 units (30, 30, 30, 10 distribution rule of thumb).
Multi-Family Residential Development and ADU/JADU Requirements To enable the development of ADU/JADUs with the construction of new single-family units, the City shall require construction of at least 10 percent of new single-family development in the West Landing Specific Plan Area to include either an ADU or JADU. This aims to encourage a balanced mix of housing typologies in the City’s new West Landing community.
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-11 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City will actively monitor the issuance of building permits for multi-family residential units and ADUs throughout this period. If development progress falls short of achieving the construction targets of 300 multi-family residential units and 65 lower-income ADUs by Winter 2028, the City will reassess its land use strategies. Necessary amendments to zoning or other land use documents will be undertaken to meet RHNA requirements and ensure continued progress towards meeting housing development goals.
Infrastructure Improvements
The WLSP Area requires development of a tertiary treatment plant and installation of a sewer lift to provide wastewater service to the area. To ensure the tertiary treatment plant is constructed in a timely manner along with all other infrastructure improvements, the City is committed to the following actions:
Develop and complete cost-sharing agreement for extension of sewer facilities along Service Road in WLSP Area by Fall 2024;
Complete extension of sewer facilities along Service Road by Summer 2025; Begin construction of tertiary treatment plant and sewer lift station by Summer 2025; and Completion of tertiary treatment plant and sewer lift station by Summer 2027.
The City will collaborate with developers to ensure the timely construction of infrastructure, thereby facilitating the readiness of units for occupancy within the eight-year planning cycle.
If by December 2025, the City has not developed a cost-sharing agreement for the extension of sewer facilities along Service Road, and if construction of the tertiary treatment plant and sewer lift station has not commenced, the City will consider alternative land use strategies and make necessary amendments to zoning or other land use documents to make available appropriate land for the development of housing to meet the RHNA. Specific actions the City may take include upzoning or increasing density to accommodate more residential units.
Subdivision Process
Further, the project requires subdivision of parcels to accommodate residential uses. To ensure the subdivision process is completed promptly to facilitate residential development within the planning period, the City is committed to the following actions:
Conducting outreach with property owners and non-profit affordable housing developers to maintain project momentum;
Providing density bonuses in accordance with State law; Reducing fees and expediting permitting processes to shorten time to market;
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ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-12 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Offering technical assistance and resources, such as navigating regulatory requirements; and Marketing the SB 35 by-right approval process when development plans include 20 percent affordable units.
Implementation Policies: 1.7
Responsible Department: Community Development Department Timeframe: Complete infrastructure improvements by Summer 2027; 300 lower-income multi-family building permits by January 2028; 65 lower-income ADU building permits by January 2028
Funding Source: General Fund
Quantified Objective: 572 VL units, 293 LI units, 459 M units, 1,307 AM units, and 131 ADUs
Performance Metric(s): Facilitate development in the West Landing Specific Plan Area P rog ra m 1.11: N on-Discretionary Approval Process for 4 th and 5 th Cycle Reused Sites The City shall implement a by-right non-discretionary approval process option for sites listed with the 6th Cycle Sites Inventory per Government Code 65583.2(c) for vacant sites previously identified in the 4th and 5th Cycle Housing Elements, and for non-vacant sites previously identified in the 5th Cycle Housing Elements when a developer builds at least 20 percent affordable units to accommodate the low- and very low-income RHNA. This applies to all sites identified in the Sites Inventory (see Appendix C). This will simplify the permitting process, reduce fees and potential permit appeals.
By-right means a jurisdiction shall not require the following:
Conditional Use Permit;
Planned Unit Development Permit;
Design review other than Objective Development Design Standards; or Other discretionary, local government review or approval that would constitute a “project” as defined in Section 2100 of the Public Resources Code (California Environmental Quality Act “CEQA”).
Sites 1 and 2 are required to comply with the Subdivision Map Act, which requires that subdivision of land be approved by the City. Therefore, Sites 1 and 2 will require discretionary review for the subdivision of land, but all other relevant planning entitlements will meet by-right requirements as outlined above.
Implementation Policies: N/A
Respons
ible Department: Community Development Department
T
imeframe: Housing developments with 20 percent affordability to lower-income households on prior identified sites, as described above, will be permitted by-right pursuant to Government Code section 65583.2, subdivision (i) upon adoption of the housing element with supplemental procedures to be established by March 2025.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-13 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Facilitate development of 4th and 5th cycle reused sites
Program 1.12: Whitmore Ranch Specific Plan Development The City’s housing sites inventory includes the Whitmore Ranch Specific Plan Area (Site 2), which is anticipated to develop a total of 372 residential units over the eight-year planning period. The housing distribution for this site is planned as follows:
Lower-income units: 137 multi-family dwelling units;
Moderate-income units: 67 townhouse/single-family dwelling units; and Above moderate-income units: 168 single-family dwelling units.
The City's Economic Development Manager is collaborating with non-profit affordable housing developers to evaluate the feasibility of constructing affordable multi-family units in the Whitmore Ranch Specific Plan Area. To encourage early multi-family residential development, the City is encouraging interested developers to construct multi-family concurrently with single-family projects.
Recognizing the higher costs of multi-family construction, the City is committed to offering developer incentives, including the following:
Conducting outreach with property owners and non-profit affordable housing developers to maintain project momentum;
Providing density bonuses in accordance with State law; Reducing planning permit entitlement fees for affordable housing projects with deed-restricted units by 50 percent;
Deferring payment of impact fees until prior to issuance of Certificate of Occupancy. Expediting planning review and processing for affordable housing projects; and Offering technical assistance and resources, such as navigating regulatory requirements to ensure maximum development potential is achieved.
Since the project requires subdivision of parcels to accommodate residential uses, these actions are also intended to ensure the subdivision process is completed promptly to facilitate residential development within the planning period.
Additionally, the City will proactively pursue funding opportunities to facilitate the extension of existing infrastructure, including sewer, water, and dry utilities, to support new development.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-14 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City will actively monitor the issuance of building permits for multi-family residential units and ADUs throughout this period. If development progress falls short of achieving the construction target of 65 lower-income residential units by Winter 2027, the City will implement alternative land use strategies and make necessary amendments to zoning or other land use documents to make available appropriate land for the development of housing to meet the RHNA. Specific actions the City may take include upzoning or increasing density to accommodate more residential units.
Implementation Policies: 1.7
Responsible Department: Community Development Department Timeframe: 65 lower-income building permits by Winter 2027; Annually conduct outreach with property owners and developers; Annually pursue funding opportunities to support development and infrastructure improvements.
Funding Source: General Fund
Quantified Objective: 137 VL units, 67 MI units, 168 AM units Performance Metric(s): Facilitate development in the Whitmore Ranch Specific Plan Area
P rog ra m 1.13 Prepare Checklist and Procedures for SB 35 and SB 330 Government Code section 65913.4 allows qualifying development projects with a specified proportion of affordable housing units to move more quickly through the local government review process and restricts the ability of local governments to reject these proposals.
The City will create a SB 35 checklist and written procedures for processing SB 35 applications to ensure efficient and complete application processing and will update the documents in conformance with any changes to state law within twelve months of adoption of new laws. Additionally, the City will develop an application for SB 330 in conformance with State law.
Implementation Policies: 1.7
Responsible Department: Community Development Department Timeframe: June 2025 and within 12 months of any change to the law that would impact the City
Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Reduced approval timeframes
P rog ra m 1.14 Adopt Approval Findings for Residential Development Currently, the City lacks an approved list of approval findings for development. To ensure residential projects are reviewed based on objective criteria, the City will adopt the following findings of approval.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-15 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
1. The proposed project is consistent with the objectives of the General Plan, complies with applicable zoning regulations, Planned Development, Master Plan or Specific Plan provisions, Improvement Standards, and other applicable standards and regulations adopted by the City.
2. The proposed project will not create conflicts with vehicular, bicycle, or pedestrian transportation modes of circulation.
3. The site layout (orientation and placement of buildings and parking areas), as well as the landscaping, lighting, and other development features, is compatible with the General Plan and contributes to development of the City.
This will reduce uncertainty and streamline the approval process for residential developments.
Implementation Policies: 1.3
Responsible Department: Community Development Department Timeframe: Adopt Approval Findings by December 2024
Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Reduced approval timeframes and increased approval certainty
P rog ra m 1.15 Facilitating Development of Nonvacant Sites The Sites Inventory includes 16 nonvacant sites requiring collaboration with property owners to meet the City's RHNA. To support development on these sites, the City will:
Engage Stakeholders: Conduct outreach to property owners and non-profit affordable housing developers to sustain project momentum of nonvacant sites; Incentivize Development: Provide density bonuses in compliance with State law; Reduce Costs: Offer a 50 percent reduction in planning permit entitlement fees for affordable housing projects with deed-restricted units;
Defer Fees: Allow the deferral of impact fee payments until the issuance of a Certificate of Occupancy;
Streamline Processes: Expedite planning review and approval for affordable housing projects; and
Provide Support: Offer technical assistance and resources to navigate regulatory requirements, ensuring the achievement of maximum development potential.
The City remains committed to fostering collaboration and providing resources to ensure the successful development of housing on nonvacant sites.
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-16 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Implementation Policies: 1.1 and 1.2
Responsible Department: Community Development Department Timeframe: Conduct outreach with property owners and developers annually to outline available incentives for nonvacant site development.
Funding Source: General Fund
Quantified Objective: Planning permit entitlements for 16 nonvacant sites as outlined in Sites Inventory (see Appendix C).
Performance Metric(s): Number of nonvacant sites permitted by June 2031.
GOAL 2: Improve the Existing Housing Stock and Preserve Affordable Housing
Policies
Policy 2.1: The City shall promote infill residential development within the Downtown Area and other older parts of the City where adequate public facilities and services are already in place for small projects that can be integrated with existing neighborhoods.
Policy 2.2: The City shall foster the development of vacant and underutilized infill sites by giving priority through expedited application processing to applicants who are developing infill sites over applicants proposing greenfield development projects.
Policy 2.3: Where appropriate, the City shall encourage the consolidation of parcels designated for multi-family residential development when it facilitates efficient development of the parcels.
Policy 2.4: Preserve existing Housing Stock.
Programs
Program 2.1: Preserve Mobile Home Parks
Mobile home parks offer an affordable housing option for many lower-income households. In Ceres, there are several mobile home parks, including Lazy Wheels, Ceres Mobile Estates, and Ceres West Mobile Home Park. To preserve existing mobile home parks, the City will implement a Residential Mobile Home Park zoning ordinance that sets conditions on changes of use or conversions of mobile home parks. The City will also explore utilizing state and federal programs designed to preserve affordable housing, including mobile home parks, rent stabilization measures for mobile home parks, and resident ownership programs. Additionally, the City shall encourage innovative restoration and rehabilitation efforts for mobile home parks.
Implementation Policies: 1.4 and 2.1
Responsible Department: Community Development Department
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-17 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Timeframe: Implement Residential Mobile Home Park Zoning Ordinance by June 2026; Annually monitor and regulate the conversion of mobile home parks Funding Source: General Fund
Quantified Objective: Grant-funded rehabilitation of 20 Mobile Home units Performance Metric(s): Regulate the conversion of mobile home parks; Implement Residential Mobile Home Park Zoning Ordinance
(Previously program 1.5)
Program 2.2: Affordable Housing Sustainable Design
The City shall require that developers of affordable rental housing projects provide information showing how the project will be managed to maintain units in sound condition.
Implementation Policies: 2.1 and 2.2
Responsible Department: Community Development Department Timeframe: December 2025
Funding Source: General Fund
Quantified Objective: Conservation of 25 units
Performance Metric(s): N/A
(Previously program 7.0)
Program 2. 3: Housing Rehabilitation Programs
The City of Ceres will actively collaborate with the Stanislaus County Consortium to ensure housing rehabilitation funding is pursued and directed toward addressing the community's needs. The City will engage with the Consortium at least annually to identify priorities and secure resources for housing rehabilitation initiatives.
Implementation Policies: 2.1 and 2.2
Responsible Department: Community Development Department Timeframe: Pursue funding opportunities available through HUD 2-3 times per year; monitor the NOFA calendar on a quarterly basis
Funding Source: General Fund
Quantified Objective: Rehabilitate 20 homes in need of maintenance Performance Metric(s): Number of permits submitted for rehabilitation/maintenance (Previously program 4.0)
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-18 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 2.4: Preservation of Rental Housing (PRO)
The City shall monitor the status of all affordable units, especially those at-risk of converting to market rate. The City will provide proactive assistance to preserve and enhance the quality of existing rental housing in Ceres. This City currently has six subsidized housing developments, providing a total of 352 deed-restricted affordable rental units.
Ceres Christian Terrace is a HUD subsidized affordable housing apartment community that includes 67 deed-restricted affordable units. The estimated affordability end date is July 31, 2029. The City will coordinate with HUD to determine if deed-restrictions are intended to be extended for the 67 units. If necessary, the City shall identify potential buyers of the at-risk project, such as the Housing Authority of Stanislaus County or a local non-profit organization or housing developer, and identify possible sources of City funding, such as housing set-aside funds to supplement State and Federal sources, such as tax credits.
When a Notice of Intent (NOI) to convert from low-income housing to market-rate housing is received (three years and six months in advance pursuant to Government Code Section 65863.10(b), (c), and (e)), the City will work with property owners to ensure that affected households, local agencies, and prospective tenants are properly noticed and provided information on potential resources for assistance, and any applicable displacement and relocation requirements are complied with.
The City shall also provide assistance by coordinating with residents and directing them to the Stanislaus County Housing Authority to obtain Housing Choice Vouchers. Additionally, the City shall pursue State and Federal monies to provide subsidized assistance to affordable housing units at-risk of converting to market-rate.
Implementation Policies: 2.3
Responsible Department: Community Development Department Timeframe: Conduct outreach and provide assistance to Ceres Christian Terrace tenants by December 2025; Monitor status of the City’s at-risk units annually; Identify potential buyers and sources of funding for at-risk projects when projects have filed an NOI; Annually investigate new funding and financing opportunities to encourage the acquisition/rehabilitation of existing rental housing and conversion into long-term affordable housing; Pursue one acquisition/rehabilitation project over eight-year planning period.
Funding Source: General Fund
Quantified Objective: Monitor and preserve 353 deed-restricted affordable units Performance Metric(s): Maintain the City’s existing affordable rental housing stock (Previously Program 4.1)
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-19 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 2.5: Replacement Unit Program (PRO)
The City of Ceres will adopt a policy and will require replacement housing units subject to the requirements of Government Code section 65915, subdivision (c)(3) on sites identified in the site inventory when any new development (residential, mixed-use, or nonresidential) occurs on a site that is identified in the inventory meeting the following conditions:
Currently has residential uses or within the past 5 years has had residential uses that have been vacated or demolished;
The housing unit was subject to a recorded covenant, ordinance, or law that restricts rents to levels affordable to persons and families of low or very low-income; The housing unit was subject to any other form of rent or price control through a public entity’s valid exercise of its police power; and/or
The housing unit was occupied by low or very low-income households.
Implementation Policies: 2.1, 2.2, and 2.3
Responsible Department: Community Development Department Timeframe: Adopt Replacement Unit Policy by June 2025
Funding Source: General Fund
Quantified Objective: Replacement of 44 units
Performance Metric(s): Implement anti-displacement measures to provide replacement units for applicable sites
Program 2.6: Reduce Multi -Family Parking Requirements (New) Parking requirements increase costs to residential development and take up valuable space that can be used for housing. To encourage the construction of affordable multi-family housing, the City will offer reduced parking requirements for affordable residential units, requiring one-half (0.5) parking spaces. Furthermore, in multi-family residential zoning districts (R-3, R-4, and R-5), parking requirements will be reduced to one and a half (1.5) parking spaces, regardless of the number of bedrooms.
Implementation Policies: N/A
Responsible Department: Community Development Department Timeframe: Adoption of Municipal Code amendments by June 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Reduced parking for affordable units
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-20 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 2.7: Promote Walkability and Active Transportation (PRO) The City will continue to promote walkability and active transportation in compliance with the goals outlined in the Ceres Active Transportation Plan, adopted in 2021. Specifically, the City is committed to the following actions:
Leverage ATP awarded grant funding to improve infrastructure in low resource areas of the city. Seek additional funding through federal, state, and regional sources such as, ATP grants, California Transportation Commission Local Partnership Program funds, Sustainable Communities Grant, and Safe Routes to School Program funds, to implement projects identified in the City’s ATP, including pedestrian and bicycle infrastructure improvements. Collaborate with StanRTA to expand and improve transit routes that connect low-income neighborhoods with employment centers, schools, and other essential services. Prioritize pedestrian corridor projects, sidewalk and ADA improvements, and bike trail development, particularly in disadvantaged and lower-income areas of the city. Dedicate Capital Improvement Program (CIP) funding to support infrastructure projects that enhance walkability and active transportation, with a focus on areas most in need of improved connectivity.
Integrate active transportation improvements into other infrastructure projects, such as stormwater and sewer upgrades, to maximize efficiency and impact. Engage with the community through outreach and education initiatives to encourage walking, biking, and public transit use as sustainable and healthy transportation options.
By implementing these actions, the City will enhance walkability, improve access to active transportation, and create a more connected, equitable, and sustainable community.
Implementation Policies: N/A
Responsible Department: Community Development Department Timeframe: Ongoing; Annually identify active transportation improvements in low-income areas; Annually conduct community active transportation workshop/event; Annually review CIP status and availability of funding for new infrastructure projects to enhance connectivity.
Geographic Target: Census Tracts 25,04, 25.05, 26.02, 26.03, 27.02, 30.03, 30.04, and 31 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Annually review projects that progress the goals of the Ceres Active Transportation Plan and prioritize such development on annual basis
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-21 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 GOAL 3: Support Opportunities for New Affordable and Special Needs Housing
Policies
Policy 3.1: The City shall encourage a mix of housing types throughout the city in order to increase residential choices. The specific mix of housing for any particular neighborhood should depend on existing land uses within and surrounding the neighborhood, the environmental characteristics of undeveloped land within the neighborhood, and the capacity of public services and facilities within the neighborhood.
Policy 3.2: The City shall promote the development of second units (ADUs) in appropriate locations to increase the availability of affordable housing.
Policy 3.3: The City shall plan for a full range of housing types in relation to employment centers in Ceres, transportation, and commercial services.
Policy 3.4: The City shall require that higher density housing be located in areas served by the full range of urban services and near existing or potential public transit routes and employment centers.
Policy 3.5: The City shall encourage the development of new residential projects that are designed to facilitate non-automobile modes of travel as described in the Transportation and Circulation Element.
Policy 3.6: Prioritize the development of affordable housing for Extremely-low Income residents and those with Special Needs (New).
Programs
Program 3.1: Housing Diversity (PRO )
To improve housing mobility and promote more housing choices and affordability throughout Ceres, the City will employ a suite of actions to be targeted in lower density areas, including outreach, resources and other strategies with an overall goal of expanding housing opportunities affordable to extremely low, very low, low, and moderate-income households. Actions and strategies include the following.
1. Collaboration with non-profit affordable housing developers: The City will collaborate with and encourage developers of large subdivisions to include a range of housing types, including multi- family, mixed-use, townhomes, condominiums, clustered-unit development, accessory dwelling units, and mobile homes/manufactured housing in their developments and give priority towards annexing developed areas that enable increased opportunities for affordable housing or a range of housing types. Use a variety of incentives including zoning and land use controls, flexible
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-22 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 development standards, technical assistance, and expedited processing to promote affordable housing and to promote a range of housing types. The City of Ceres will also establish ministerial approval processes for a variety of housing types, including single-family and multifamily housing.
2. Accessory dwelling units (ADUs) and other “missing middle” housing in lower-density zones:
The City will continue to provide eight free, pre-approved ADU building plans, publicize ADU and JADU incentives, such as reduced permit fees and prioritized permit processing. The City will also develop and publish informational materials to guide interested residents and developers through the application process. See Program 1.5 for additional details.
3. Marketing of housing resources and opportunities: The City will provide housing resources and information available through various City and regional in-person and virtual outlets in multiple languages. See Program 5.1 for additional details.
4. Down Payment Assistance Loan Program: The City will continue to provide referrals to the Stanislaus County First Time Home Buyer program. See Program 5.3 for additional details.
5. Local Universal Design Ordinance: The City will adopt local Universal Design guidelines applicable to single-family, duplex, and tri-plex projects. See Program 3.9 for additional details.
Implementation Policies: 3.1, 3.2, 3.3, 3.4, 3.5, and 3.6 Responsible Department: Community Development Department Timeframe: Annually review overall progress and effectiveness in April and include information in annual report to HCD. If the City is not on track to meet its 1,195 lower- income housing unit goal for the 6
th cycle RHNA by June 2027 (I.e.: 597 lower-income units built or in process by 2027), the City will consider alternative land use strategies and make necessary amendments to zoning or other land use documents to facilitate a variety of housing choices, including but not limited to, strategies that encourage missing middle zoning (small scale multi-unit projects up to four-plexes) in addition to lot splits/additional housing units, adaptive reuse, and allowing additional ADU/JADUs, within six months, if sufficient progress toward this quantified objective is not being met.
Geographic Target: Census Tracts 25.05, 25.04, 26.03, 30.03, and 30.04 Funding Source: General Fund
Quantified Objective: Building permits for 1,195 lower-income housing opportunities by December 2031
Performance Metric(s): Facilitate development of diverse housing types (Previously program 1.4 to expedite approvals)
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-23 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.2: Advocate for Additional State and Federal Financial Commitments to Housing (PRO)
The City shall continue to pursue available and appropriate state and federal funding sources in cooperation with private developers, non-profit housing corporations, and other interested entities to support efforts to meet the new construction needs of low- and moderate-income households and to assist persons with rent payments required for existing units. Whether the City applies for funding individually, receives funds as part of the Stanislaus Urban County, or through a formal Joint Powers Agreement with other public agencies, will depend on the type of program and the benefits to City of joint versus singular application.
The City of Ceres shall continue to contact its state and federal legislative and congressional representatives to advocate for higher state and federal financial commitments to low- and moderate-income housing programs to provide local governments with greater financial resources to meet federal and state housing mandates.
In order to continue to incentivize the development of affordable units the City is committed to the following actions:
Continue to apply for appropriate state and federal housing funds, including CDBG and HOME funds. Use funds to assist with providing affordable
housing opportunities in new and existing
housing units;
Post availability of grant or other special funding for affordable housing on the City’s website; and
Notify affordable residential developers, community groups and organizations that serve and represent lower-income households of the availability of affordable housing resources, when available.
Where possible, the City will give priority to projects that are affordable to extremely low- and very low-income households. Some of the more likely sources of funds include:
CDBG Funds: The City will continue to apply to the California HCD for special planning grants to pursue specific projects. The City will submit applications for those funds based on the state’s application time frame and process;
HOME Funds: The State of California also awards HOME funds to localities on a competitive basis for developments that include rental housing, homeownership opportunities, special needs housing and tenant-based rental assistance. The City will submit applications for those funds based on the state’s application time frame and process; Low Income Tax Credits: Federal and state tax credits are available to investors on a competitive basis for the development of lower-income housing units; and
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-24 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Other State-funded programs: The City will make use of available State-funding allocated for affordable housing.
Implementation Policies: 3.3 and 3.5
Responsible Department: Community Development Department Timeframe: Annual assessment; ongoing
Funding Source: CDBG, HOME, PLHA grant, tax credits and other grants and programs, as applicable
Quantified Objective: N/A
Performance Metric(s): Acquire revenue from various Federal and State funds for use in affordable housing
(Previously programs 2.5 and 2.6)
Program 3.3: Housing Assistance for Senior Residents
Seniors are identified as individuals 65 years and older and often experience a combination of factors that can make accessing or keeping affordable housing a challenge. Approximately 10 percent of Ceres’ population is comprised of seniors, 64 percent of whom earn less that the City’s median household income that would benefit from Countywide programs.
The City will continue to support and market the efforts of local non-profit agencies that provide direct housing assistance to senior disabled individuals. In an effort to increase outreach on both housing opportunities and reasonable accommodation procedures, the City will affirmatively market these items by:
Posting information on the City’s website;
Providing materials at City Hall and the library;
Directing mail information to residents;
Distributing information at City events; and
Working with local non-profits, including the Stanislaus County Department of Aging and Veterans Services.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department Timeframe: Disseminate information on an ongoing basis
Funding Source: General Fund
Quantified Objective: 25 individuals referred
Performance Metric(s): Collaborate with community-based organizations to publicize affordable housing opportunities for Seniors
(Previously 3.2)
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-25 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.4: Temporary/Seasonal Farmworker Housing
The City is committed to addressing the housing needs of permanent and migrant farmworkers through the following actions:
Grant Funding and Development Support: Pursue grant opportunities annually for farmworker housing projects, identify developers, and maintain an inventory of suitable sites for development;
Zoning and Standards: Ensure zoning and development standards support diverse housing types, including multi-family, manufactured housing, mobile homes, single-room occupancy, and accessory dwelling units (ADUs);
Developer Assistance: Provide support to developers with funding applications and streamline the application process to mitigate potential constraints; and Outreach and Incentives: Develop an informational brochure outlining funding sources and City incentives, such as priority processing and waiving fees and make available at the Community Development Department and on the City’s website.
The City recognizes the importance of regional collaboration in supporting farmworker households.
Key service providers and programs include:
Spanish Farmworkers Resource Line;
Office of Migrant Services (OMS);
California Rural Legal Assistance;
Central Valley Opportunity Center; and
Farm and Food Worker Relief Grant Program.
These resources will be promoted on the City’s website, and partnerships with the Stanislaus Housing Authority and OMS will ensure continued support for farmworkers.
Currently, the Stanislaus Regional Housing Authority operates Migrant Farmworker Housing Centers in nearby jurisdictions (Patterson, Empire, and Westley). While none are located in Ceres, the City will:
Facilitate Referrals: Coordinate with the Housing Authority to refer Ceres-based migrant farmworkers to these centers, all within a 30-minute commute; and Explore Local Development: Engage with the housing authority to evaluate the feasibility of establishing new Migrant Farmworker Housing Centers within Ceres.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-26 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Timeframe: Develop marketing materials by December 2025; Annually coordinate with Stanislaus Regional Housing Authority and nonprofit developers to facilitate housing production; Develop incentives for developers by December 2027 Funding Source: General Fund
Quantified Objective: 10 applications for employee/farmworker housing by June 2031 Performance Metric(s): The number of applications received for employee/farmworker housing
(Previously 3.3)
Program 3. 5: Affordable Housing for Persons with Developmental Disabilities The City shall refer residents to the Valley Mountain Regional Center for housing and services available for persons with developmental disabilities and provide information on services on the City’s website. As available, the City may pursue State and federal grant funding for direct support of housing construction and rehabilitation specifically targeted for housing for persons with developmental disabilities.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department Timeframe: Pursue State and federal grant funding opportunities on annual basis; refer residents with disabilities on an ongoing basis
Funding Source: General Fund
Quantified Objective: 10 individuals referred
Performance Metric(s): Number of individuals referred to Valley Mountain Regional Center for housing and services.
(Previously 3.5)
Program 3. 6: Support to Address Regional Homeless Needs The City shall participate in the Stanislaus County Housing and Support Service Collaborative (SCHSSC) and the Continuum of Care to help address homeless needs in Ceres and Stanislaus County.
Implementation Policies: 3.1, 3.2, 3.3, 3.4, 3.5, and 3.6 Responsible Department: Community Development Department Timeframe: Ongoing; participate annually
Funding Source: General Fund
Quantified Objective: 15 individuals served annually
Performance Metric(s): Number of individuals served annually, reducing homeless persons in Ceres
(Previously 3.4)
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-27 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.7: Low Barrier Navigation Centers (New )
AB101 (2019) provides a pathway to permanent housing for people experiencing homelessness. A “Low-Barrier Navigation Center” is a housing first, low-barrier, service-enriched shelter focused on moving people into permanent housing that provides temporary living facilities while case managers connect individuals experiencing homelessness to income, public benefits, health services, shelter, and housing.
In order to comply with State law, the City will amend the Zoning Ordinance to include the definition for “Low Barrier Navigation Center” and will develop by-right procedures for processing low barrier navigation centers, including permitting low barrier navigation centers by-right in areas zoned for mixed-use and nonresidential zones permitting multifamily uses.
Implementation Policies: 3.6
Responsible Department: Community Development Department Timeframe: Amend Municipal Code by December 2024
Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Facilitating development of low barrier navigation centers
Program 3. 8: Affordable Housing for Extremely Low -Income Housing Residents ( PRO ) The City will encourage development of housing for extremely-low-income households through a variety of activities such as targeted outreach to for-profit and non-profit housing developers on at least an annual basis, providing in-kind technical assistance, fee deferrals, expedited/priority processing, identifying grant and funding opportunities, applying for or supporting applications for funding on an ongoing basis, reviewing and prioritizing local funding for developments that include housing for ELI households and/or offering additional incentives to supplement the density bonus provisions in State law.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department Timeframe: Conduct affirmative marketing annually and pursue funding opportunities 2-3 times per year
Funding Source: General Fund
Quantified Objective: Construction of 20 ELI units by June 2027 (mid-cycle) Performance Metric(s): Number of units constructed affordable to ELI residents
ATTACHMENT E
ITEM 16
Chapter 2.0 – Goals, Policies, and Programs 2-28 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.9: Accessible/Adaptable Units for Residents with Disabilities (New) The City of Ceres recognizes the special needs of persons with disabilities and the need to retain flexibility in the design review process to accommodate these needs. The City of Ceres will implement Universal Design guidelines, which allow for new construction and home modifications that enhance the full life cycle use of housing in order to accommodate a wide range of physical abilities or disabilities of a home’s occupants.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department Timeframe: Adoption of Universal Design Guidelines by December 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Adopt Universal Design Guidelines by December 2025
Program 3.1 0: Emergency Shelters for Homeless Individuals (New) The City will continue to support housing opportunities for homeless individuals, including emergency shelters, transitional housing and permanent affordable housing. The City of Ceres will ensure that there are sufficient sites available for the construction of emergency shelters that are able to meet the capacity of the City’s current homeless population.
Implementation Policies: 3.6
Responsible Department: Community Development Department Timeframe: Complete Municipal Code amendments per Program 1.9 by January 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Reduce the size of the City’s homeless population Program 3.1 1 : Employee Housing (New)
As detailed in Program 2.4, the City has 352 deed-restricted affordable housing units. The City will monitor these units to ensure they remain deed-restricted and take actions as outlined in Program
2.4 to preserve them. In addition to preserving existing affordable housing units, the City of Ceres will support the expansion of affordable and rental housing opportunities through the marketing actions described in Program 5.1, to enable local employees such as teachers, police, fire fighters and other City personnel to live in the community where they work.
In compliance with Health and Safety Code Sections 17021.5, the City will amend the Zoning Code to permit employee housing for six or fewer persons as other single-family uses of the same type in the same zone across all zones that allow single-family residential uses in compliance with the California Employee Housing Act. Additionally, the City will amend the Zoning Code to define employee housing consisting of no more than 12 units or 36 beds to be permitted in the same manner as other agricultural uses in the same zone (Section 17021.6).
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Chapter 2.0 – Goals, Policies, and Programs 2-29 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Implementation Policies: 3.1, 3.2, 3.3, and 3.6
Responsible Department: Community Development Department Timeframe: Complete Municipal Code amendments by January 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Update Zoning Code to comply with Health and Safety Code Sections 17021.5 and 17021.6
Program 3. 12: Housing Assistance for Veterans
The City of Ceres will partner with the Stanislaus Housing Authority to provide housing assistance for veterans within the City.
Implementation Policies: 3.1 and 3.6
Responsible Department: Community Development Department Timeframe: Ongoing
Funding Source: General Fund
Quantified Objective: Provide housing assistance to at least five veterans per year Performance Metric(s): Reduction of homelessness among the City’s veteran population
Program 3.13: Affordable Housing Water & Sewer Priority Pursuant to SB 1087, the City shall forward its adopted housing element to the City’s Public Works Department and the City of Modesto Public Works Department so all parties can grant priority for water and sewer service allocations to proposed developments that include units affordable to lower- income households. The City’s Public Works Department and the City of Modesto Public Works Department will grant priority to new affordable housing for hookups to connect to the City’s conveyance systems.
The City will develop a water distribution policy to ensure water allocations are directed to units that meet the City’s Regional Housing Needs.
Implementation Policies: 3.1
Responsible Department: Community Development Department Timeframe: Upon certification, provide Adopted Housing Element to water and sewer providers; Develop Water Distribution Policy by December 2025 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Number of lower-income developments that receive priority water and sewer services.
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Chapter 2.0 – Goals, Policies, and Programs 2-30 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.14: Family Friendly Housing
Promote multi-family housing designs and unit mix to attract multigenerational households by encouraging developers to include housing features and more bedrooms (including four-bedroom units), as well as other on-site amenities, such as usable outdoor open space for multigenerational use, and multipurpose rooms that can be used for after-school homework clubs, computer, art, or other resident activities. To address potential displacement of households with four or more persons, the City will research options to expand regulatory incentives to encourage the development of larger units.
Implementation Policies: 3.1, 3.2, 3.3, 3.5, and 3.6
Responsible Department: Community Development Department Timeframe: Develop regulatory incentive by June 2025
Geographic Target: Census Tracts 25.05, 25.04, 26.03, 30.03, and 30.04 Funding Source: General Fund
Quantified Objective: 15 family friendly designated units (four-bedroom units) Performance Metric(s): Number of four-bedroom units constructed by June 2031
Program 3.15: Reasonable Accommodation
To eliminate subjectivity in the review of requests for reasonable accommodation, the City will an amend Municipal Code Chapter 18.41.040 to remove the findings requirements outlined in Sections B and C and as follows below.
“B. The City may consider, but is not limited to, the following factors in determining whether the requested accommodation is necessary to provide one or more individuals with a disability an equal opportunity to use and enjoy a dwelling: 1. Whether the requested accommodation will affirmatively enhance the quality of life of one or more individuals with a disability; 2. Whether the individual or individuals with a disability will be denied an equal opportunity to enjoy the housing type of their choice absent the accommodation; 3. In the case of a residential care facility, whether the requested accommodation is necessary to make facilities of a similar nature or operation economically viable in light of the particularities of the relevant market and market participants; and/or 4. In the case of a residential care facility, whether the existing supply of facilities of a similar nature and operation in the community is sufficient to provide individuals with a disability an equal opportunity to live in a residential setting.
C. The City may consider, but is not limited to, the following factors in determining whether the requested accommodation would require a fundamental alteration in the nature of the City's zoning laws, rules, policies, practices, and procedures: 1. Whether the requested accommodation would fundamentally alter the character of the neighborhood; 2. Whether the accommodation would result in a substantial increase in traffic or insufficient parking; 3. Whether granting the requested accommodation would substantially undermine any
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Chapter 2.0 – Goals, Policies, and Programs 2-31 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 purpose of either the City's general plan or applicable specific plan; and/or 4. In the case of a residential care facility, whether the requested accommodation would create an institutionalized environment due to the number of and distance between facilities that are similar in nature or operation.” Additionally, the City will amend Municipal Code Chapter 18.34 to clarify the term “aggrieved parties” in relation to reasonable accommodation, and to limit the parties eligible to appeal a request for reasonable accommodation to the applicant or the personal beneficiary.
Implementation Policies: 3.6
Responsible Department: Community Development Department Timeframe: Adoption of Municipal Code amendments by December 2024 Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): Eliminate subjectivity from the City’s Reasonable Accommodation procedures
GOAL 4: Exemplify Sustainable Development and Energy Conservation Policies
Policy 4.1: The City shall continue to conserve water usage in the short-term and improve the City’s water supply and storage capacity in the long-term.
Policy 4.2: The City shall continue to publicize its water conservation efforts at the City Hall and on the City's website.
Policy 4.3: The City shall continue to enforce the 1988 Water Conservation Ordinance that limits landscape irrigation to three times per week.
Policy 4.4: The City shall encourage energy efficiency in all new and existing housing.
Programs
Program 4. 1: Weatherization and Energy Conservation for Existing Dwelling Units The City shall continue to post and distribute information on currently available weatherization and energy conservation programs in conjunction with housing rehabilitation. Information is provided at City Hall on Turlock Irrigation District weatherization and energy assistance programs.
Implementation Policies: 4.1 and 4.2
Responsible Department: Community Development Department Timeframe: Ongoing; review annually
Funding Source: General Fund
Quantified Objective: 10 total units rehabilitated (2 ELI units; 2 VLI units; 1 LI units) by June 2031
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Chapter 2.0 – Goals, Policies, and Programs 2-32 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Performance Metric(s): Upgrade/Rehabilitate units in alignment with energy conservation and weatherization measures
(Previously 6.0)
Program 4. 2: Energy Conservation for New Construction The City shall enforce state requirements, including Title 24 requirements, for energy conservation in new residential projects and shall encourage residential developers to employ additional energy conservation measures with respect to the siding of buildings, landscaping, and solar access. Any landscaping and development design guidelines prepared by the City will include consideration of energy and resource conservation.
Implementation Policies: 4.3 and 4.4
Responsible Department: Community Development Department Timeframe: Ongoing; review annually
Funding Source: General Fund
Quantified Objective: N/A
Performance Metric(s): N/A
(Previously 6.1)
GOAL 5: Publicize Housing Needs and Resources
Policies
Policy 5.1: Support and promote fair housing opportunities and services available to City residents. (New)
Policy 5.2: Ensure that sufficient funding and incentives are allocated and publicized for housing construction and redevelopment. (New)
Programs
Program 5. 1: Fair Housing (PRO)
The City shall continue to promote equal housing opportunity for all persons regardless of race, religion, sex, sexual orientation, marital status, ancestry, nation origin, or color by supporting efforts of community groups which provide counseling, investigatory, legal or referral to victims of discrimination. Specifically, the City shall:
Maintain information on state and federal fair housing laws in English and Spanish on the City’s website and at the Planning Division counter for public distribution;
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Chapter 2.0 – Goals, Policies, and Programs 2-33 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Provide information on state and federal fair housing laws in English and Spanish at the public library, police station, fire department, and schools;
Utilize a bilingual individual at the City to refer victims of housing discrimination to the appropriate local organization or to the State Fair Employment and Housing Commission; Seek the cooperation of the local home-builders association, Realtor associations, and lenders in disseminating fair housing information; and
The City will utilize the United Way Information and Referral Service as a resource to refer persons in need of assistance.
Additionally, the City will continue to support and promote the services of organizations that provide fair housing programs to Ceres residents, including:
Project Sentinel Fair Housing Center;
Stanislaus Regional Housing Authority;
Stanislaus County Department of Aging and Veterans Services; Stanislaus County Family Caregiver Support Program;
Stanislaus County Affordable Housing Corporation;
Central Valley Opportunity Center; and
Stanislaus County Habitat for Humanity.
The City will market the availability of the services provided by these organizations through written material available at City Hall and on the City’s website. The City will also develop an engagement strategy to promote education and awareness of fair housing law and tenant protections, including source of income, State rent stabilization, just cause eviction regulations, and other related State laws. Additionally, the City will market listings for affordable housing as available.
Implementation Policies: 5.1
Responsible Department: Community Development Department Timeframe: Annually market service organizations that provide fair housing resources; Develop engagement strategy by June 2026; Market affordable housing listings as available Geographic Target: Census Tracts 25.05, 25.04, 26.03, 30.03, and 30.04 Funding Source: General Fund
Quantified Objective: Develop Engagement Strategy; Number of affordable housing listings marketed by July 2031
Performance Metric(s): Reduce number of fair housing cases during housing cycle (Previously Program 5.0)
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Chapter 2.0 – Goals, Policies, and Programs 2-34 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 5.2: Housing Choice Voucher (Section 8) Program (PRO) The City shall continue to encourage and promote the Stanislaus County Housing Authority in its administration of the Housing Choice (Section 8) rental assistance program. The Housing Authority publicizes the Section 8 rental assistance program through marketing efforts such as: advertisements in Modesto Bee and Ceres Courier, and brochures made available at City Hall.
Implementation Policies: 5.1 and 5.2
Responsible Department: Stanislaus County Housing Authority Timeframe: Market housing choice vouchers annually, as available; review progress annually
Geographic Target: Census Tracts 25.05, 25.04, 26.03, 30.03, and 30.04 Funding Source: General Fund
Quantified Objective: 10 Housing Choice Vouchers
Performance Metric(s): Number of Housing Choice Vouchers utilized (Previously 2.0)
Program 5. 3: First -Time Home Buyer Downpayment Assistance The City shall continue to refer qualified residents to the Stanislaus County First Time Home Buyer program, which lends qualified households up to twenty (20) percent of the home’s sales price for down payment assistance to lower income households, including those extremely low-, very low-, and low-income categories. The City shall publicize this program to residents on the City’s website with other housing information. This program is funded through the Stanislaus Urban Consortium and ultimately HUD.
Implementation Policies: 5.1 and 5.2
Responsible Department: Community Development Department Timeframe: Ongoing; Market program annually
Funding Source: General Fund
Quantified Objective: 5 homes purchased through this program by June 2027 (mid-cycle) Performance Metric(s): Number of homes purchased through this program (Previously program 1.9)
Program 5.4: Place -Based Strategies to Support Infrastructure Improvements (New) The City will invest in infrastructure and services to revitalize low-resource areas and enhance the quality of life in Ceres through the following actions:
Biannual coordination with StanRTA to improve bus routes connecting low-income neighborhoods to employment centers;
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Chapter 2.0 – Goals, Policies, and Programs 2-35 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Utilizing CDBG funds for ADA sidewalk improvements in disadvantaged areas, including the current project in Morrow Village (north of Whitmore Avenue and west of Mitchell Road); Partnering with the San Joaquin Regional Rail Commission on pedestrian infrastructure upgrades for safe access to the planned Altamont Corridor Express (ACE) train station near Downtown Ceres by 2027; and
Allocating CIP funding to projects in lower-income areas, such as pedestrian corridors, bike trails, transit route expansion, and stormwater and sewer improvements.
These efforts, as detailed in Chapter 4 and Appendix A, will prioritize equity by enhancing parks, streetscapes, and community amenities in underserved neighborhoods citywide.
Implementation Policies: 5.1 and 5.2
Responsible Department: Community Development Department Timeframe: Ongoing; Monitor annually and seek funding for infrastructure improvement projects annually review; apply three to four times for grant funding annually Geographic Target: Census Tracts 25,04, 25.05, 26.02, 26.03, 27.02, 30.03, 30.04, and 31 Funding Source: General Fund
Quantified Objective: One to two improvements per year
Performance Metric(s): Amount of funds expended for infrastructure improvements
Program 5.5: Place -Based Strategies to Support Economic Mobility (New) The City will implement strategies to improve economic opportunity for very low-income residents by expanding access to low-barrier, low-skill jobs through the following actions:
Meeting with at least two community-based partners biannually to expand job opportunities, provide job readiness training, and support services such as resume building and interview preparation to increase the household incomes for very low-income households; Collaborate with the Chamber of Commerce to encourage local employers to identify and advertise well-paying entry-level positions to Below Market Rate (BMR) tenants in Ceres; and Partner with job readiness service providers to promote training programs and job openings to BMR tenants and property managers at least twice per year.
These efforts will focus on lower-income areas to ensure equitable opportunities for all households, as outlined in Chapter 4 and Appendix A.
Implementation Policies: 5.1 and 5.2
Responsible Department: Community Development Department Timeframe: Engage Community-Based Partners bi-annually; market entry level positions (ongoing)
Geographic Target: Census Tracts 25,04, 25.05, 26.02, 26.03, 27.02, 30.03, 30.04, and 31
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Chapter 2.0 – Goals, Policies, and Programs 2-36 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Funding Source: General Fund
Quantified Objective: Meet bi-annually with at least two community-based partners; Collaborate with job readiness service providers to ensure information is marketed at least twice per year to BMR tenants; Assist in connecting 10 residents bi-annually with job- training programs or job opportunities.
Performance Metric(s): Reduction in local unemployment rates for lower-income residents
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
3.0 Overview of Housing Needs and Constraints
3.1 Introduction
This chapter summarizes housing needs and constraints in the City of Ceres. The analysis of housing needs primarily utilizes U.S. Census, ACS 5-Year Estimate data. For a detailed analysis of housing needs, please see Appendix A— Housing Needs & Fair Housing Report. Also, for a detailed analysis of governmental and non-governmental constraints, please see Appendix B—Housing Constraints.
3.2 Overview of Housing Needs
The following section provides an overview of demographic information, household and housing stock characteristics, and special housing needs in Ceres.
Population Growth
Table 3-1 shows population growth in Ceres, the County, and nearby comparable cities between 2010-2019. In Ceres, the population increased approximately 9 percent from 2010 to 2019. Between this period, the City of Ceres’ population steadily increased as did the County and nearby comparable cities of Oakdale and Turlock. Ceres’ population in 2019 was 48,214, larger than Oakdale but smaller than Turlock and the County.
Table 3-1 Population Growth by Jurisdiction, 2010-2019
Jurisdiction Population
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Stanislaus County 509,682 512,469 515,115 518,321 522,794 527,367 530,561 535,684 539,301 543,194 Ceres 44,153 44,731 45,086 46,022 46,570 46,952 47,231 47,650 47,975 48,214 Oakdale 20,076 20,364 20,663 20,943 21,260 21,543 21,796 22,256 22,599 22,936 Turlock 67,376 67,953 68,576 69,185 69,875 70,596 71,166 71,906 72,335 72,904 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 Age Characteristics
In 2010, Ceres’ predominant age group was individuals between 15 and 24 years of age (17 percent).
Between 2010 and 2019, the general age of the population has been slowly increasing; however, the
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 most populous age groups in the city appear to be individuals between 5 and 14 years of age. Senior populations have remained less than 2 percent in the city since 2010. As of 2019, the city’s median age was 30. Overall, Ceres’ aging trend suggests a demand for housing geared toward younger to middle-aged persons and families.
Table 3-2 shows that Ceres’ most populous age group in 2019 was individuals 5 to 14 years of age (18 percent). Compared to the County and nearby cities, Ceres has the largest 5-14, 15-24, and 25-34 age groups. In contrast, Ceres and Oakdale both have the smallest 65 and older age groups (less than 6 percent, respectively).
Table 3-2 Population Age Distribution by Jurisdiction, 2019 Jurisdiction Population Age
0-4 5-14 15-24 25-34 35-44 45-54 55-64 65-74 75-84 85+
Stanislaus County 7% 15% 14% 15% 13% 12% 11% 8% 4% 2%
Ceres 8% 18% 16% 16% 13% 12% 9% 6% 3% 1%
Oakdale 8% 16% 14% 12% 16% 12% 11% 6% 4% 1%
Turlock 7% 15% 15% 15% 13% 13% 10% 8% 4% 2%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Race and Ethnicity Characteristics
When comparing the city and the county, Hispanic or Latino and non-Hispanic White populations are the most represented. Hispanic or Latino individuals comprise the majority of both the County (46 percent) and Ceres’ population (61 percent). Those identifying as American Indian or Alaska Native represent the smallest population group within the city (1 percent) followed by Some Other Race/Two or More Races (3 percent). Despite having a smaller population than the County, Ceres’ population is more diverse.
Table 3-3 provides a comparison of racial and ethnic composition by jurisdiction. In 2019, the County (42 percent) and the nearby comparable cities of Turlock (50 percent) and Oakdale (61 percent) had the largest non-Hispanic White populations compared to Ceres (24 percent). Ceres had the largest Hispanic or Latino (61 percent), Asian (7 percent), and Black or African American (4 percent) populations compared to surrounding cities and the County.
Between 2010-2019, Ceres’ population composition experienced fluctuations in nearly all populations. In 2015, all populations experienced a decrease in size with the exception of Hispanic or Latino (8 percent increase) and Some Other Race/Two or More Races (1 percent increase). In 2019, Ceres saw growth in all populations except non-Hispanic White (4 percent decline) and Some Other Race/Two or More Races (0.1 percent decline).
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 3-3 Population by Race by Jurisdiction, 2019
Jurisdiction
American
Indian or
Alaska
Native
Asian,
alone
Black or
African
American,
Non-
Hispanic
White,
Non-
Hispanic
Some
Other
Race
Hispanic
or
Latino
Native
Hawaiian
and Other
Pacific
Islander
Stanislaus
County 0% 5% 3% 42% 3% 46% 1%
Ceres 1% 7% 4% 24% 3% 61% 0%
Oakdale 1% 2% 0% 61% 3% 33% 0%
Turlock 1% 6% 2% 50% 3% 37% 0%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Employment
According to the Stanislaus County 2021 Demographic and Employment Forecast, Ceres is projected to experience an employment growth of 42 percent between 2020-2050. This projected employment growth is 16 percentage points higher than the County (26 percent) and 14 points higher than Turlock (28 percent). This projected increase in job growth presents an opportunity for cities to construct additional housing options for the existing and future workforce. Table 3-4 shows employment growth forecasts in Ceres, the County, and nearby jurisdictions.
Table 3-4 Employment Growth Forecast by Jurisdiction, 2020-2050 Jurisdiction Population Employed Change
2015 - 2050
2020 2025* 2030 2035* 2040* 2045* 2050* Percent
Stanislaus County 238,362 267,154 271,450 276,735 284,324 292,786 302,628 26% Ceres 15,384 18,325 18,804 19,336 20,067 20,876 21,847 42% Oakdale 8,256 8,912 8,937 8,968 9,005 9,135 9,276 12%
Turlock 33,001 38,430 38,828 39,387 40,259 41,243 42,395 28% SOURCE: Stanislaus County Demographic and Employment Forecast, 2021 NOTE: *Projected growth values
Unemployment rates are essential to understanding the affordability needs of a community when determining housing options. Table 3-5 provides a breakdown of unemployment rates for Ceres, the County, and nearby cities. In 2019, Ceres had a 12 percent unemployment rate, mirroring Oakdale.
This indicates an approximate 3 percentage points higher unemployment rate than the County and 5 points higher than the City of Turlock.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 3-5 Unemployment Rate, Ceres, 2019
Jurisdictions Unemployment Rate
Stanislaus County 9%
Ceres 12%
Oakdale 12%
Turlock 7%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Household Characteristics
Table 3-6 provides an overview of the projected housing units needed in Stanislaus County, Ceres, and nearby comparable cities, Oakdale and Turlock.1 Ceres is forecast to have a household growth of approximately 32 percent by 2050. This reflects 4 percentage points more growth than the County and 3 points less than the City of Turlock.
Table 3-6 Housing Forecast by Jurisdiction, 2020-2050
Jurisdiction 2020 2025* 2030* 2035* 2040* 2045* 2050*
Percent
Change from
2015-2040
Stanislaus County 179,276 190,782 200,258 208,137 215,916 222,845 230,072 28% Ceres 13,318 14,278 15,063 15,718 16,366 16,946 17,552 32% Oakdale 7,823 8,413 8,897 9,300 9,697 10,053 10,424 33% Turlock 25,788 27,833 29,464 30,829 32,204 33,460 34,770 35% SOURCE: Stanislaus County Demographic and Employment Forecast, 2021 NOTE: *Projected growth values
Household Type and Size
In Ceres, the largest household type was married-couple family households (56 percent) followed by female-headed households (19 percent). Similarly, the largest household type in the County and nearby cities was also married-couple family households, followed by single-person households.
Ceres has the highest percentage of female-headed (19 percent) and male-headed households (10 percent) compared to the County and nearby cities. Additionally, Ceres (13 percent) has the lowest percentage of single-person households compared to the County (21 percent), Oakdale (24 percent), and Turlock (23 percent).
1 Source: Stanislaus County Demographic and Employment Forecast, 2021
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Ceres’ largest household type according to size is 3-4-person households (39 percent) followed by 5 or more-person households (25 percent). This is consistent with married-couple family households remaining the largest household type since 2010, reflecting a demand for affordable housing units that appeal to larger family households.
Household Income
In Ceres, lower-income households makeup 47 percent of households followed by above moderate- income households (42 percent). Approximately 11 percent of the households in Ceres identify as extremely low-income. Considering 47 percent of households are lower-income, it is likely that the demand for married-couple family households is accompanied by a need for more affordable options. Table 3-7 shows households by income in Ceres.
Table 3-7 Households by Income Category, Ceres, 2015-2019 Income Category Households Percent
Extremely Low-Income (30% or less) 1,455 11%
Very Low-Income (30-50%) 1,780 14%
Low-Income (50-80%) 2,830 22%
Moderate-Income (80-100%) 1,480 11%
Above Moderate-Income (>100%) 5,435 42%
Total 12,980 100%
SOURCE: Department of Housing and Urban Development (HUD) Comprehensive Housing Affordability Strategy (CHAS), 2015-2019 Understanding Ceres’ median household income clarifies what income category households identify with and what is deemed affordable. Ceres’ median household income was $58,667 – approximately $2,037 lower than the County. The City of Oakdale had the highest median household income at $64,555 followed by the County ($60,704).
The household income characteristics in Ceres reveal a demand for the development of more affordable housing options that appeal to larger households. Ceres is comprised of primarily higher- income households (53 percent), most of which identify as married-couple family households (56 percent).
Tenure
The number of residents who own their homes compared to those who rent their homes can help identify the level of housing insecurity (i.e., ability for individuals to stay in their homes) in a city and region. Generally, renters may be displaced more quickly if prices increase.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In Ceres, the housing stock includes 7,945 owner-occupied housing units and 5,030 renter-occupied housing units (Table 3-8). When analyzing housing unit type in tandem with tenure, the majority of all housing units are single-family detached units (79 percent), including 58 percent renter-occupied and 28 percent owner-occupied.
Table 3-8 Housing Units by Type and Tenure, Ceres, 2019 Tenure
Single-
Family
Detached
Single-
Family
Attached
Multifamily Mobile
Homes Total Units
Count Percent Count Percent Count Percent Count Percent Renter-Occupied 2,892 58% 372 7% 1,626 32% 140 3% 5,030 Owner-Occupied 7,516 95% 56 1% 13 0.2% 360 5% 7,945
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
NOTE: Table indicated total occupied housing units.
Homeownership rates often vary considerably across race/ethnicity in the State and throughout the country. These disparities not only reflect differences in income and wealth but also stem from federal, state, and local policies that limited access to homeownership for communities of color while facilitating homebuying for White residents. While many of these policies, such as redlining, have been formally disbanded, the impacts of race-based policy are still evident in communities across the country.
Tenure by race varies substantially in Ceres. The majority of all households are owner-occupied, of which Black or African American households have the lowest rate of ownership (38 percent) and highest rate of renting (62 percent). Hispanic and Latino households makeup the majority of Ceres households (61 percent), yet the homeownership rate is 58 percent compared to non-Hispanic White households at 67 percent homeownership comprising 24 percent of the population.
In many cities, homeownership rates for households in single-family homes are substantially higher than the rates for households in multifamily housing. In Ceres, 95 percent of households in detached single-family homes are homeowners, while 0.2 percent of households in multifamily housing are homeowners.
Disproportionate Housing Needs
Overcrowding
Understanding the prevalence of overcrowded households within a community helps determine the need for affordable and adequately sized housing units for the community. Overcrowding is defined by HUD as a household with more than one occupant per room excluding bathrooms and kitchens.
Units with more than 1.5 persons per room are considered severely overcrowded. Overcrowding
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 may occur due to a lack of available affordable and/or adequately sized housing units. Cultural norms and customs combined with low-income or lack of adequately size housing units can result in overcrowding too.
In Ceres, the majority of households (90 percent) do not experience overcrowding. Eight (8) percent of households in Ceres are overcrowded and 2 percent are severely overcrowded. Overcrowding in Stanislaus County is 3 percentage points less than Ceres. When analyzing overcrowding by tenure, 11 percent of renter-occupied households experience overcrowding compared to 5 percent of owner-occupied households. Rates of severe overcrowding among renters and owners is the same at 2 percent.
Cost Burden
According to HCD, overpayment or cost burden is measured as households spending more than 30 percent of their gross income including utilities for housing; severe overpayment or severe cost burden is measured as households spending 50 percent or more of their gross income for housing.
The cost burden rates of owners and renters in a community provide insight to housing needs such as, the affordability of the local housing market and the availability of housing units that accommodate household needs like size and housing type. Additionally, federal and state agencies examine cost burden to determine a community’s need for housing assistance.
In Ceres, 36 percent of households are cost burdened and 17 percent are severely cost burdened.
The City of Turlock has slightly higher rate of severely cost burdened households (18 percent) compared to Ceres, and the County has a slightly lower rate (16 percent). Overall, the City of Turlock has the highest percent of households experiencing any type of cost burden (39 percent).
When analyzing cost burden by tenure, renter-occupied households experience substantially higher rates of cost burden (23 percent) and severe cost burden (25 percent) than owner-occupied households. Seventeen (17) percent of owner-occupied households are cost burdened and 10 percent are severely cost burdened. Thirty-nine (39) percent of households in Ceres are renters – this in tandem with 48 percent of renter households experiencing some type of cost burden and 13 percent experiencing some type of overcrowding reflects a demand for more affordable housing units.
Neighborhoods
The majority of Ceres residents live in neighborhoods identified as “Low Resource” areas by State- commissioned research, while none live in areas identified by this research as “Highest Resource”.
These neighborhood designations are based on a range of indicators covering areas such as education, poverty, proximity to jobs and economic opportunities, low pollution levels, and other factors.
2 2 For more information on the “opportunity area” categories developed by HCD and the California Tax Credit Allocation Committee, see this website: https://www.treasurer.ca.gov/ctcac/opportunity.asp. The degree to which
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-8 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Special Needs Groups
Extremely Low-Income Households and Poverty Status
Extremely low-income households are those that earn less than 30 percent of the median family income (MFI). Very low-income households are those that earn 50 percent or less of the MFI.
The 2015-2019 Comprehensive Housing Affordability Strategy (CHAS) data indicates there are approximately 3,235 extremely low- and very low-income households living in Ceres. There are approximately 1,455 extremely low-income households in Ceres, 1,000 of which are renters and 455 are owner-occupied households.
In Ceres, 42 percent of households make more than 100 percent of the Area Median Income (AMI), compared to 11 percent making less than 30 percent of AMI, which is considered extremely low income. In Stanislaus County, 30 percent AMI is the equivalent to the annual income of $18,211.
Many households with multiple wage earners, including food service workers, full-time students, teachers, farmworkers and healthcare professionals, can fall into lower AMI categories due to relatively stagnant wages in many industries.
Throughout the region, there are disparities between the incomes of homeowners and renters.
Typically, the number of low-income renters greatly outpaces the amount of housing available that is affordable for these households. Lower-income owner-occupied households as a whole (0-80 percent of AMI), makeup 36 percent of households and renter-occupied households makeup 63 percent of households.
In 2019, 15 percent of the population in Ceres were identified as living below the poverty level.
Currently, people of color are more likely to experience poverty and financial instability as a result of federal and local housing policies that have historically excluded them from the same opportunities extended to white residents.
3 These economic disparities also leave communities of color at higher risk for housing insecurity, displacement or homelessness. In Ceres, Native Hawaiian and Other Pacific Islander residents experience the highest rates of poverty (35 percent), followed by Other Race or Multiple Race residents (32 percent).
Seniors
Seniors are identified as individuals 65 years and older. Senior households often experience a combination of factors that can make accessing or keeping affordable housing a challenge. They often live on fixed incomes and are more likely to have disabilities, chronic health conditions and/or reduced mobility. Seniors who rent may be at even greater risk for housing challenges than those who own, due to income differences between these groups.
different jurisdictions and neighborhoods have access to opportunity will likely need to be analyzed as part of new Housing Element requirements related to affirmatively furthering fair housing. 3 Moore, E., Montojo, N. and Mauri, N., 2019. Roots, Race & Place: A History of Racially Exclusionary Housing the San Francisco Bay Area. Hass Institute.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In Ceres, senior households makeup 10 percent of all households, of which 17 percent rent their homes. Similarly, the County and nearby comparable cities’ senior households primarily own their homes. The majority of Ceres senior households earn a yearly income between $10,000-$19,999 (19 percent). An estimated 67 percent of senior households earn less than the city’s median household income ($58,667).
People with Disabilities
Developmental disabilities are defined as severe, chronic, and attributed to a mental or physical impairment that begins before a person turns 18 years old. This can include Down’s Syndrome, autism, epilepsy, cerebral palsy, and mild to severe developmental disabilities. Some people with developmental disabilities are unable to work, rely on Supplemental Security Income, and live with family members. In addition to their specific housing needs, they are at increased risk of housing insecurity after an aging parent or family member is no longer able to care for them. The most common living arrangement for individuals with disabilities in Ceres is the home of parent/family/guardian followed by independent/supported living arrangements.
Overall, 24 percent of the population in Ceres have a disability of some kind. 4 Of the 24 percent of
people with a disability, 1,467 persons have a developmental disability in Ceres. Of these, 913 are children (i.e., under the age of 18) and 554 are adults.5 Large Households
Large households are defined as households of five (5) or more individuals. Large households often have different housing needs than smaller households. Household income and local housing markets can greatly impact a household’s ability to afford adequately sized housing. If a city’s rental housing stock does not include larger apartments, large households who rent could end up living in overcrowded conditions. Similarly, large households may experience overpayment as a result of a high housing market and limited availability.
Ceres has 3,168 large households, of which 59 percent are owner-occupied households and 41 percent are renter-occupied households. Owner-occupied households makeup the majority of all households by approximately 61 percent. This combined with 36 percent of all households experiencing some level of cost burden, suggests it is likely that large households in Ceres may experience overcrowding and/or overpayment.
4 These disabilities are counted separately and are not mutually exclusive, as an individual may report more than one disability. These counts should not be summed.
5 California Department of Developmental Services, Consumer Count by California ZIP Code and Age Group (2021).
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Single-Parent Households
Households headed by one person are often at greater risk of housing insecurity, particularly female- headed households, who may be supporting children or a family with only one income. Female- headed households with children may face particular housing challenges, with pervasive gender inequality resulting in lower wages for women. Moreover, the added need for childcare can make finding a home that is affordable more challenging.
In Ceres, female-headed family households make up 66 percent of single-parent households and male-headed households makeup 34 percent. This is consistent with the County and nearby comparable cities. In 2019, there were 606 female-headed family households with children that fell in the Below Poverty Level category compared to 17 male-headed family households with children that fell in the Below Poverty Level category in Ceres.
Farmworkers
Across the state, housing for farmworkers has been recognized as an important and unique concern.
Farmworkers generally receive wages that are considerably lower than other jobs and may have temporary housing needs. Finding decent and affordable housing can be challenging, particularly in the current housing market.
According to the U.S. Census Bureau ACS 5-Year Estimate, 4 percent of Ceres’ employment is comprised of Agriculture and Natural Resources. Additionally, the U.S. Bureau of Labor Statistics reports that in 2022, the annual mean wage for farmworkers in the Modesto metropolitan area was $34,580. This annual income places each individual or household in the low-income bracket for Ceres. Additionally, this limited income may be significantly impacted by employment status (permanent or seasonal).
Despite having a small farmworker population, Ceres shares the responsibility for farmworker housing as farmworkers may live within 75 miles of agricultural land uses (including dairy, vineyards and produce) and the city is within 75 miles of these uses. The Stanislaus County Housing Authority administers farmworker housing across the county to address these needs.
Persons Experiencing Homelessness
Homelessness remains an urgent challenge in many communities across the state, reflecting a range of social, economic, and psychological factors. Rising housing costs result in increased risks of community members experiencing homelessness. Far too many residents who have found themselves housing insecure have ended up homeless in recent years, either temporarily or longer term. Addressing the specific housing needs for the unhoused population remains a priority throughout the region, particularly since homelessness is disproportionately experienced by people of color, people with disabilities, those struggling with addiction and those dealing with traumatic life circumstances.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 11 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In Stanislaus County, the most common type of household experiencing homelessness are those without children in their care. Among households experiencing homelessness that do not have children, 60 percent are unsheltered. Conversely, the majority of homeless households with children are in emergency shelters (64 percent). According to the 2023 Stanislaus County Point-in-Time (PIT) Homeless Count, 17 homeless persons were reported in Ceres, which is comparatively much lower than nearby cities.
Limited English Proficiency
In Ceres, 13 percent of residents five (5) years and older identify as speaking English not well or not at all, which is 3 percentage points higher than the proportion for Stanislaus County (10 percent).
This in tandem with a 61 percent Hispanic or Latino population, indicates a need for the prioritization of language translation services for all outreach including fair housing resources and education. In an effort to affirmatively further fair housing, the City has developed Program 5.1, please see Chapter 2 for full program details.
Housing Stock Characteristics
Housing Growth
The number of new homes built in Stanislaus County has not kept pace with the demand, resulting in longer commutes, increasing prices, and exacerbating issues of displacement and homelessness.
Table 3-9 provides an overview of housing growth trends between 2010-2019 in Ceres, the County, and nearby comparable cities. Between 2010-2019, Ceres housing unit estimates declined approximately 4 percent, whereas the County and surrounding cities experienced growth in housing units. These estimates show the majority of housing decline in Ceres occurred between 2015-2019 (-3 percent).
Table 3-9 Housing Unit Growth Trends by Jurisdiction, 2010-2019 Jurisdiction 2010 2015 2019 Percent Change
2010-2015
Percent Change
2015-2019
Stanislaus County 177,591 180,169 181,748 1% 1%
Ceres 13,871 13,741 13,393 -1% -3%
Oakdale 7,441 7,681 8,314 3% 8%
Turlock 24,699 25,350 26,099 3% 3%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 Table 3-10 shows housing permits issued between 2015-2021 by the City of Ceres according to income group. Ceres’ 5th Cycle RHNA was 2,571 housing units. Between 2015 and 2021, permits were issued for 79 housing units in Ceres, 3% of the RHNA. Of those, 71 were for above moderate- income housing, 7 were for moderate-income housing, and one (1) was for low-income housing.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 12 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 3-10 Housing Permits by Income Group, Ceres, 2015-2021 Income Group Number Percent of 5th Cycle RHNA Met
(2,571)
Very Low-Income Permits 0 0%
Low-Income Permits 1 .03%
Moderate-Income Permits 7 0.27%
Above Moderate-Income Permits 71 2.7%%
Total 79 3%
SOURCE: California Department of Housing and Community Development (HCD), 5th Cycle Annual Progress Report Permit Summary (2022).
NOTE: Universe: Housing permits issued between 2015 and 2021. Notes: HCD uses the following definitions for the four income categories: Very Low Income:
units affordable to households making less than 50 percent of the Area Median Income for the county in which the jurisdiction is located. Low Income: units affordable to households making between 50 percent and 80 percent of the Area Median Income for the county in which the jurisdiction is located. Moderate Income: units affordable to households making between 80 percent and 120 percent of the Area Median Income for the county in which the jurisdiction is located. Above Moderate Income: units affordable to households making above 120 percent of the Area Median Income for the county in which the jurisdiction is located.
Housing Type
In recent years, most housing produced in the region and across the state consisted of single-family homes and larger multi-unit buildings. However, some households are increasingly interested in “missing middle housing,” including duplexes, triplexes, townhomes, cottage clusters and accessory dwelling units. These housing types may open up more options across incomes and tenure, from young households seeking homeownership options to seniors looking to downsize and age-in-place.
It is important to have a variety of housing types to meet the needs of a community today and in the future. In 2019 Ceres’ mix of housing types was as follows:
79 percent of homes were single-family detached;
13 percent were multifamily;
4 percent were mobile homes; and
3 percent were single-family attached.
Housing Availability
Table 3-11 shows vacant housing units by type in Ceres. Compared to the county and nearby comparable cities, Ceres has the lowest vacancy rate at 3 percent. Of the vacant units in Ceres, 27 percent are sold but not occupied, and 26 percent are available for rent. The availability of housing compounded with a need in the region, suggests a mismatch of housing need in some proportion (i.e., affordability, size, etc.).
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 13 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 3-11 Vacant Housing Units by Type, Ceres, 2019
Housing Unit Type Estimate Percentage
For rent 109 26%
Rented, not occupied 29 7%
For sale only 40 10%
Sold, not occupied 113 27%
For season, recreations, or occasional use 6 1%
For migrant workers 0 0%
Other vacant 121 29%
Total 418 100%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Displacement
Because of increasing housing prices, displacement is a major concern in Stanislaus County.
Displacement has the most severe impacts on low- and moderate-income residents. When individuals or families are forced to leave their homes and communities, they also lose their support network.
According to the California Department of Housing and Community Development (HCD) AFFH Data Viewer and the Urban Displacement Project 2022 estimates, Ceres’ renter-occupied households earning between 0-80 percent AMI are at highest risk of displacement or gentrification in the central region of the city. This region has also shown concentrations of low resources and high social vulnerability.
Housing Costs and Affordability
Housing costs reflect a complex mix of supply and demand factors, including an area’s demographic profile, labor market, prevailing wages and job outlook, coupled with land and construction costs. A diversity of homes at all income levels creates opportunities for all Ceres residents to live and thrive in the community.
Ownership: The median home value was estimated to be $429,4716 in 2022. Home prices increased by 32 percent from 2019 to 2022, the same as the County. Rental Prices: As of 2022, the average rent for an apartment in Ceres ranged from $1,950 (studio) to $3,499 (four + bedrooms).7
6 Zillow Home Value Index, 2019-2022; Housing value estimates were taken from December for years 2019 -2022. 7 Zillow, 2023; HUD, Fair Market Rent Documentation System, 2023; Zillow rental value estimates were taken from March 2023 and based on Modesto median rental price.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 14 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 3-12 reports the maximum monthly housing costs affordable to households according to income group in Stanislaus County. Income groups are based on the HCD 2022 State Income Limits report, which considers housing affordable assuming a household can pay up to 30 percent of its monthly income toward housing.
Table 3-12 Housing Affordability, Ceres, 2022
Income Group HCD Income Limits
Maximum Affordable Price
Monthly Rental Ownership
Extremely Low (0-30% AMI)
One Person $16,750 $419 $74,229
Two Person $19,150 $479 $84,865
Three Person $23,030 $576 $102,059
Four Person $27,750 $694 $122,976
Very Low (30-50% AMI)
One Person $27,900 $698 $123,641
Two Person $31,900 $798 $141,367
Three Person $35,900 $898 $159,093
Four Person $39,850 $996 $176,598
Low (50-80% AMI)
One Person $44,650 $1,116 $197,870
Two Person $51,000 $1,275 $226,010
Three Person $57,400 $1,435 $254,372
Four Person $63,750 $1,594 $282,512
Moderate (100-120% AMI)
One Person $67,450 $1,686 $298,909
Two Person $77,100 $1,928 $341,674
Three Person $86,700 $2,168 $384,217
Four Person $96,350 $2,409 $426,982
SOURCE: California Department of Housing and Community Development, State Income Limits, 2022, Stanislaus County NOTES: State Income Limits use 2022 AMI (Stanislaus County $80,300)
3.3 Governmental and Non-Governmental Constraints
Housing development is affected by government regulations and other non-governmental forces, such as the cost of land and building materials and the availability and cost of housing loans.
Housing elements are required to investigate the impact of these constraints as they present themselves in the city for which the housing element is being prepared. This subsection provides a brief overview of governmental and non-governmental constraints in the City of Ceres. Please see Appendix B for a full discussion of housing constraints.
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Chapter 3.0 – Overview of Housing Needs and Constraints 3- 15 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City of Ceres has identified a number of ways in which it can reduce the burden of governmental constraints on the production of housing. This 6th Cycle Housing Element update includes new programs to address constraints related to the following areas of government regulation:
Adding single room occupancy as a permitted use by-right in mixed use districts and limit required parking to one (1) space per unit (Programs 1.9 and 2.6); Prohibiting single-family development in all multi-family zoning districts (i.e., R-3, R-4, and R-5 Districts) (Program 1.9);
Permitting low-barrier navigation centers by-right in areas zoned for mixed-use and nonresidential zones permitting multifamily uses (Program 3.7); Codifying SB 9 regulations to facilitate new construction on single-family parcels (Program 1.9); and
Add minimum density requirement in the R-5 or High Density Residential (HDR) land use designation to be 20 du/ac.
With the changes described above, the City of Ceres would have a body of local development regulations that support the development of affordable housing and that do not pose any undue constraint on the development housing for all income groups.
In terms of non-governmental constraints, the relatively low cost of land and its availability for housing development make housing development more affordable in Ceres than in many other parts of California, especially coastal California. The cost of building materials continues to fluctuate and affects the price of housing, but there is no easy solution available at the local jurisdiction level to bring the cost of building materials down. As for environmental constraints, the city is located in a relatively flat area that is not prone to flooding and does not contain large forested areas or active earth quake faults. In conclusion, there exist no non-governmental constraints that pose an undue constraint on the development of affordable housing in the City of Ceres.
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City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
4.0 AFFH Analysis of the Site Inventory
4.1 Introduction
The purpose of this chapter is to provide an overview of housing sites and opportunities in the City of Ceres for the 6th Cycle Housing Element. For a detailed analysis of Cere’s housing sites inventory, please see Appendix C. There is sufficient capacity with existing zoning to accommodate the RHNA for the jurisdiction by income., per Government Code Section 65583(a)(3). Significant portions of the City’s housing Sites Inventory are located in one of two specific plan areas—West Landing or Whitmore Ranch, and Appendix C contains detailed information about these specific plans, such as effective dates, steps for entitlements, and phasing. For each housing site that is not contained in a specific plan area, Appendix C provides an aerial photograph, a brief description of its location, the number of housing units expected on the site, and any constraints to development that may exist.
All of the City’s underutilized Sites Inventory sites have been reused from the 5 th Cycle Housing
Element, or are vacant and have been reused in both the 4th and 5th Cycle Housing Element.
Therefore, all of the sites are subject to “by-right” development for projects that contain at least 20 percent affordable units (see Program 1.11 in Chapter 2). However, development of Sites 1 and 2 will require subdivision action and are therefore subject to discretionary review per the requirements of the Subdivision Map Act, as well as CEQA. All other relevant planning entitlements will meet by- right requirements as identified in Program 1.11 (see Chapter 2).
4.2 Prohousing Community Designation
As part of the 2019-20 Budget Act, AB 101 enacted the Prohousing Designation Program. This program enables the California Department of Housing and Community Development (HCD) to designate jurisdictions throughout the state as Prohousing when they demonstrate policies and planning that accelerate the production of housing. The benefit to jurisdictions receiving the Pro- Housing designation includes being given preference and, in some cases, additional points, when participating in various state funded programs including the Affordable Housing and Sustainable Communities (AHSC), and Infill Infrastructure Grant (IIG) programs. Ceres is positioning itself to apply for HCD’s Prohousing designation concurrent with the preparation and certification of its 6 th
Cycle Housing Element.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
4.3 Regional Housing Needs Allocation
Ceres’ share of the regional housing need for the eight-year period from 2023—2031 is 3,361 units, which is a 31 percent increase over the 2,571 units required by the 2014—2023 RHNA. The housing need is divided into the four income categories of housing affordability. Table 4-1, Ceres’s Regional Housing Needs Allocation – 2023–2031, shows Ceres’ RHNA for the planning period 2023 through 2031 in comparison to the RHNA distributions for the Stanislaus County Region.
Table 4-1 City of Ceres Regional Housing Needs Allocation – 2023–2031 Very Low-
Income Low-Income Moderate
Income
Above Moderate-
Income Total RHNA
<50% of AMI 50%-80% of AMI 80%-120% of AMI >120% of AMI All Income 706 489 661 1,505 3,361
21.01% 14.55% 19.67% 44.78% 100%
SOURCE: StanCOG, 2022
4.4 Site Inventory
The purpose of the sites inventory is to identify and analyze specific sites that are available and suitable for residential development from 2023-2031 in order to accommodate Ceres’ RNHA of 3,361 housing units. While the City doesn’t build the housing, it creates the programs and policies to plan for where it should go and how many units could be on potential sites.
The City of Ceres’ Site Inventory is comprised of two specific plan areas—West Landing and Whitmore Ranch, 20 vacant/underutilized sites, and six pipeline projects. See Appendix C for a complete and detailed description of all sites included in Ceres’ Site Inventory. Table 4-2, summarizes Ceres’ Site Inventory for the 2023-2031 planning period.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 4-2 Overview of Sites Inventory
Adjustment Factor
Very Low-
Income
Units
Low-
Income
Units
Moderate-
Income
Units
Above
Moderate-
Income
Units
Total
Pipeline Projects 20 29 164 93 306
West Landing Specific Plan 572 293 459 1,307 2,631
Whitmore Ranch Specific Plan 76 61 67 168 372
Vacant and Underutilized Sites 12 76 60 86 234
ADUs 39 39 39 13 131
Subtotal 719 498 789 1,667 3,673
Existing Units 0 0 0 44 44
Total 719 498 789 1,623 3,629
2023–2031 RHNA 706 489 661 1,505 3,361
Surplus of RHNA Unit Count 13 9 128 118 268
Surplus of RHNA % 102% 102% 119% 108% 108%
SOURCE: City of Ceres; EMC Planning Group Inc
4.5 Site Inventory Analysis Requirements
Per Assembly Bill (AB) 686, housing elements must analyze the location of lower-income sites in relation to areas of high opportunity, and in instances where lower-income sites are located in lower resource areas and/or segregated concentrated areas of poverty, cities must incorporate policies and programs to remediate those conditions. For example, implementing place-based strategies to create opportunity in areas of disinvestment such as, investments in enhanced infrastructure, services, schools, jobs, and other community needs. The following serves as a complete AFFH analysis of anticipated new housing opportunity sites for the 2023—2031 planning period.
Overview
Table 4-3 and Figures 4-1 through 4-10 show the distribution of projected units by income category for the following AFFH indicators compared to citywide patterns to understand how the projected locations of units will affirmatively further fair housing: median income, predominant population, female-headed households, poverty rates, TCAC/HCD opportunity areas, disability rates, cost burden rates, overcrowding, substandard housing, and median contract rent. The following sites inventory discussion includes an analysis of the number of projected units by income category and total RHNA capacity to further assess the potential impacts of the sites inventory to affirmatively further fair housing.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 As evidenced in Table 4-2, Ceres has adequate sites to accommodate housing development at approximately 108 percent of the RHNA. The land inventory provides total capacity for 3,673 units and opportunities for the development of a variety of housing types suitable for a range of households and income levels. In accordance with State law, all of the sites in the inventory are considered to be zoned appropriately to facilitate housing affordable to lower-income households.
4.6 Quadrant-Based Analysis
Figure 4-1 illustrates the distribution of housing opportunity sites throughout Ceres. The analysis divides the city into quadrants as follows: the far western quadrant (west of Crows Landing Road), the western quadrant (West of State Route 99 and east of Crows Landing Road), the northeast quadrant (north of E. Whitmore Avenue and east of State Route 99), and the southeast quadrant (south of E. Whitmore Avenue and east of State Route 99).
Table 4-3 provides a unit count for each housing opportunity site according to quadrant and AFFH indicators, including median income, predominant population, female-headed households, poverty rates, TCAC/HCD Opportunity Areas, disability rates, cost burden rates, overcrowding, and substandard housing. Together, Figure 4-1 and Table 4-3 evidence the following:
Western Crows Landing Quadrant (West Landing Specific Plan area): Accommodates approximately 943 lower-income units, 498 moderate-income units, and 1,320 above moderate- income units – comprising 82 percent of the city’s RHNA, including a 9 percent buffer. This quadrant can accommodate more sites due to the West Landing Specific Plan, which includes expanded public services and amenities like a new school, parks, and recreational facilities. These improvements will enhance services and increase residential opportunities for various income levels in the western region.
Western Quadrant (west of State Route 99, east of Crows Landing Road): Accommodates 66 lower-income units, 75 moderate-income units, and 100 above moderate-income units – comprising 7 percent of the city’s RHNA, including a 9 percent buffer. This quadrant is characterized by low-density subdivisions with larger parcels, and has limited developable land for new housing opportunities. Expanding lower-income housing here can diversify housing options, reduce low-density concentrations, and improve access to public services, transit, and employment centers.
Northeast Quadrant (east of State Route 99, north of E. Whitmore Avenue):
Accommodates 42 lower-income units, 33 moderate-income units, and 64 above moderate- income units – comprising 4 percent of the city’s RHNA, including a 9 percent buffer. This quadrant includes a mix of residential and commercial uses, and has limited developable land for new housing opportunities. Its proximity to retail, commercial establishments, and transit makes it ideal for increasing affordable housing to support households needing access to public services and transit.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Southeast Quadrant (east of State Route 99, south of E. Whitmore Avenue):
Accommodates 166 lower-income units; 183 moderate-income units; and 183 above moderate- income units – comprising 16 percent of the city’s RHNA, including a 9 percent buffer. This quadrant offers more housing opportunities, partly due to the Whitmore Ranch Specific Plan, which expands public services and adds parks, sidewalks, walking paths, and bike trails to improve accessibility to nearby residential and commercial areas, and schools.
Overall, the AFFH analysis below indicates that most areas of the City of Ceres experience low access to resources, which correlates with lower median incomes and higher poverty rates compared to moderate-resource areas. Disproportionate housing needs, including overcrowding and cost burdens, are more pronounced in low-resource areas. The City has identified 596 housing opportunity sites within moderate-resource areas, 34 percent of which are designated for lower- income units, with the goal of fostering a more balanced urban environment and addressing existing disparities in household income and resource access.
The City of Ceres faces constraints due to limited developable land, necessitating a dual strategy of targeting underutilized parcels for infill development and annexing land on the city's outskirts to accommodate new housing opportunities. During the 5
th cycle planning period, the City annexed
new areas to establish specific plan developments aimed at expanding public services and amenities while addressing the need for outward growth. Concurrently, the City’s Public Works and Engineering Divisions have identified critical infrastructure investments to improve existing conditions and support higher-density infill residential projects.
These initiatives are guided by a commitment to mitigating disparities in access to services and fostering a balanced and equitable distribution of affordable housing across the city. For example, Program 1.5 of the Housing Element requires that 10 percent of new single-family homes in the West Landing development include Accessory Dwelling Units (ADUs) or Junior ADUs to integrate affordable housing throughout the community. Additionally, infill projects such as Tuscany Village, Olive Villas, and Magnolia Square Apartments are advancing to diversify affordable housing options and address community needs.
Looking forward, the City aims to focus its 7
th cycle housing efforts on higher-density, mixed-
income developments concentrated in the Downtown core, particularly near the planned ACE commuter rail station. This strategic approach seeks to enhance equitable access to resources, prevent the geographic isolation of lower-income households, and promote balanced growth in housing opportunities citywide.
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0 4000 feet
Source: Stanislaus County GIS 2024
Figure 4-1
Housing Sites Inventory Income Designation
Ceres 6th Cycle Housing Element Update
1 2
3 6
5 4
7 8
9 10
11 12
13 14
15 16
17 18
19 21
20 22
23 2425
26 27
28 Ceres City Limit
Ceres City Parcels
Very Low
Very Low - Low
Low-Moderate
Moderate
Above Moderate
E. Hatch Rd.
UV99
UV99
UV99
Mitchell Rd.
Richland Ave.
E. Whitmore Ave.
Crows Landing Rd.
Service Rd.
Hackett Rd.
Morgan Rd.
1 - 28 Site Inventory Number
Mixed-Income Affordable
Note: Mixed Income
Affordable means that
the site will host housing
that will accomodate
very low-, low- and
moderate-income levels.
Above Moderate / Moderate
Very Low / Above Moderate
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 4-3 Distribution of Housing Sites and AFFH Indicators 2021
Household
Median
Income
DP03
2021 Predominant
Race B03002
Diversity
Index
2023
2021
Poverty
Level
S1701
2023 TCAC/HUD
Opportunity Area
2021
Disabled
S1810
2021 Cost
Burden
2021
Overcro
wding
2021
Sustanda
rd
Housing
DP04
2021
Median
Contract
Rent
B25058
2021
Female
Headed
HH
B11001
1 056-055-006 et seq. 2,631 572 293 459 1,307
ADUs 131 39 39 39 13
2,762 611 332 498 1,320
82% 87% 68% 75% 88%
7 053-017-001 6 0 0 0 6
8 053-017-002 4 0 0 0 4
9 053-022-081 5 0 0 0 5
10 053-024-004 6 0 0 0 6
12 053-024-025 11 0 0 11 0
15 053-024-023 7 0 0 7 0
25.05 16 086-034-008 12 0 0 12 0 $72,012 84.3 12.5% Low Resource Area 8.5% 29.5% 8.3% 1.6% $1,326 16.63% 17 127-029-001 2 0 0 2 0
18 127-030-010 2 0 0 2 0
19 053-052-032 67 12 34 21 0 $74,643
25 053-058-056 20 0 0 0 20
26 053-060-001 et seq. 40 20 0 20 0
25.05 28 086-034-004 58 0 0 0 58 $72,012 84.3 12.5% Low Resource Area 8.5% 29.5% 8.3% 1.6% $1,326 16.63% 241 32 34 75 100
7% 5% 7% 11% 7%
NE Whitmore (East of 99, north of E. Whitmore Ave.)
30.03 3 069-015-013 35 0 0 0 35 $77,031 88.5 19.1% Moderate Resource Area 9.3% 59.0% 4% 0% $1,610 18.63% 4 040-086-013 3 0 0 0 3
5 040-086-012 3 0 0 0 3
6 040-086-011 3 0 0 0 3
30.03 11 069-015-011 19 0 0 0 19 $77,031 88.5 19.1% Moderate Resource Area 9.3% 59.0% 4% 0% $1,610 18.63% 13 040-014-090 3 0 0 3 0
14 040-067-047 2 0 0 2 0
20 040-008-010 23 0 23 0 0
21 040-008-011 3 0 3 0 0
22 127-048-006 16 0 16 0 0
26.03 23 127-023-024 28 0 0 28 0 $73,041 76.3 13.1% Moderate Resource Area 9.9% 34.7% 7.2% 0% $1,203 21.76% 139 0 42 33 64
4% 0% 9% 5% 4%
SE Whitmore (East of 99, south of E. Whitmore Ave.)
30.04 2 069-017-001 et seq. 372 76 61 67 168 $89,196 82.1 3.5% Moderate Resource Area 10.1% 24.8% 7.0% 0.0% $1,275 20.6% 24 069-019-038 145 0 29 116 0
27 127-014-034 15 0 0 0 15
532 76 90 183 183
16% 11% 18% 28% 12%
TOTAL CAPACITY 3,673 719 498 789 1,667
RHNA TOTAL 3,361 706 489 661 1,505 RHNA Total % with Buffer 109% 102% 102% 119% 111%
79.3 8.8% Moderate Resource Area 11.5% 66.7% 4.6% 0% $544 15.85%
14.23%
Low Resource Area
79.3 8.80% Moderate Resource Area 11.5% 66.7% 4.6% 0% $544 15.85%
80.8 21.2% 16.1% 55.7% 4.1% 0% $899 14.23%
Segregation/Integration Disproportionate Housing Needs
$49,810
$76,643
$1,1460.0%7.5%$59,444
19.00%$52,485 82.8 19.9% Low Resource Area
$74,643
12.1% 46.0%
19.7%
21.2% Low Resource Area 16.1% 55.7% 4.1% 0% $899
Above
Moderate
Income
Moderate
Income
Low
Income
Very
Low
Income
Total UnitsAPN
41.0%
West Landing (Far West)
Western (West of 99, east of Crows Landing
Total Units
Percent of RHNA
New Site #Ce nsus
Tract
25.04 25.03
25.03 54.7%13.5%Low Resource Area18.3%75.4Hispanic
9.9%
Access to Opportunity
Total Units
Percent of RHNA
Total Units
Percent of RHNA
26.04 26.03
26.04 25.04
$1,09526.02 9.4% 0%Hispanic
Hispanic
85.1 22.7% Low Resource Area 11.9%$61,682
12.1% 46.0% 9.9% 0%
34.7%
Total Units
Percent of RHNA
31 Hispanic
20.87%
$916 19.00%
$1,203 21.76%
82.8 19.9% Low Resource Area
$73,041 76.3 13.1% Moderate Resource Area 7.2% 0.0%
$52,485
$49,810 80.8
9.9% 0% $916
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 SOURCE: City of Ceres, EMC Planning Group, US Census ACS 5-Year Estimates, HCD AFFH Data Viewer, CTCAC/HCD Opportunity Area Maps NOTES: 1 US Census ACS 5-Year Estimate, 2021, Table DP03; census tract level 2 US Census ACS 5-Year Estimate, 2021, Table B03002; census tract level 3 HCD AFFH Data Viewer, ESRI, Diversity Index, 2023; census tract level 4 US Census ACS 5-Year Estimate, 2021, Table S1701; census tract level 5 CTCAC/HCD Opportunity Area Maps, 2023; census tract level 6 US Census ACS 5-Year Estimate, 2021, Table S1810; census tract level 7 HCD AFFH Data Viewer, 2021; census tract level
8 US Census ACS 5-Year Estimate, 2021, Table DP04; census tract level; 9 US Census ACS 5-Year Estimate, 2021, Table B25058; census tract level 10 US Census ACS 5-Year Estimate, 2021, Table B11001; census tract level
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-11 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Mitigating Potential Impacts of Isolating RHNA in New Development Areas To meet its 6th Cycle RHNA of 3,361 units, the City of Ceres is focusing development efforts in newly-annexed areas, with a significant portion of lower-income housing planned within the West Landing Specific Plan (WLSP) area. While this approach effectively addresses the City's housing needs, concentrating lower-income units in specific areas, if not carefully managed, could lead to disparities in neighborhood quality and access to opportunity. Isolating new development in one region can create challenges, including limited access to employment, education, and essential services, as well as the risk of economic and social segregation. Additionally, concentrating development in a single area may result in a lack of investment in other parts of the city that are also in need of resources, potentially leading to uneven infrastructure improvements and perpetuating existing inequalities. To address these concerns, the City has identified $95 million in projects planned for completion over the next five years. These projects are discussed below.
Citywide Infrastructure Investment
The City’s Five-Year Capital Improvement Project (CIP) plan outlines $95 million in projects scheduled for completion over the next five years. Additionally, a planned tertiary treatment facility upgrade will be constructed in phases over the next housing cycle, with a total cost of $155 million.
Combined, the City intends to invest $210 million in CIP projects across Ceres.
The majority of these projects are concentrated in Low-Resource Opportunity areas, as identified by the HCD Affirmatively Furthering Fair Housing (AFFH) Data Viewer. These local CIP projects aim to improve residents' quality of life by enhancing water, sewer, pedestrian, bicycle, and public facilities. The City is prioritizing equity by distributing investments across all neighborhoods, not just in the West Landing Specific Plan area.
As illustrated in Figure 4-2, 23 CIP projects are planned for completion during the 2023-2031 planning period. These include:
Pedestrian Sidewalk Improvement Projects (4): Expanding and upgrading pedestrian pathways for accessibility and safety;
Bicycle Improvement Projects (2): Enhancing bike paths for safer, more accessible transportation;
Street Improvement Projects (8): Rehabilitating major and minor roadways for better traffic circulation and safety;
Public Facility Projects (3): Upgrading community infrastructure to provide broader benefits; Water and Storm Drain Improvement Projects (4): Improving water supply and drainage systems; and
Sewer Projects (2): Upgrading critical sewer infrastructure to ensure reliability and reduce backups.
ATTACHMENT E
ITEM 16
CITY OF MODESTO
CITY OF CERES
#5 PROJECT SITE
CROWS LANDING REHAB
WHITMORE AV TO SERVICE RD
#4 PROJECT SITE
WHITMORE AV REHAB
MORGAN RD TO CROWS LANDING RD
#1 PROJECT SITE
RICHLAND SEWER REHAB
#11 PROJECT SITE
HATCH RD TRANSMISSION MAIN
MITCHELL RD TAO MOFFETT RD
#23 PROJECT SITE
MOFFETT RD REHAB
HATCH RD TO WHITMORE AV #13 PROJECT SITE
MORROW VILLAGE SIDEWALK IMPROVEMENTS
#14 PROJECT SITE
HSIP MITCHELL MEDIANS
WHITMORE TO FOWLER
#15 PROJECT SITE
HSIP WHITMORE MEDIANS
MOFFETT & WHITMORE INTERSECTION
#16 PROJECT SITE
WHITMORE PARK GAZEBO
#18 PROJECT SITE
SERVICE RD BRIDGE OVER TID CANAL
#19 PROJECT SITE
SERVICE/MITCHELL RD INTERCHANGE
#20 PROJECT SITE
SERVICE RD DESIGN REVIEW
#12 PROJECT SITE
OCHOA PARK PHASE 2
#7 PROJECT SITE
PAVEMENT PRESERVATION SITE NO. 1
#7 PROJECT SITE
PAVEMENT PRESERVATION SITE NO. 3
#2 PROJECT SITE
BIKE LANE CORRIDOR PHASE 2
#17 PROJECT SITE
BIKE LANE CORRIDOR PHASE 1
#9 PROJECT SITE
RICHLAND SIDEWALK IMPROVEMENTS
#6 PROJECT SITE
FIRE TRAINING TOWER
#10 PROJECT SITE
HATCH RD TRANMISSION MAIN
MOFFETT RD TO RICHLAND AV
#21 PROJECT SITE
CENTRAL/HACKETT RD
PEDESTRIAN IMPROVEMENTS
#3 PROJECT SITE
WELL 22 GAC TREATMENT
#22 PROJECT SITE
CENTRAL AV STORM REPAIR
#8 PROJECT SITE
LUCHESSI SEWER REHAB
#7 PROJECT SITE
PAVEMENT PRESERVATION SITE NO. 2
PROJECT SITE LOCATIONS CITY OF CERESDATE: 10-08-24
Ceres 6th Cycle Housing Element
Planned Capital Improvement Projects
Figure 4-2
Source: City of Ceres 2024
STATE HIGHWAYS
State Route 1
State Route 68
State Route 156
U.S. HIGHWAYS
U.S. Highway 101
INTERSTATE HIGHWAYS
Interstate 5 or I-5
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-13 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 These projects collectively deliver significant improvements to Low- and Moderate-Resource Opportunity areas, fostering equity and enhancing quality of life for all residents. Each category of improvement is detailed below.
Pedestrian Sidewalk Improvement Projects
Pavement Restoration Projects (Peachwood, Old Vineyard, Landreth, Northridge, Fruitridge, and Orchard Subdivisions)- Project 7;
Richland Sidewalk Project- Project 9;
Morrow Village Sidewalk Improvements- Project 13; and Central/Hackett Road Pedestrian Improvements- Project 21.
The City is implementing four pedestrian sidewalk projects to install or upgrade sidewalks in underserved areas lacking basic public infrastructure such as curbs, gutters, and sidewalks. These areas have historically been neglected due to disinvestment, limited infrastructure funding, residents' lower political influence, or prioritization of other essential services.
Investing in sidewalk installation and repair in these low-resource neighborhoods will enhance safety by providing pedestrians with a designated space away from vehicles. Additionally, the new sidewalks will encourage walking, promoting public health and increasing safety through more "eyes on the street," which helps deter crime. The City's investment also signals a commitment to these neighborhoods, encouraging residents to improve their properties. Furthermore, the addition of curbs and gutters will mitigate flooding and standing water, reducing health risks associated with mosquitoes.
The total cost of the sidewalk projects is approximately $10.4 million. A significant portion of this budget, $8 million, is allocated to Project 13 in Morrow Village, funded through a CDBG grant.
Morrow Village, which currently lacks sidewalks, curbs, and gutters, is nearing the completion of two out of three phases. Local Measure L funds will cover the remaining costs. The other sidewalk projects will begin once Phase III of Morrow Village is complete.
Bicycle Improvement Projects
Bike Lane Corridor Phases 1 and 2- Projects 2 and 17
These two bike projects will create over three miles of bike lanes in low resource areas of the city.
As a whole, the city lacks safe alternative modes of transportation, and by installing the bike lanes in low resource areas, the City is providing the community a more accessible way to get to work, school, and other activities. Not only will the bike lanes encourage non-motorized transportation, these areas of the city will see a reduction in traffic, GHG emissions, and overall congestion.
Together the two Phases will cost $1 million. The City received funding through the Congestion Mitigation Air Quality (CMAQ) program to complete the project. The projects will be completed as the adjacent road work projects are started.
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-14 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Street Improvement Projects
Whitmore Avenue Rehabilitation- Project 4
The Whitmore Avenue Pavement Rehabilitation Project will improve approximately 1.0 mile of Whitmore Avenue, a minor arterial roadway, from Crows Landing Road to Morgan Road. The project will address pavement failures, reconstruct curb ramps to meet ADA compliance, replace damaged curbs and gutters, update pavement markings and striping, install traffic detector loops, adjust utility covers, and implement storm drainage and other necessary improvements to enhance roadway conditions.
Located in a low-resource area of the City, this project aims to establish adequate infrastructure where it is currently lacking, fostering greater equity and accessibility. The total project cost of $4,113,798.29 is funded through SB 1, State infrastructure block grants, and Measure L funds. Crows Landing Rehabilitation- Project 5
This project will install sewer and storm drainage facilities in a low-resource area of the City currently lacking publicly accessible utilities. These improvements will make the area more attractive for new investment, as the cost of installing such utilities has been a significant barrier to development.
The project, with a total cost of $9,000,000.00, is funded through the Sewer Enterprise Fund, SB 1, and Measure L. Construction is scheduled to begin in June 2025 and is expected to be completed by March 2026.
HSIP Mitchell Road and Whitmore Avenue Medians- Project 14 and 15 These projects will install medians on two of the city’s busiest arterial roads, addressing the safety hazard posed by unprotected left turns. By improving traffic safety in low-resource areas, the City is prioritizing the well-being of both drivers and pedestrians in these communities.
Funded through the Highway Safety Improvement Program, the project has a total cost of $285,000.00.
Service Road Bridge Project- Project 18
This structurally deficient bridge, located in a low-resource area of the city, will undergo repairs to enhance safety for vehicles, pedestrians, and cyclists. The redesigned bridge will improve sightlines for drivers, provide sidewalks and bike lanes, and connect to a multi-use path on the east side of the canal, improving connectivity within the area.
This project, funded by the Highway Bridge Program, is estimated to cost $600,000.00. The design phase will be funded in fiscal year 2025-2026, with construction scheduled for fiscal year 2027-2028.
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-15 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Service/Mitchell Road Interchange- Project 19
The Service/Mitchell Road Interchange will be a new freeway interchange for the City of Ceres, located in a low-resource area. This project will enhance regional mobility by improving access to and from SR-99, while also boosting local traffic circulation and safety to accommodate planned growth along Mitchell and Service Roads.
As a key gateway to the City, the interchange is expected to spur economic development and increase the area’s overall economic value. The project is estimated to cost $150 million. The design phase will be completed within the next two years, with funding sourced from local Measure L regional funds and future federal and state grants.
Service Road Design Review- Project 20
This project involves a feasibility study to widen Service Road from SR-99 to Crows Landing to its full width. Located in a low-resource area, this section of Service Road is currently overly congested and is expected to face increased traffic as the SR-99 project progresses. The proposed widening aims to improve circulation and alleviate traffic impacts in the area.
The study has an estimated cost of $250,000.00 but is not currently funded. Moffett Road Rehabilitation Project- Project 23
The Moffett Road Pavement Rehabilitation Project will improve approximately 1.0 mile of roadway from Hatch Road to Whitmore Avenue. The project addresses major pavement fatigue and includes reconstructing curb ramps to meet ADA compliance, replacing damaged curbs and gutters, updating pavement markings and striping, installing traffic detector loops, adjusting utility covers, enhancing storm drainage, and other necessary roadway improvements.
Located in a low-resource area of the City, this project will enhance safety, promote economic activity, and foster community pride through improved infrastructure. The total project cost is $190,241.90, funded by Measure L.
Public Facilities Improvement Projects
Fire Training Tower- Project 6
The Fire Training Tower Facility, formerly Ceres Fire Station No. 3, is located at 420 Service Road.
While situated in a moderate-resource area, it is adjacent to a low-resource neighborhood. The project involves rehabilitating an unused, blighted structure and repurposing it as a multi-agency training facility. This facility will provide critical training for Ceres staff and personnel from other local agencies, ensuring the community has well-prepared and highly trained front-line responders.
The project cost is $1,013,582.05, funded through the City’s General Fund and partnerships with other user agencies.
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-16 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Ochoa Park Phase 2- Project 12
Phase 2 of Ochoa Park will complete a long-standing park project in a moderate-resource area of the City. Planned improvements include paved pathways, sidewalks, picnic tables, basketball courts, shade structures, and enhanced landscaping with trees, turf, and shrubs. As the City has few full- service parks, Ochoa Park will serve as a valuable amenity for the entire community.
The park's safe, well-lit, and clean environment will provide all residents with a space to play, gather, and enjoy recreational activities. The project, costing $1,910,715.23, is funded through impact fees and is scheduled for completion by the end of 2024.
Whitmore Park Gazebo- Project 16
Whitmore Park, located in a low-resource area of the City, serves as a central community hub. Its gazebo, a local landmark, has fallen into disrepair. The reconstruction of the gazebo will provide a safer, more functional space for community gatherings and celebrations, preserving an important piece of Ceres’ history. The upgraded Whitmore Gazebo project will cost $491,649.00, funded through ARPA funds. The old structure has been demolished, and construction of the new gazebo is expected to be completed by mid-2025.
Water and Strom Improvement Projects
Well 22 GAC Treatment Project- Project 3
The Well 22 GAC Treatment Project will install four granular activated carbon (GAC) vessels, along with all necessary piping and fittings, to ensure proper groundwater filtration in a low-resource area of the City. This area currently lacks sufficient access to potable water, and the new GAC system will significantly increase the community’s potable water supply.
By enhancing infrastructure, the project ensures equitable access to safe drinking water for all residents. The total project cost is $3,114,100.00, funded through the City’s water enterprise fund. Hatch Road Transmission Main Phases I and II- Projects 9 and 10 The Hatch Road Transmission Main Phases I and II aim to improve water pressure in a historically low-pressure area of the City, which is also a low-resource community. Enhanced water pressure will not only improve residents' quality of life but may also increase property values in the area.
Low water pressure often results from aging, corroded pipes, inadequate infrastructure, and insufficient maintenance. By investing in this project, the City is addressing a long-standing issue and demonstrating its commitment to equitable infrastructure improvements.
The total cost of both phases is $4,417,000, funded through the Water Enterprise Fund. Phase I is nearing completion, with Phase II scheduled to begin in mid-2025.
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-17 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Central Avenue Storm Drain Repair- Project 22
The Central Avenue Storm Drain Repair project addressed a collapsed section of an 18-inch storm drain pipe, which had caused obstructed water flow, blockages, and roadway damage. The collapse highlighted the need for improved infrastructure in this low-resource area of the City.
The new storm drain pipe ensures better water flow and reduces the risk of future roadway issues, fostering a more equitable living environment for residents. The project cost $91,600 and was funded through the City’s Water Enterprise Fund. It was successfully completed in August 2024.
Sewer Projects
Richland Sewer Rehabilitation- Project 1
This project involves replacing approximately 1,850 linear feet of 18-inch VC sewer line, along with all related piping, clean-outs, laterals, and restoration on Richland Avenue between Gidding Street and Evans Road. The total project cost is $872,225.00, funded by the City’s Sewer Fund.
Located in a low-resource area in the north-central part of the City, this neighborhood has experienced frequent sewer backups due to slow flow rates and recurring obstructions. The project will replace outdated infrastructure, ensuring the community has reliable and well-maintained sewer systems, improving residents' quality of life.
Luchessi Sewer Rehabilitation- Project 8
This project will replace the aging sanitary sewer main on Luchessi Lane, which is failing due to its age. The project will cost $299,136.00 and is funded by the City’s Sewer Fund.
By replacing the old pipe, this CIP project ensures the community has reliable and well-maintained infrastructure, contributing to a higher quality of life and potentially increasing property values in the area.
4.7 Census Tract Analysis
Ceres is located across several census tracts, of which nine are anticipated for new housing development during the next eight-year planning cycle. When analyzing AFFH indicators according to census tract in Ceres, there is geographic variation for some indicators, meaning households may experience differences in access to opportunity and/or experience disproportionate housing needs.
Please note: several of the City’s housing opportunity sites in the inventory list are comprised of multiple parcels (referred to as APNs (Assessor’s Parcel Numbers). Each APN is shown with a separate dot symbol on Figures 4-3 through 4-11.
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-18 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Potential Effect on Access to Opportunity
TCAC/HCD Opportunity Areas
TCAC/HCD categorized census tracts into high, moderate, or low resource areas based on a composite score of economic, education, and environmental factors that have the ability to perpetuate poverty and segregation. These factors include: school proficiency, median income, median housing prices, and environmental pollution.
Table 4-4 and Figure 4-3 show the distribution of housing opportunity units at each income level according to their designated resource area. According to the 2023 TCAC/HCD opportunity map, Ceres is comprised of low, moderate, and high resource areas. Overall, the city is designated a low resource area (Figure 4-1). Citywide, there are four census tracts designated as moderate resource areas: Census Tract 25.04, located in the western quadrant, Census Tracts 26.03 and 30.03, located in the northeast quadrant, and Census Tract 30.04, located in the southeast quadrant of the city.
Census Tract 27.01 is the only high resource area in the city, however, due to its lack of proximity to public services, employment opportunities, and other amenities no housing opportunity sites are planned here. The city's ability to accommodate residential land uses has been significantly impacted by the implementation of specific plans over the last two decades, which have expanded public services and amenities along the city’s fringe areas. Recent examples of such plans are the West Landing and Whitmore Ranch Specific Plan Areas, which are expanding public services and amenities available to residents in the western and eastern regions of the city, respectively. As residential development continues to increase in Ceres, it is likely that plans will be developed to improve accessibility in the northeastern region of the city.
As shown in Table 4-4, of the 3,673 projected housing opportunity sites, 596 units (16 percent) can be accommodated in the moderate resource area and 3,077 units (84 percent) can be accommodated in low resource areas. Units anticipated in the moderate resource area of the city are distributed across all income categories, including a total of 34 percent for lower-income households. Units anticipated in the low resource areas of the city include, 46 percent in the above moderate-income category, 33 percent in the lower-income category, and 21 percent in the moderate-income category.
Table 4-4 Site Inventory Unit Count by TCAC/HCD Opportunity Area, 2023 Income Group Low Resource Percent Moderate Resource Percent Very Low-Income 611 20% 108 18%
Low Income 403 13% 95 16%
Moderate-Income 648 21% 141 24%
Above Moderate-Income 1,415 46% 252 42%
Total 3,077 (84%) 100% 596 (16%) 100%
SOURCE: TCAC/HCD Opportunity Areas Map, 2023; City of Ceres; EMC Planning Group
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-19 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-3 Sites Inventory Analysis by TCAC/HCD Opportunity Areas
SOURCE: HCD AFFH Data Viewer; City of Ceres
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-20 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Economic Opportunities
Table 4-5 and Figure 4-4 show the distribution of anticipated housing opportunity units at each income level according to economic opportunity. In Ceres, economic outcomes vary by census tract, primarily ranging from moderate to more positive (0.25 to 0.75) economic outcomes.
Table 4-5 Site Inventory Unit Count by TCAC/HCD Economic Opportunity, 2021 Income
Group
Less Positive
(<0.25)
Moderately
Positive
(0.25-0.50)
More Positive
(0.50-0.75) Total Units
Very Low-Income 0 611 108 719
Low Income 42 361 95 498
Moderate-Income - 636 153 789
Above Moderate-
Income 10 1,346 310 1,667
Total 52 (1%) 2,954 (80%) 666 (18%) 3,673
SOURCE: TCAC/HCD Opportunity Areas Map, 2023; City of Ceres; EMC Planning Group As shown in Table 4-5, approximately 80 percent of anticipated housing opportunity units are located in census tracts associated with moderately positive economic outcomes (0.25-0.50), 18 percent are located in census tracts with more positive outcomes (0.50-0.75), and 1 percent are located in census tracts with less positive outcomes (<0.25). The census tracts with more positive economic outcomes include 25.04, 25.05, 26.03, 30.03, and 30.04. Each of these census tracts coincide with higher median household incomes ($55,000-$90,100) and low poverty levels (0-20 percent).
The distribution of units in census tracts with moderate to more positive economic outcomes work to reduce the concentration of lower-income households in areas that may present barriers to economic mobility. Additionally, increasing housing supply will be coupled with programs to incentivize the development of affordable housing for lower-income and special needs households (Programs 3.1, 3.2, 3.8, and 3.11 see Chapter 2).
To address barriers to economic mobility for lower-income households, the City will develop strategies to address income earning potential of lower-income residents by expanding low-barrier, low-skill job opportunities within the City. These efforts will be regulated through Program 5.5, which involves partnering with the Ceres Chamber of Commerce and other community-based organizations to expand job opportunities in Ceres (see Chapter 2).
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-21 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-4 Sites Inventory Analysis by TCAC/HCD Economic Opportunity SOURCE: HCD AFFH Data Viewer; City of Ceres
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-22 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Educational Opportunities
TCAC’s education score is based on math proficiency, reading proficiency, high school graduation rates, and the student poverty rate. Figure 4-5 illustrates the distribution of housing opportunity units at each income level according to educational opportunity.
As shown in Figure 4-5, the TCAC/HCD educational opportunity score for Ceres is 0.25 indicating less positive outcomes. In Ceres, there is no geographic variation in educational opportunity based on census tract, meaning residents across the city experience similar access to educational opportunity. As a result, all anticipated housing units are located in census tracts with less positive educational outcomes.
According to the Ceres Unified School District (CUSD), graduation rates for 2022 were 91.8 percent, which is higher than the statewide average (87.4 percent). 1 Additionally, there appears to be
no correlation between resource areas and poverty rates or median household income in Ceres. Both low and moderate resource areas alike coincide with both lower and higher poverty rates and median incomes above and below $55,000. This is evidenced by Census Tracts 25.03, 25.04, 26.02, and
26.03 (Table 4-3, Figure 4-1, Figure 4-7, Figure 4-8). As a result, it is difficult to definitively identify what factors contribute to Ceres’ low educational opportunity score identified by TCAC and HCD.
The arrival of the Altamont Corridor Express (ACE) train and increased housing supply is expected to expand both educational and economic opportunities for Ceres households. Increased housing supply and transportation pathways will provide opportunities for growth in the school district’s workforce, which may result in better education, as well as expanding the ability of Ceres residents to seek higher education and economic opportunity through improved public transportation.
1 https://www.caschooldashboard.org/reports/50710430000000/2022/academic -engagement#graduation-rate
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-23 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-5 Sites Inventory Analysis by TCAC/HCD Educational Opportunity
SOURCE: HCD AFFH Data Viewer; City of Ceres
ATTACHMENT E
ITEM 16
Chapter 4.0 – AFFH Analysis of the Site Inventory 4-24 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Environmental Health Outcomes
The TCAC/HCD Opportunity Areas Environmental scores are based on the CalEnviroScreen 4.0 indicators, which identify areas disproportionately vulnerable to pollution sources such as ozone, PM2.5, diesel PM, pesticides, toxic release, traffic, cleanup sites, groundwater threats, hazardous waste, impaired water bodies, and solid waste sites. Table 4-6 and Figure 4-6 show the distribution of anticipated housing opportunity units at each income level according to environmental health outcomes.
As shown in Table 4-6, approximately 77 percent of the anticipated housing opportunity units are located in census tracts where environmental pollutants are highest (91-100 th percentile). These
census tracts include 26.04 and 31, both of which are designated low resource areas.
Census Tract 26.04 is located east of Highway 99 and includes a mix of uses, including residential, commercial, and office uses. Just west of Highway 99 and adjacent to Census Tract 26.04 is Census Tract 25.04, which consists of parcels zoned for General Industrial and Light Industrial use and may contribute to higher environmental pollutants. However, Census Tract 25.04 has a lower CalEnviroScreen score (71-80 percent) than Census Tract 26.04. Therefore, it is unclear why Census Tract 26.04 falls within the 91-100 percentile.
Census Tract 31 includes the West Landing Specific Plan Area, which is intended to accommodate the majority of housing opportunity units. This area is primarily comprised of vacant agricultural land, which likely contributes to environmental pollution. However, agricultural uses are anticipated to sunset in order to develop a mix of residential and commercial uses in the area, which will likely result in a reduction of environmental pollutants.
Table 4-6 Site Inventory Unit Count by TCAC/HCD Environmental Health, 2021 Income
Group
Less Negative
Environmental
Factors
61-70%
71-80% 81-90%
More Negative
Environmental
Factors
91-100%
Total Units
Very Low-
Income - 108 - 611 719
Low Income - 95 29 374 498
Moderate-
Income 33 108 150 498 789
Above
Moderate-
Income
- 252 84 1,330 1,667
Total 33 (1%) 563 (15%) 263 (7%) 2,813 (77%) 3,673
SOURCE: TCAC/HCD Opportunity Areas Map, 2023; City of Ceres
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-25 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 As discussed in Appendix A – Housing Needs & Fair Housing Report of the housing element, 10 census tracts across Ceres have been identified as disadvantaged communities, including the following census tracts for which housing opportunity units are anticipated, 25.03, 25.04, 25.05,
26.02, 26.04, and 31. The primary factors affecting these disadvantaged communities are high levels of fine particulate matter, ozone pollution, and contaminated drinking water. 2 Since many
communities in the city are designated as disadvantaged, increasing residential opportunities along with implementing programs to improve infrastructure and economic opportunities is intended to improve conditions.
To address environmental justice within the disadvantaged communities, the City has identified a number of policies and programs in the Ceres General Plan 2035. For more in-depth information regarding disadvantaged communities in Ceres, refer to the Ceres General Plan 2035.
2 Ceres General Plan 2035, page 5-10.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-26 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-6 Sites Inventory Analysis by TCAC/HCD Environmental Health SOURCE: HCD AFFH Data Viewer; City of Ceres
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-27 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Potential Effect on Patterns of Integration and Segregation Diversity
Table 4-7 and Figure 4-7 show the distribution of anticipated housing opportunity units at each income level according to diversity levels and predominant populations. As discussed in Appendix A – Housing Needs and Fair Housing Report, Ceres is a minority majority community.
Hispanic/Latino residents comprise the largest racial/ethnic group in Ceres (61 percent), followed by non-Hispanic White (24 percent), and Asian populations (7 percent). As shown in Figure 4-5, there is no variation in predominant population according to location; Hispanic/Latino residents makeup the majority in both low resource and moderate resource areas across Ceres.
Table 4-7 reports the distribution of units at each income level by the Diversity Index score developed by ESRI in 2023, which represents the likelihood that two persons, chosen at random from the same area, belong to different race or ethnic groups. All census tracts in Ceres are considered highly diverse, therefore, anticipated units across all income levels are planned in census tracts that have diverse existing populations (receiving an index score between 70 to 85 percent).
The distribution of units is intended to support a balanced living environment for Ceres residents.
Increasing the supply of housing affordable to a range of income categories is intended to provide an opportunity for lower-income households to obtain adequate and affordable housing in the city.
To ensure racial/ethnic background does not present a barrier to fair housing in Ceres, the City will continue to promote equal housing opportunity for all persons (see Program. 5.1 in Chapter 2).
Table 4-7 Site Inventory Unit Count by Diversity Index, 2023 Income Group High Diversity (70-
85%)
Highest Diversity
(Greater than 85%) Total Units
Units Percent Units Percent
Very Low-Income 719 20% - - 719
Low Income 498 14% - - 498
Moderate-Income 789 22% - - 789
Above Moderate-Income 1,613 45% 54 100% 1,667
Total 3,619 100% 54 100% 3,673
SOURCE: HCD AFFH Data Viewer, City of Ceres
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-28 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-7 Sites Inventory Analysis by Predominant Population SOURCE: HCD AFFH Data Viewer; City of Ceres; EMC Planning Group
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-29 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Household Income & Poverty
Figure 4-8 and Figure 4-9 illustrate the distribution of anticipated housing opportunity units at each income level according to median income and poverty status, respectively. According to Figure 4-8, the median income in the majority of the City ranges between $55,000 to $90,100 according to census tract. However, a few areas exist where the median income is less than $50,000. Of the census tracts for which housing opportunity sites are anticipated, Census Tracts 25.03 and 26.04 have median incomes less than $55,000, both of which coincide with higher rates of poverty ranging between 20 to 30 percent (Figure 4-9). Census Tract 25.03 is anticipated to accommodate approximately 11 above moderate-income and 22 moderate-income units, and Census Tract 26.04 is anticipated to accommodate approximately 52 units ranging from very low- to above moderate- income.
Table 4-8 reports the distribution of housing opportunity sites by income category according to median income and poverty status. Approximately 98 percent of the lower-income sites are located in census tracts that have a lower rate of poverty (0 to 20 percent of households), while 2 percent are located in census tracts where living below poverty is more common (20-30 percent of households).
Of the 98 percent of lower-income sites that are located in low poverty census tracts, approximately 97 percent are in census tracts with a median income between $55,000-$90,100 and 3 percent are in census tracts with a median income of less than $55,000. Overall, 93 percent of anticipated units are located in census tracts with a median income between $55,000-$90,100 and a low poverty rate (0 to 20 percent).
Table 4-8 Site Inventory Unit Count by Median Income and Poverty Status Income
Group
Poverty Levels
0-20%
Poverty Levels
21-30%
Poverty Levels
0-20%
Poverty Levels
21-30% Total
Units Less than $55,000 $55,000-$90,100
Units % Units % Units % Units %
Very Low-
Income - 0% - - 719 21% - - 719
Low Income 42 80% - - 427 12% 29 18% 498
Moderate-
Income - - 22 66% 651 19% 116 73% 789
Above
Moderate-
Income
10 20% 11 34% 1,630 48% 15 9% 1,667
Total 52 100% 33 100% 3,427 100% 160 100% 3,673
SOURCE: U.S. Census Bureau ACS 5-Year Estimate, 2021; City of Ceres; EMC Planning Group
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-30 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The distribution of units is intended to prevent income based segregated living patterns, while also alleviating existing affordability pressures for lower-income households. Generally, increasing the housing supply in the city will provide increased opportunities for local employees to obtain housing in the city.
To address barriers to economic mobility for lower-income households, the City will develop strategies to address income earning potential of lower-income residents by expanding low-barrier, low-skill job opportunities within the City. These efforts will be regulated through Program 5.5, which involves partnering with the Ceres Chamber of Commerce and other community-based organizations to expand job opportunities in Ceres (see Chapter 2).
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-31 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-8 Sites Inventory Analysis by Median Income
SOURCE: HCD AFFH Data Viewer; City of Ceres; EMC Planning Group
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-32 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-9 Sites Inventory Analysis by Poverty Status
SOURCE: HCD AFFH Data Viewer; City of Ceres; EMC Planning Group
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-33 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Female-Headed, Single-Parent Households
According to 2021 ACS data, female-headed households comprise 18 percent of all households in Ceres. Table 4-9 reports the distribution of anticipated housing opportunity units at each income level according to the concentrations of single-parent families with a female-headed householder.
Table 4-9 Sites Inventory Unit Count by Female-Headed Households Income Group
Female-Headed
Households
10-15%
Female-Headed
Households
16-21% Total Units
Units % Percent %
Very Low-Income 32 49% 687 19% 719
Low Income 0 0% 498 14% 498
Moderate-Income 22 34% 767 21% 789
Above Moderate-
Income 11 17% 1,655 46% 1,667
Total 65 (2%) 100% 3,608 (98%) 100% 3,673
SOURCE: U.S. Census Bureau ACS 5-Year Estimate, 2021; City of Ceres; EMC Planning Group As shown in Table 4-9, approximately 2 percent of anticipated housing opportunity units are located in census tracts that have concentrations ranging between 10 to 15 percent female-headed households. Approximately 98 percent of anticipated housing opportunity units are located in census tracts where female-headed households comprise between 16 to 21 percent of all households.
Of this percentage, 5 percent of units are anticipated to be located in Census Tracts 26.02 and 26.03, where concentrations of female-headed households represent 20 percent or more of the population.
Census Tract 26.02 coincides with slightly higher rates of poverty and is designated a low resource area. Census Tract 26.02 is anticipated to accommodate approximately 160 units ranging from low- to above-moderate income. Census Tract 26.03 is designated a moderate resource area with lower rates of poverty and is anticipated to accommodate approximately 33 moderate-income units. Due to a lack of available mapping data, a map illustrating concentrations of female-headed households across Ceres is not provided.
Of the 5 percent of anticipated housing opportunity units located in census tracts with higher percentages of female-headed households (>20 percent), approximately 45 percent are lower- income, 47 percent are moderate-income, and 8 percent are above moderate-income.
The distribution of units in census tracts with low percentages of female-headed households works to reduce the concentration of female-headed households in the City’s low resource area, while the increase in units throughout the city will address community needs and demand for affordability.
Overall, the increase in affordable units will result in a balanced environment, meeting the needs of
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-34 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 residents. Additionally, increasing housing supply will be coupled with programs to incentivize the development of affordable housing for lower-income and special needs households (Programs 3.1,
3.2, 3.8, and 3.11 see Chapter 2).
Population with a Disability
According to 2021 ACS data, approximately 12 percent of Ceres’ population live with at least one disability. Table 4-10 and Figure 4-10 show the distribution of anticipated housing opportunity units at each income level according to the percentage of the population living with a disability.
Table 4-10 Sites Inventory Unit Count by Population with a Disability Income Group
Population with a Disability
<0-10%
Population with a Disability
11-20% Total Units
Units % Units %
Very Low-Income 76 14% 643 20% 719
Low Income 61 12% 437 14% 498
Moderate-Income 112 21% 677 22% 789
Above Moderate-Income 280 53% 1,387 44% 1667
Total 529 (14%) 100% 3,144 (86%) 100% 3,673
SOURCE: U.S. Census Bureau ACS 5-Year Estimate, 2021; City of Ceres; EMC Planning Group As shown in Table 4-10, approximately 14 percent of the anticipated housing opportunity units are located in census tracts where up to 10 percent of the population live with a disability, and 86 percent of the units are located in census tracts where between 11 to 20 percent of the population live with a disability. There is no correlation between disability rates and resource areas in Ceres, as census tracts with higher percentages of the population living with a disability are spread across both low and moderate resource areas.
As shown in Figure 4-10, the majority of census tracts in Ceres have a population between 10 to 20 percent living with a disability. One census tract (26.05) has a higher concentration of 20 to 30 percent of persons living with a disability, however, there are no housing opportunity sites anticipated there.
Increasing housing supply in these areas is expected to prevent or mitigate the overpayment, housing scarcity, and displacement that lower-income persons with disabilities are susceptible to. To address barriers to obtaining accessible and affordable housing for residents/households living with a disability, the City has included Program 3.5 and Program 3.9, which commit the City to facilitating the construction of accessible housing and providing support to residents with disabilities in accessing services, researching grant monies, and accommodating flexibility in design review (see Chapter 2).
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-35 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-10 Sites Inventory Analysis by Population with a Disability
SOURCE: HCD AFFH Data Viewer; City of Ceres; EMC Planning Group
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-36 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Potential Effect on Disproportionate Housing Needs & Displacement Risk Overcrowding
Overcrowding is defined as a household with more than one occupant per room excluding bathrooms and kitchens. Units with more than 1.5 persons per room are considered severely overcrowded. According to 2021 ACS data, approximately 9 percent of households in Ceres experience some level of overcrowded living conditions. Table 4-11 and Figure 4-11 show the distribution of housing opportunity units at each income level according to overcrowding.
Table 4-11 Sites Inventory Unit Count by Overcrowding
Income Group
Overcrowding
0-5%
Overcrowding
6-10%
Total Units
Units %
Units
%
Very Low-Income 32 14% 687 20% 719
Low Income 34 15% 464 13% 498
Moderate-Income 63 28% 726 21% 789
Above Moderate-
Income 95 43% 1,571 46% 1,667
Total 224 (6%) 100% 3,449 (94%) 100% 3,673
SOURCE: U.S. Census Bureau ACS 5-Year Estimate, 2021; City of Ceres As shown in Table 4-11, approximately 94 percent of anticipated housing opportunity units are located in census tracts where up to 10 percent of households experience overcrowding.
Approximately 6 percent of anticipated housing opportunity units are located in census tracts where less than 5 percent of the households experience overcrowding. As discussed in Appendix A – Housing Needs and Fair Housing Report, the level of overcrowding in Ceres is consistent with Stanislaus County and nearby jurisdictions, ranging from 3 to 10 percent.
This distribution of housing opportunity units is anticipated to reduce the concentration of overcrowding by increasing housing supplying in census tracts that are currently in need of affordable and adequately sized housing. The City has developed a suite of programs to facilitate the development of a variety of housing types for all income levels (Programs 3.1, 3.2, 3.8, 3.13 (see Chapter 2)).
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-37 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-11 Sites Inventory Analysis by Overcrowding
SOURCE: HCD AFFH Data Viewer; City of Ceres
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-38 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Cost Burden & Displacement Risk
Cost burden is measured as households spending more than 30 percent of their gross income including utilities for housing. Consistent with the region, households throughout Ceres are overpaying for housing due to rapidly increasing market conditions that outpace wage increases.
Table 4-12 and Figure 4-12 show the distribution of housing opportunity units at each income level according to the percentage of cost burdened renter households.
Table 4-12 Site Inventory Unit Count by Cost Burdened Renter Households Income Group
Cost Burdened
Renter Households
20-40%
Cost Burdened Renter
Households
41-60%
Cost Burdened Renter
Households
Greater than 60%
Total Units
Units % Units % Units %
Very Low-Income 76 16% 611 20% 32 23% 719
Low Income 61 13% 403 13% 34 25% 498
Moderate-Income 112 24% 636 21% 41 30% 789
Above Moderate-
Income 226 48% 1,411 46% 30 22% 1,667
Total 475 (13%) 100% 3,061 (83%) 100% 137 (4%) 100% 3,673 SOURCE: U.S. Census Bureau ACS 5-Year Estimate, 2021; City of Ceres As shown in Table 4-12, approximately 83 percent of the anticipated housing opportunity units are located in census tracts where 41 to 60 percent of renter households experience cost burden. These concentrations of cost burdened renter households are located in Census Tracts 25.03, 26.02, 26.04,
30.03, and 31. Increasing the supply of lower- and moderate-income housing in these areas will alleviate conditions that contribute to cost burden and reduce displacement risk for households experiencing cost burden by reducing the gap between supply and demand for affordable housing.
Thirteen (13) percent of anticipated housing opportunity units are located in census tracts where 20 to 40 percent of renter households experience cost burden and 4 percent are located in census tracts where more than 60 percent of renter households are cost burdened. There is no correlation between cost burden rates and resource areas in Ceres, as census tracts with higher percentages of cost burdened renter households are spread across both low and moderate resource areas.
Of the census tracts anticipated for new housing development, Census Tract 25.04 has the highest concentration of cost burdened renter households (more than 60 percent). Census Tract 25.04 coincides with low poverty rates (less than 10 percent), low overcrowding rates (less than 5 percent), has a median income over $70,000, and is designated a moderate resource area. Approximately 10 above moderate-income units (less than 1 percent of all housing units) are planned to be constructed within this census tract, which may exacerbate existing affordability pressures for lower-income households living nearby.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-39 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 However, 20 deed-restricted very low- and 20 moderate-income single-family units within Tuscany Village may offset and balance affordability needs for new housing units within this census tract.
Construction of Tuscany Village, north of the Pipeline Site #25 (Cherry Hollow) has resumed since being disrupted by Covid-19.
The Cherry Hollow pipeline housing opportunity site includes 20 housing units, which will be composed of five duplex buildings, two four-plex buildings, and two single family buildings.
Appendix C conservatively projects that these units will all be above moderate-income units, though with these typologies, it is likely that some of the units may become non-deed-restricted moderate- income units.
The distribution of lower-income units in areas with high rates of cost burden among renter households is intended to alleviate affordability pressures by meeting the demand. Additionally, distributing some moderate and above-moderate income units in these areas aims to create a balanced socioeconomic environment to avoid segregated living patterns.
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-40 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure 4-12 Sites Inventory Analysis by Cost Burdened Renter Households
SOURCE: HCD AFFH Data Viewer; City of Ceres
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Chapter 4.0 – AFFH Analysis of the Site Inventory 4-41 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
4.8 Summary and Conclusions
The housing opportunity sites identified in this report are sufficient to accommodate 108 percent of Ceres’ Regional Housing Needs Allocation for the 6th Cycle planning period, meeting minimum counts for lower-income housing needs. Selected sites for the Sites Inventory are distributed throughout the city and are anticipated to decrease segregation and increase opportunities through integration of affordability levels for housing units. Details on existing uses, zoning, and capacity analysis are available in Appendix C.
Generally, Ceres is classified as a low-resource area with high diversity, low poverty levels, and a predominantly Hispanic/Latino population. Median household income varies by census tract, ranging from less than $55,000 to $90,100 annually. Household overcrowding rates range from 0 to 10 percent, while renter cost burdens vary from 20 to 60 percent across tracts. Female-headed households account for 18 percent of all households, with the highest concentrations (over 20 percent) in the eastern region.
Citywide investment is critical to address infrastructure deficiencies and improve economic, educational, and environmental health outcomes. To mitigate these challenges and support development, Ceres has developed targeted place-based strategies (Programs 5.4 and 5.5, see Chapter 2). These strategies focus on enhancing community assets, infrastructure, opportunities, and environmental health, supported by significant investments through the City’s Capital Improvement Program (CIP).
To address barriers to obtaining affordable housing for lower-income and special needs households, the City has developed a suite of programs to facilitate the construction of housing affordable to lower-income households and support lower-income households through continued education and acting as a liaison with community service providers (Programs 1.5, 1.9, 3.1, 3.2, 3.3, 3.4, 3.5, 3.8,
3.9, 3.11, 3.12, 3.13, 5.1, 5.2, 5.3, 5.4, 5.5 see Chapter 2).
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City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
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Section 5.0 – Energy Conservation 5-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
5.0 Energy Conservation
5.1 Introduction
This chapter summarizes opportunities for energy conservation in the construction of housing in the City of Ceres.
5.2 Opportunities for Energy Conservation
In accordance with SB 375, the Stanislaus County Council of Governments adopted a Regional Transportation/Sustainable Communities Strategy (RTP/SCS) in 2022. The plan serves to integrate land use, transportation, and housing planning to improve proximity and connectivity of jobs and housing to reduce greenhouse gas (GHG) emissions. This plan requires all municipalities in the County to adopt land use and transportation policies that align with the RTP/SCS.
Turlock Irrigation District Energy Efficiency Programming Turlock Irrigation District (TID) is a not-for-profit irrigation, water, and electric utility provider that serves Central California, providing the City of Ceres with energy efficiency services.
Turlock Irrigation District also offers public information and technical assistance to homeowners regarding energy conservation. TID also provides numerous incentives for energy efficiency in new construction and home remodeling. For example, remodeling rebates exist for projects installing upgrades from a flexible menu of options that earn points towards incentives and rebates. One of the more recent strategies in building energy-efficient homes is following the U.S. Green Building Council's guidelines for LEED Certification. The LEED for Homes program includes standards for new single-family and multi-family home construction.
Additionally, TID provides residents with information regarding energy saving measures including various incentives and programs available to developers and residential property owners. Table 5-1 provides a description of the various financial and energy-related assistance that TID and regional partners offer low-income customers.
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Section 5.0 – Energy Conservation 5-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table 5-1 Stanislaus County Programs and Incentives for Residential Properties Program Description
Turlock Irrigation District
Weatherization Program TID’s Weatherization program offers free weatherization measures and energy- efficient appliances to qualified low-income households. TID determines qualified households through a sliding income scale based on the size of a household. The program includes measures such as attic insulation, weather stripping, caulking, and minor home repairs. Some customers qualify for replacement of appliances including electric water heaters, air conditioners and evaporative coolers.
TID Cares Program The TID Cares Program provides qualifying residential customers an $11 discount on their residential customer charge, as well as 15 percent off the first 800 kilowatt- hours (kWh) of use. Eligibility is dependent on several criteria listed online. 1 Central Valley Opportunity Center
Home Energy Assistance Program The Home Energy Assistance Program provides one payment per year to utility companies for low-income individuals. TID customers apply through the Central Valley Opportunity Center. To be eligible, the individual must be a Stanislaus County resident and income must be at or below 130 percent of the poverty level per the Federal Register.
Energy Crisis Intervention Program The Energy Crisis Intervention Program provides one payment per year to utility companies for low-income customers that have received a 48-hour Shut Off Notice or if a senior citizen or disabled person have received a 15-day Shut Off Notice.
The program also assists customers in obtaining propane and firewood for heating and repair or replacement of heating sources. To be eligible, the individual must be a Stanislaus County resident and income must be at or below 130 percent of the poverty level per the Federal Register, in addition to having received a 48- hour Shut Off Notice or 15-day Shut Off Notice prior to application.
The Salvation Army
Energy Assistance Program The Salvation Army Energy Assistance Program provides financial assistance to qualified customers in TID’s service territory. Qualified customers can receive up to $300 towards their TID bills. Selection and assistance granted is at the discretion of The Salvation Army.
Source: TID, 2023
5.3 Housing Element Programs Related to Energy Efficiency As part of this Housing Element Update, the City of Ceres will continue to implement:
Program 4.1 – Weatherization and Energy Conservation for Existing Dwelling Units, which commits the City to continue to post and distribute information on currently available weatherization and energy conservation programs in conjunction with housing rehabilitation. Program 4.2 – Energy Conservation for New Construction, which commits the City to continuing the enforcement of Title 24 and California Green Building.
1 https://www.tid.org/customer-service/payment-assistance-programs/tid-cares-rate-assistance-program/
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Housing Needs & Fair Housing Report
A
APPENDIX
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Table of Contents
APPENDIX A CITY OF CERES HOUSING NEEDS & FAIR HOUSING REPORT ............... A-1 A.1 Introduction ........................................................................................................................... A-1 A.2 Population, Employment, and Household Characteristics ............................................. A-5 A.3 Integration and Segregation ............................................................................................... A-23 A.4 Disproportionate Housing Needs ..................................................................................... A-50 A.5 Special Needs Groups ......................................................................................................... A-59 A.6 Access to Opportunity ........................................................................................................ A-82 A.7 Housing Stock Characteristics ........................................................................................... A-92 A.8 Fair Housing Enforcement and Outreach Capacity ..................................................... A-109 A.9 Fair Housing Recommendations ..................................................................................... A-114 A.10 Conclusion .......................................................................................................................... A-117 Tables
Table A-1 Population Growth by Jurisdiction, 2010-2019 ....................................................A-6 Table A-2 Population Age Distribution by Jurisdiction, 2019 ..............................................A-8 Table A-3 Population by Race by Jurisdiction, 2019 ..............................................................A-9 Table A-4 Employment Growth Forecast by Jurisdiction, 2020-2050 ............................. A-10 Table A-5 Employment by Sector, Ceres, 2010 and 2019 .................................................. A-12 Table A-6 Unemployment Rate, Ceres, 2019 ........................................................................ A-14 Table A-7 Regional Housing Needs Allocation .................................................................... A-15 Table A-8 Occupations by Mean Salary, Stanislaus County, 2019 ..................................... A-16 Table A-9 Housing Forecast by Jurisdiction, 2020-2050 ..................................................... A-17 Table A-10 Maximum Household Income by Household Size, Ceres, 2022 ..................... A-20 Table A-11 Households by Income Category, Ceres, 2015-2019 ........................................ A-21 Table A-12 Population by Racial Group, City of Ceres and Stanislaus County, 2010-2019 ................................................................................................. A-25
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Table A-13 Employment Status by Disability Status, Stanislaus County, 2015-2019 ....... A-32 Table A-14 Tenure by Household Type and Presence of Children, Stanislaus County, 2019 ........................................................................................................... A-36 Table A-15 Overview of Special Needs Groups ..................................................................... A-59 Table A-16 Extremely Low-Income Households, Ceres, 2015-2019 .................................. A-60 Table A-17 Disability Status by Age, Ceres, 2019 ................................................................... A-68 Table A-18 Population with Developmental Disabilities by Age, Ceres, 2021 .................. A-69 Table A-19 Population with Developmental Disabilities by Residence, Ceres, 2021 ....... A-69 Table A-20 Homeless Population, 2018-2023 ......................................................................... A-79 Table A-21 Homelessness by Household Type and Shelter Status, Stanislaus County, 2022 ........................................................................................................... A-80 Table A-22 Housing Unit Growth Trends by Jurisdiction, 2010-2019 ............................... A-93 Table A-23 Housing Units by Type by Jurisdiction, 2019 ..................................................... A-93 Table A-24 Housing Units by Type and Tenure, Ceres, 2019 .............................................. A-95 Table A-25 Household Tenure by Income Level, Ceres, 2015-2019................................... A-96 Table A-26 Household Size by Tenure by Jurisdiction, 2019 ............................................... A-96 Table A-27 Vacant Housing Units by Type, Ceres, 2019 ...................................................... A-98 Table A-28 Housing Permits by Income Group, Ceres, 2015-2020 .................................... A-98 Table A-29 Assisted Units At-Risk of Conversion ................................................................. A-99 Table A-30 Median Home Value by Jurisdiction, 2019-2022 ............................................. A-104 Table A-31 Average Apartment Rents by Number of Bedrooms, Ceres, 2024 ............... A-105 Table A-32 Housing Affordability, Ceres, 2024 .................................................................... A-106 Table A-33 Fair Housing Issues & Contributing Factors .................................................... A-115 Figures
Figure A-1 Major Public and Legal Actions that Influence Fair Access to Housing ......... A-4 Figure A-2 Population Growth, Ceres, 2010-2019 .................................................................. A-6 Figure A-3 Population Distribution by Age, Ceres, 2010-2019 ............................................. A-7 Figure A-4 Population by Race in Ceres Compared to Stanislaus County, 2019 ................ A-8
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Figure A-5 Population by Race, Ceres, 2010-2019 ................................................................ A-10 Figure A-6 Worker Earnings by Place of Residence & Place of Work, Ceres, 2019 ........ A-13 Figure A-7 Jobs by Industry by Jurisdiction, 2019 ................................................................. A-14 Figure A-8 Household by Type by Jurisdiction, 2019 ........................................................... A-18 Figure A-9 Changes in Household Types, Ceres, 2010-2019 ............................................... A-18 Figure A-10 Households by Household Size by Jurisdiction, 2019 ...................................... A-19 Figure A-11 Housing Tenure by Jurisdiction, 2019 ................................................................. A-19 Figure A-12 Households by Income Level by Jurisdiction, 2015-2019 ................................ A-21 Figure A-13 Median Household Income by Jurisdiction, 2019 ............................................. A-22 Figure A-14 Income by Category, Ceres, 2019 ......................................................................... A-22 Figure A-15 Percent Non-White Population, Stanislaus County, 2018 ................................ A-26 Figure A-16 Percent Non-White Population, Ceres, 2018 ..................................................... A-27 Figure A-17 Predominant Population, Stanislaus County ...................................................... A-28 Figure A-18 Predominant Population, Ceres, 2018 ................................................................. A-29 Figure A-19 Diversity Index, Ceres, 2018 ................................................................................. A-30 Figure A-20 Percentage of Population with One or More Disabilities, Stanislaus County, 2019 ........................................................................................................... A-33 Figure A-21 Population with One or More Disabilities, Ceres, 2019 ................................... A-34 Figure A-22 Female-Headed Households with Children, No Spouse/Partner, Stanislaus County, 2019 ......................................................................................... A-37 Figure A-23 Adults in Households Living Alone, Stanislaus County, 2019 ........................ A-38 Figure A-24 Female-Headed Households with Children, No Spouse/Partner, Ceres, 2019 .............................................................................................................. A-40 Figure A-25 Adults in Households Living Alone, Ceres, 2019 .............................................. A-41 Figure A-26 Median Household Income, Stanislaus County, 2019 ...................................... A-42 Figure A-27 Low and Moderate-Income Population, Stanislaus County 2019 ................... A-43 Figure A-28 Median Household Income, Ceres, 2019 ............................................................ A-45 Figure A-29 Low and Moderate-Income Population, Ceres, 2019 ....................................... A-46 Figure A-30 R/ECAP by Census Tract, Ceres, 2023 .............................................................. A-48
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Figure A-31 RCAA by Census Tract, Ceres, 2015-2019 ......................................................... A-49 Figure A-32 Housing Problems by Tenure, Ceres, 2015-2019 .............................................. A-51 Figure A-33 Severe Housing Problems by Tenure, Ceres, 2015-2019 .................................. A-51 Figure A-34 Overcrowding by Severity by Jurisdiction, 2019 ................................................ A-52 Figure A-35 Overcrowding by Tenure and Severity, Ceres, 2019 ......................................... A-53 Figure A-36 Overcrowded Households, Ceres......................................................................... A-54 Figure A-37 Cost Burden Severity by Jurisdiction, 2015-2019 .............................................. A-55 Figure A-38 Cost Burden by Tenure, Ceres, 2015-2019 ......................................................... A-56 Figure A-39 Cost Burden by Home Owners, Ceres, 2015-2019 ........................................... A-57 Figure A-40 Cost Burden by Renter Households, Ceres, 2015-2019 .................................... A-58 Figure A-41 Population Below Poverty Level by Jurisdiction, 2019 ..................................... A-61 Figure A-42 Percent Living Below the Poverty Line by Race and Ethnicity, Ceres, 2019 .............................................................................................................. A-62 Figure A-43 Senior Population by Jurisdiction, 2019 .............................................................. A-64 Figure A-44 Senior Housing by Tenure, Ceres, 2019 .............................................................. A-64 Figure A-45 Senior Households by Income, Ceres, 2019 ....................................................... A-65 Figure A-46 Population by Disability Status by Jurisdiction, 2019 ........................................ A-67 Figure A-47 Trends in Persons with Disabilities, Ceres, 2012-2019 ..................................... A-67 Figure A-48 Household Size by Tenure, Ceres, 2019 .............................................................. A-71 Figure A-49 Single-Parent Households by Jurisdiction, 2019 ................................................ A-72 Figure A-50 Trends in Single-Parent Households, Ceres, 2010-2019 ................................... A-73 Figure A-51 Female-Headed Family Households by Poverty Status, Ceres, 2019 .............. A-73 Figure A-52 Hired Farm Labor by County, Stanislaus County, 2002-2017 ......................... A-75 Figure A-53 Population with Limited English Proficiency, 2019 .......................................... A-82 Figure A-54 TCAC Opportunity Composite Score, Ceres, 2022 .......................................... A-84 Figure A-55 TCAC Opportunity Economic Score, Ceres, 2022 ........................................... A-85 Figure A-56 TCAC Opportunity Education Score, Ceres, 2022 ........................................... A-87 Figure A-57 TCAC Opportunity Environmental Score, Ceres, 2022 ................................... A-89
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Figure A-58 Social Vulnerability Index, Ceres, 2018 ............................................................... A-90 Figure A-59 Housing by Type, Ceres, 2010, 2015, 2019 ......................................................... A-94 Figure A-60 Housing Tenure, Ceres, 2010-2021 ...................................................................... A-95 Figure A-61 Household Tenure by Race, Ceres, 2019 ............................................................ A-97 Figure A-62 Vacancy Rates by Jurisdiction, 2019 .................................................................... A-97 Figure A-63 Displacement Risk, Ceres, 2022 ......................................................................... A-102 Figure A-64 Housing Stock Age, Ceres, 2019 ........................................................................ A-103 Figure A-65 Public Housing Buildings by Census Tract, Ceres ........................................... A-107 Figure A-66 Housing Choice Vouchers by Census Tract, Ceres ......................................... A-108
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Appendix A – Housing Needs & Fair Housing Report A-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Appendix A
City of Ceres Housing Needs & Fair Housing Report
A.1 Introduction
The following report provides both the City of Ceres Housing Needs Assessment and Fair Housing Assessment. This analysis primarily utilizes U.S. Census Bureau American Community Survey (ACS) 5-Year Estimate data and California Department of Housing and Community Development (HCD) data. It is important to note, there are discrepancies between U.S. Census Bureau ACS data and HCD data, specifically when analyzing Ceres at a regional scale.
Housing Needs Assessment
The Housing Needs Assessment for the City of Ceres provides an in-depth analysis of the City’s housing and population conditions including population, employment, economics, household and housing stock characteristics. This assessment develops context for the City’s goals, programs, and policies for the 6th Cycle Housing Element.
Fair Housing Assessment
In 2018, Governor Brown signed Assembly Bill (AB 686) requiring all public agencies in the state to affirmatively further fair housing (AFFH). The law went into effect on January 1, 2019. 1 AB 686 also made changes to Housing Element Law to incorporate AFFH requirements as part of the housing element and general plan to include an analysis of fair housing outreach and capacity, integration and segregation, access to opportunity, disparate housing needs, and current fair housing practices.
1 Public agencies receiving funding from the U.S. Department of Housing and Urban Development (HUD) are also required to demonstrate their commitment to AFFH. The federal obligation stems from the fair housing component of the federal Civil Rights Act mandating federal fund recipients to take “meaningful actions” to address segregation and related barriers to fair housing choice.
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Appendix A – Housing Needs & Fair Housing Report A-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Affirmatively Furthering Fair Housing
“Affirmatively furthering fair housing” means taking meaningful actions, in addition to combating discrimination, that overcome patterns of segregation and foster inclusive communities free from barriers that restrict access to opportunity based on protected characteristics. Specifically, affirmatively furthering fair housing means taking meaningful actions that, taken together, address significant disparities in housing needs and in access to opportunity, replacing segregated living patterns with truly integrated and balanced living patterns, transforming racially and ethnically concentrated areas of poverty into areas of opportunity, and fostering and maintaining compliance with civil rights and fair housing laws.
The duty to affirmatively further fair housing extends to all of a public agency’s activities and programs relating to housing and community development. (Gov. Code, § 8899.50, subd. (a)(1).)”
SOURCE: California Department of Housing and Community Development Guidance, 2021, page 14.
History of Segregation in the Region
The United States’ oldest cities have a history of
mandating segregated living patterns—and cities in the
San Joaquin Valley region are no exception. Stanislaus
County and the San Joaquin Valley region have a
troubled history of segregation and racism from the
time of the European settlers to the present. Some of
the segregation in the San Joaquin Valley area can be
attributed to historically discriminatory practices, such as: restrictive covenants, redlining and discriminatory mortgage approvals—as well as “structural inequities”
in society, and “self-segregation” (i.e., preferences to live near similar people).
Jeff Benziger’s 2010 book, Ceres, details the history of Ceres and adjacent cities, and how the California Gold
Rush and the migration of farming families to the
region led to a shift in demographics and the
development of an agrarian-based local economy.
During the Great Depression, Ceres became home to
many migrant workers that were employed in Modesto or Turlock.
This history of segregation in
the region is important not
only to understand how
residential settlement
patterns came about—but,
more importantly, to explain
differences in housing
opportunity among residents
today. In sum, not all
residents had the ability to
build housing wealth or
achieve economic
opportunity. This historically
unequal playing field in part
determines why residents
have different housing needs
today.
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Appendix A – Housing Needs & Fair Housing Report A-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Emily Tumpson Molina, in the article Race, Municipal Underbounding, and Coalitional Politics in Modesto, California, and Moore County, North Carolina, describes “municipal underbounding” as the process by which municipalities draw their boundaries to exclude particular communities from municipal services, typically based on their racial or economic composition” and uses this terminology to detail the ways in which these physical and social boundaries, and “…[p]revailing patterns of segregation have enabled the city of Modesto and Stanislaus County to deny basic services like sidewalks, wastewater disposal, trash collection, and police protection to the predominantly Latino communities…”.
2 In addition to historical discriminatory practices that embedded segregation into living patterns throughout the Stanislaus County and San Joaquin Valley, it is also necessary to recognize the historical impacts of colonization and genocide on Indigenous populations and how the effects of those atrocities are still being felt today. In Stanislaus County and San Joaquin Valley, many of the indigenous populations were displaced due to the migration of Spanish missionaries, European settlers, goldminers, and trappers into the region. Historically, the region had been home to indigenous populations for more than 10,000 years. The original inhabitants of present-day Stanislaus County were the Yokut who have lived in communities related by language, blood, and culture.
3 However, “[d]ue to the devastating policies and practices of a succession of explorers, missionaries, settlers, and various levels of government over the centuries since European expansion, these tribes have lost the vast majority of their population as well as their land.”4 The lasting influence of these policies and practices have contributed directly to the disparate housing and economic outcomes collectively experienced by Native populations today.5
According to the Modesto Bee, the primary news outlet for the City of Modesto, an increasing number of racist incidents and segregation has led to an investigation of restrictive covenants and other discriminatory housing policies in Stanislaus County. 6 As a means of addressing these
issues within the City of Ceres, enacting policies and programs that promote AFFH and highlight the community’s assets could attract a diverse group of individuals to the area, and undo some of the segregation patterns in the area, as well.
The timeline of major Federal Acts and court decisions related to fair housing choice and zoning and land use appear in Figure A-1 on the following page.
2Molina, E. T. (2014). Race, Municipal Underbounding, and Coalitional politics in Modesto, California, and Moore County, North Carolina. Kalfou: A Journal of Comparative and Relational Ethnic Studies, 180 –187. 3 https://www.valleyhistory.org/native-americans
4 https://www.smcoe.org/for-communities/indigenous-people-of-san-mateo-county.html 5 https://www.americanprogress.org/article/systemic-inequality-displacement-exclusion-segregation/ 6 https://www.modbee.com/news/local/article273097685.html
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Appendix A – Housing Needs & Fair Housing Report A-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-1 Major Public and Legal Actions that Influence Fair Access to Housing SOURCE: Root Policy Research
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Appendix A – Housing Needs & Fair Housing Report A-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 As shown in the timeline, exclusive zoning practices were common in the early 1900s. Courts struck down only the most discriminatory and allowed those that would be considered today to have a “disparate impact” on classes protected by the Fair Housing Act. For example, the 1926 case Village of Euclid v. Amber Realty Co. (272 U.S. 365) supported the segregation of residential, business, and industrial uses, justifying separation by characterizing apartment buildings as “mere parasite(s)” with the potential to “utterly destroy” the character and desirability of neighborhoods. At that time, multifamily apartments were the only housing options for people of color, including immigrants.
The Federal Fair Housing Act was not enacted until nearly 60 years after the first racial zoning ordinances appeared in U.S. cities. This coincided with a shift away from federal control over low- income housing toward locally-tailored approaches (block grants) and market-oriented choice (Section 8 subsidies)—the latter of which is only effective when adequate affordable rental units are available.
Overview of Ceres
Over the past 20 years, the City of Ceres has experienced growth in both population and jobs, which means more housing of various types and sizes is needed to ensure that residents across all income levels, ages, and abilities have a place to call home. While the number of people drawn to the City has steadily increased, housing production has stalled, contributing to the housing shortage that communities are experiencing today. In many cities, this has resulted in residents being priced out, increased traffic congestion caused by longer commutes, and fewer people across incomes being able to purchase homes or meet surging rents. Additionally, with increasing population and economic pressures comes the space for inequitable housing practices. The following Housing Needs and Fair Housing Assessment develops context for the goals, programs, and policies that Ceres will implement to address inequities in the 6
th Cycle Housing Element.
A.2 Population, Employment, and Household Characteristics Population characteristics impact current and future housing needs in a community. A city’s population growth, age composition and race and ethnicity composition determine the type and extent of housing needed. The following section provides analysis of population characteristics and local trends that affect housing demand in Ceres.
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Appendix A – Housing Needs & Fair Housing Report A-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Population Growth
Table A-1 shows population growth in Ceres, the County, and nearby comparable cities between 2010-2019. In Ceres, the population increased approximately 9 percent from 2010 to 2019. Between this period, the City of Ceres’ population steadily increased as did the County and nearby cities of Oakdale and Turlock. Ceres’ population in 2019 was 48,214, larger than Oakdale but smaller than Turlock and the County.
Table A-1 Population Growth by Jurisdiction, 2010-2019
Jurisdiction Population
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Stanislaus
County
509,682 512,469 515,115 518,321 522,794 527,367 530,561 535,684 539,301 543,194 Ceres 44,153 44,731 45,086 46,022 46,570 46,952 47,231 47,650 47,975 48,214 Oakdale 20,076 20,364 20,663 20,943 21,260 21,543 21,796 22,256 22,599 22,936 Turlock 67,376 67,953 68,576 69,185 69,875 70,596 71,166 71,906 72,335 72,904 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 Figure A-2 illustrates population growth in Ceres between 2010-2019. Ceres’ population steadily increased during this time period, experiencing a total increase of 9 percent from 2010 to 2019.
Figure A-2 Population Growth, Ceres, 2010-2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 42,000
43,000
44,000
45,000
46,000
47,000
48,000
49,000
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Population
Year
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Appendix A – Housing Needs & Fair Housing Report A-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Age Characteristics
A community’s housing needs are partly determined by preferences of age groups and household types (age, family/non-family, presence of children, female-headed, etc.). When seeking housing, households may prioritize factors such as size, accessibility, and price. For instance, younger and middle-aged households may seek homes that can accommodate a growing household size, whereas older adults may seek to downsize to an apartment with assistive care services or a smaller more affordable single-family home. Disabled persons may seek homes that are accessible and include universal design or visitability features. Overall, the life stages of a population determine the housing stock that is needed in a community.
In 2010, Ceres’ predominant age group was individuals between 15 and 24 years of age (17 percent).
Figure A-3 shows that between 2010 and 2019, the general age of the population has been slowly increasing; however, the most populous age groups in the City appear to be individuals between 5 and 14 years of age. Senior populations have remained less than 2 percent in the City since 2010. As of 2019, the City’s median age was 30. Overall, Ceres’ aging trend suggests a demand for housing geared toward younger to middle-aged persons and families.
Figure A-3 Population Distribution by Age, Ceres, 2010-2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2010, 2015, 2019 Table A-2 shows that Ceres’ most populous age group in 2019 was individuals 5 to 14 years of age (18 percent). Compared to the County and nearby comparable cities, Ceres has the largest 5-14, 15- 24, and 25-34 age groups. In contrast, Ceres and Oakdale both have the smallest 65 and older age groups (less than 6 percent, respectively).
Age 0-4 Age 5-14 Age 15-24 Age 25-34 Age 35-44 Age 45-54 Age 55-64 Age 65-74 Age 75-84 Age 85+ 2010 9% 16% 17% 15% 14% 14% 8% 4% 3% 1%
2015 8% 17% 16% 16% 13% 12% 10% 5% 3% 1%
2019 8% 18% 16% 16% 13% 12% 9% 6% 3% 1%
0%
2%
4%
6%
8%
10%
12%
14%
16%
18%
20%
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Appendix A – Housing Needs & Fair Housing Report A-8 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-2 Population Age Distribution by Jurisdiction, 2019 Jurisdiction Population Age
0-4 5-14 15-24 25-34 35-44 45-54 55-64 65-74 75-84 85+
Stanislaus County 7% 15% 14% 15% 13% 12% 11% 8% 4% 2%
Ceres 8% 18% 16% 16% 13% 12% 9% 6% 3% 1%
Oakdale 8% 16% 14% 12% 16% 12% 11% 6% 4% 1%
Turlock 7% 15% 15% 15% 13% 13% 10% 8% 4% 2%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Race and Ethnicity Characteristics
Demographic characteristics such as the racial and ethnic composition of a city are necessary to inform the housing needs of a community inclusive of cultural norms and preferences. Figure A-4 illustrates the racial and ethnic composition of Ceres compared to the County.
Figure A-4 Population by Race in Ceres Compared to Stanislaus County, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
When comparing the City and the County, Hispanic or Latino and non-Hispanic White populations are the most represented. Hispanic or Latino individuals comprise the majority of both the County (46 percent) and Ceres’ population (61 percent). Those identifying as American Indian or Alaska Native represent the smallest population group within the City (1 percent) followed by Some Other Race/Two or More Races (3 percent). Despite having a smaller population than the County, Ceres’ population is more diverse.
American
Indian or
Alaska
Native
Asian
Black or
African
American,
Non-
Hispanic
White,
Non-
Hispanic
Some other
race/Two
or more
races
Hispanic or
Latino
Native
Hawaiian
and Other
Pacific
Islander
Ceres 0.7% 6.7% 3.7% 24.4% 2.6% 61.4% 0.5%
Stanislaus County 0.5% 5.4% 2.8% 41.9% 2.6% 46.3% 0.7%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
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Appendix A – Housing Needs & Fair Housing Report A-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-3 provides a comparison of racial and ethnic composition by jurisdiction. In 2019, the County (42 percent) and the nearby comparable cities of Turlock (50 percent) and Oakdale (61 percent) had the largest non-Hispanic White populations compared to Ceres (24 percent). Ceres had the largest Hispanic or Latino (61 percent), Asian (7 percent), and Black or African American (4 percent) populations compared to surrounding cities and the County.
Table A-3 Population by Race by Jurisdiction, 2019
Jurisdiction
American
Indian or
Alaska
Native
Asian,
alone
Black or
African
American,
Non-
Hispanic
White,
Non-
Hispanic
Some
Other
Race
Hispanic
or
Latino
Native
Hawaiian
and Other
Pacific
Islander
Stanislaus County 0% 5% 3% 42% 3% 46% 1%
Ceres 1% 7% 4% 24% 3% 61% 0%
Oakdale 1% 2% 0% 61% 3% 33% 0%
Turlock 1% 6% 2% 50% 3% 37% 0%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
When analyzing race and ethnicity in a city, it’s important to understand how demographics have changed over time. Figure A-5 illustrates changes in population by race between 2010-2019 in Ceres.
During this time frame, Ceres’ population composition experienced fluctuations in nearly all populations. In 2015, all populations experienced a decrease in size with the exception of Hispanic or Latino (8 percent increase) and Some Other Race/Two or More Races (1 percent increase). In 2019, Ceres saw growth in all populations except non-Hispanic White (4 percent decline) and Some Other Race/Two or More Races (0.1 percent decline).
Diversity Index
The Diversity Index measures the degree to which the five major ethnic populations (non-Hispanic White, non-Hispanic Black, Asian and Pacific Islander, Hispanic, and Two or more races) are evenly distributed across a geographic area. The index ranges from 0 to 1 – where 0 is low diversity, meaning only one group is present, and 1 is high diversity, meaning an equal proportion of all five groups is present.
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Appendix A – Housing Needs & Fair Housing Report A-10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-5 Population by Race, Ceres, 2010-2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2010, 2015, 2019 Employment Characteristics
Employment characteristics can significantly impact the housing needs and trends of a community from income and wage scale to job location and industry. Employment and income are determinates of a population’s ability to purchase housing including the type of housing and size, both of which can induce negative effects such as overpayment and overcrowding. Table A-4 summarizes projected employment growth for Ceres, the County, and nearby comparable cities from 2015-2045.
Table A-4 Employment Growth Forecast by Jurisdiction, 2020-2050 Jurisdiction Population Change
2015 - 2045
2020 2025* 2030 2035* 2040* 2045* 2050* Percent
Stanislaus County 238,362 267,154 271,450 276,735 284,324 292,786 302,628 26% Ceres 15,384 18,325 18,804 19,336 20,067 20,876 21,847 42% Oakdale 8,256 8,912 8,937 8,968 9,005 9,135 9,276 12%
Turlock 33,001 38,430 38,828 39,387 40,259 41,243 42,395 28% SOURCE: Stanislaus County Demographic and Employment Forecast, 2021 NOTE: *Projected growth values
American
Indian or
Alaska
Native
Asian
Black or
African
American,
Non-
Hispanic
White,
Non-
Hispanic
Some
other
race/Two
or more
races
Hispanic
or Latino
Native
Hawaiian
and Other
Pacific
Islander
2010 0.7% 8.7% 2.7% 33.1% 1.8% 52.5% 0.4%
2015 0.6% 5.5% 1.7% 28.5% 2.7% 60.7% 0.4%
2019 0.7% 6.7% 3.7% 24.4% 2.6% 61.4% 0.5%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
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Appendix A – Housing Needs & Fair Housing Report A-11 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 According to the Stanislaus County 2021 Demographic and Employment Forecast, Ceres is projected to experience an employment growth of 42 percent between 2020-2050. This projected employment growth is 16 percent higher than the County (26 percent) and 14 percent higher than Turlock (28 percent). This projected increase in job growth presents an opportunity for cities to construct additional housing options for the existing and future workforce.
Table A-5 shows 2010 and 2019 employment data for Ceres by sector. Key findings in employment data include the following:
In both 2010 and 2019, education services, healthcare, and social assistance industries were the largest employers in Ceres (18 percent) followed by manufacturing (16 percent and 15 percent, respectively);
Professional, scientific management, and administrative services industries experienced the greatest increase between 2010 and 2019 (60 percent), followed by transportation and warehousing, and utilities (60 percent);
Five sectors experienced drastic declines in employment between 2010 and 2019 including information (35 percent), finance and insurance, real estate, and rental leasing (32 percent), public administration (23 percent), wholesale trade (21 percent), and retail trade (17 percent); Manufacturing (1 percent) and arts, entertainment, recreation, accommodation, and food services (1 percent) industries experienced the least amount of growth; and Overall, there was a 1 percent increase in employment for Ceres residents between 2010 and 2019.
Balance of Jobs to Workers
A city houses employed residents who either work in the community where they live or work elsewhere in the region. Conversely, a city may have job sites that employ residents from the same city but more often employ workers commuting from outside of it. Smaller cities will typically have more employed residents than jobs and export workers, while larger cities tend to have a surplus of jobs and import workers. To some extent, the regional transportation system is set up for this flow of workers to the region’s core job centers. At the same time, as the housing affordability crisis has illustrated, local imbalances may be severe, where local jobs and worker populations are out of sync at a sub-regional scale.
One measure of local imbalance is the relationship between workers and jobs. A city with a surplus of workers “exports” workers to other parts of the region, while a city with a surplus of jobs must conversely “import” them.
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Appendix A – Housing Needs & Fair Housing Report A-12 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-5 Employment by Sector, Ceres, 2010 and 2019
Industry Sector
2010 2019 Percent
Change
2010-2019
People
Employed
Percent of City
Employment
People
Employed
Percent of City
Employed
Agriculture, forestry, fishing and
hunting, and mining 721 4% 749 4% 4%
Construction 1,739 10% 1,801 10% 4%
Manufacturing 2,907 16% 2,924 15% 1%
Wholesale Trade 688 4% 543 3% -21%
Retail Trade 3,011 16% 2,503 13% -17%
Transportation and warehousing,
and utilities 1,100 6% 1,761 9% 60%
Information 278 2% 182 1% -35%
Finance and insurance, real
estate, and rental leasing 696 4% 472 3% -32%
Professional, scientific,
management, and administrative
services
973 5% 1,641 9% 69%
Education services, healthcare,
and social assistance 3,232 18% 3,503 18% 8%
Arts, entertainment, recreation,
accommodation, and food services 2,467 13% 2,496 13% 1% Public Administration 570 3% 439 2% -23%
Total Employment 18,382 100% 19,014 100% 3%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2010, 2019 A community may offer employment for relatively low-income workers but have relatively few housing options for those workers. Conversely, it may house residents who are low-wage workers but offer few employment opportunities for them. Such relationships may cast extra light on potentially pent-up demand for housing in particular price categories. A relative surplus of jobs relative to residents in a given wage category suggests the need to import those workers, while conversely, surpluses of workers mean the community will export those workers to other jurisdictions. Such flows are not inherently negative, though over time, sub-regional imbalances may appear.
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Appendix A – Housing Needs & Fair Housing Report A-13 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-6 illustrates worker earnings in relation to worker place of residence and place of work in Ceres. The City has more workers than jobs at all income levels. Specifically, the City experiences the largest imbalances for low- and moderate-wage jobs to residents, respectively (where low-wage refers to jobs paying less than $25,000 and moderate-wage refers to jobs paying less than $$49,999).
According to Figure A-6, in 2019, Ceres had more workers than jobs for all income levels, meaning Ceres is a net-exporter of workers. This reflects a need for more job opportunities within the City to balance out the number of jobs to workers. However, this could be the result of a lack of affordable housing in cities within the Bay Area that have a greater supply of jobs than affordable housing options.
Figure A-6 Worker Earnings by Place of Residence & Place of Work, Ceres, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Figure A-7 illustrates employment data by industry in Ceres, the County, and nearby comparable cities. The largest industry of employment for Ceres (18 percent), the County (21 percent), and the nearby cities of Oakdale (21 percent) and Turlock (27 percent) is Health and Educational Services. 2,379
4,059
6,671
3,062
2,198
1,618
3,341
3,867
2,432
1,806
0 1,000
2,000
3,000
4,000
5,000
6,000
7,000
8,000
Less than $9,999 $10,000 to
$24,999
$25,000 to
$49,999
$50,000 to
$74,999
$75,000 or more
Place of Residence
Place of Work
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Appendix A – Housing Needs & Fair Housing Report A-14 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-7 Jobs by Industry by Jurisdiction, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Unemployment rates are essential to understanding the affordability needs of a community when determining housing options. Table A-6 provides a breakdown of unemployment rates for Ceres, the County, and nearby cities. In 2019, Ceres had a 12 percent unemployment rate, mirroring Oakdale. This indicates an approximate 3 percent higher unemployment rate than the County and 5 percent higher than the City of Turlock.
Table A-6 Unemployment Rate, Ceres, 2019
Jurisdictions Unemployment Rate
Stanislaus County 9%
Ceres 12%
Oakdale 12%
Turlock 7%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
6% 4% 6% 5%
13% 13% 14% 11%
8% 9% 8%
5%
3% 2% 4%
4%
4% 2%
6%
5%
21%
18%
21%
27%
1%
1%
1% 2%
12%
15%
13% 13%
4% 3%
3%
4%
8% 9%
9%
7%
13% 13%
7% 13%
7% 9% 7% 6%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Transportation & Utilities
Retail Trade
Professional & Managerial
Services
Wholesale Trade
Manufacturing
Information
Health & Educational Services
Government
Financial & Leasing
Construction
Arts, Recreation & Other
Services
Agriculture & Natural Resources
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Appendix A – Housing Needs & Fair Housing Report A-15 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The Stanislaus Council of Governments (STANCOG) approved Regional Housing Needs Assessment (RHNA) Methodology is broken down into four income levels:
Very Low Income (50 percent or less of the County’s median income); Low Income (50-80 percent of the County’s median income); Moderate Income (80-120 percent of the County’s median income); and Above moderate Income (120 and above the County’s median income).
The City of Cere’s RHNA allocation is presented below in Table A-7.
Table A-7 Regional Housing Needs Allocation
Income Group Percentage of AMI Share
Extremely Low-Income7 <30 353
Very Low-Income <50 353
Low-Income 50-80 489
Moderate-Income 80-120 661
Above Moderate-Income 120+ 1,505
Total 3,361
SOURCE: City of Ceres
In Stanislaus County, the median household income in 2019 was an estimated $60,704 compared to Ceres at $58,667. According to Table A-8, the occupations that fall below 50 percent of the median income are Food Preparation and Serving-Related Occupations; Personal Care and Service Occupations; and Farming, Fishing, and Forestry Occupations. Many occupations in Stanislaus County have an average income that is low (50-80 percent AMI) or very low (<50 percent AMI). If applied to Ceres, it should be anticipated that affordable housing is needed to accommodate potential low- and very low-income households.
7 Extremely low-income RHNA is found as a subset within the very low-income category for all other tables in this document.
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Appendix A – Housing Needs & Fair Housing Report A-16 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-8 Occupations by Mean Salary, Stanislaus County, 2019 Occupation Salary
Management Occupations $104,863
Business and Financial Operations Occupations $68,981
Computer and Mathematical Occupations $72,928
Architecture and Engineering Occupations $82,838
Life, Physical, and Social Science Occupations $74,841
Community and Social Services Occupations $50,830
Legal Occupations $78,168
Education, Training, and Library Occupations $61,309
Arts, Design, Entertainment, Sports, and Media Occupations $45,946 Healthcare Practitioners and Technical Occupations $94,039 Healthcare Support Occupations $37,455
Protective Service Occupations $56,032
Food Preparation and Serving-Related Occupations $27,165 Building and Grounds Cleaning and Maintenance Occupations $35,060 Personal Care and Service Occupations $27,670
Sales and Related Occupations $37,342
Office and Administrative Support Occupations $39,537
Farming, Fishing, and Forestry Occupations $27,602
Construction and Extraction Occupations $52,955
Installation, Maintenance, and Repair Occupations $52,124 Production Occupations $41,097
Transportation and Material Moving Occupations $39,135
SOURCE: California Employment Development Division, Occupational Wage data, 2019 Household Characteristics
Characteristics of a household include household type and size, income, affordability, and special needs groups. According to HCD, a household is defined as “All persons who occupy a housing unit. The occupants may be a single family, one person living alone, two or more families living together, or any groups of related or unrelated persons who share living arrangements.” Large families, senior households, single parent households, female-headed households, farmworkers, or extremely low- and low-income households may be classified as Special Needs groups. Special Needs groups are identified due to the unique nature of household characteristics and potential housing challenges faced. The following section examines household characteristics trends in Ceres and the region.
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Appendix A – Housing Needs & Fair Housing Report A-17 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-9 provides an overview of the projected housing units needed in Stanislaus County, Ceres, and nearby cities, Oakdale and Turlock.8 Ceres is forecast to have a household growth of approximately 32 percent by 2050. This reflects 4 percentage points of more growth than the County and 3 points less than the City of Turlock.
Table A-9 Housing Forecast by Jurisdiction, 2020-2050
Jurisdiction 2020 2025* 2030* 2035* 2040* 2045* 2050*
Percent
Change
from 2020-
2050
Stanislaus County 179,276 190,782 200,258 208,137 215,916 222,845 230,072 28% Ceres 13,318 14,278 15,063 15,718 16,366 16,946 17,552 32% Oakdale 7,823 8,413 8,897 9,300 9,697 10,053 10,424 33% Turlock 25,788 27,833 29,464 30,829 32,204 33,460 34,770 35% SOURCE: Stanislaus County Demographic and Employment Forecast, 2021 NOTE: *Projected growth values
Household Type and Size
Figure A-8 illustrates household characteristics by type in 2019 for Ceres, the County, and nearby cities, Oakdale and Turlock. In Ceres, the largest household type was married-couple family households (56 percent) followed by female-headed households (19 percent). Similarly, the largest household type in the County and nearby comparable cities was also married-couple family households, followed by single-person households. Ceres has the highest percentage of female- headed (19 percent) and male-headed households (10 percent) compared to the County and nearby comparable cities. Additionally, Ceres (13 percent) has the lowest percentage of single-person households compared to the County (21 percent), Oakdale (24 percent), and Turlock (23 percent).
8 Source: Stanislaus County Demographic and Employment Forecast, 2021
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Appendix A – Housing Needs & Fair Housing Report A-18 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-8 Household by Type by Jurisdiction, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Figure A-9 illustrates household changes between 2010-2019 in Ceres. Over the last decade, married-couple family households have remained the largest household type in the City followed by female-headed households. During this period, single-person households experienced the greatest decline (3 percentage points) and male-headed households experienced the greatest increase (3 percentage points). These changes and trends in household type over time indicate a need for housing options that appeal to larger sized households (keeping affordability in mind).
Figure A-9 Changes in Household Types, Ceres, 2010-2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2010-2019 NOTE: Non-family households include unrelated persons living in one housing unit.
14.8% 18.5% 15.2% 15.3%
7.6%
9.7%
7.1% 7.3%
51.8%
55.7%
48.5% 48.0%
5.4%
3.0%
5.0% 6.2%
20.5% 13.0%
24.2% 23.2%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Single-person Households
Other Non-Family Households
Married-couple Family Households
Male-headed Households
Female-Headed Households
18.1% 18.0% 18.5% 19.3% 19.3% 18.4% 20.1% 19.7% 19.3% 18.5%
7.2% 7.1% 7.3% 7.7% 8.6% 8.7% 9.2% 9.2% 8.8% 9.7%
55.0% 54.3% 53.4% 52.5% 52.6% 53.4% 53.4% 54.3% 55.8% 55.7%
3.5% 3.8% 4.2% 4.7% 4.6% 5.0% 4.0% 3.7% 3.1% 3.0%
16.1% 16.8% 16.6% 15.8% 14.9% 14.5% 13.4% 13.2% 13.1% 13.0% 0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Single-person Households
Other Non-Family Households
Married-couple Family Households
Male-headed Households
Female-Headed Households
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Appendix A – Housing Needs & Fair Housing Report A-19 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-10 illustrates households by household size for Ceres, the County, and nearby comparable cities. Ceres’ largest household type according to size is 3 to 4-person households (39 percent) followed by 5 or more-person households (25 percent). This is consistent with findings in Figure A-9, with married-couple family households remaining the largest household type since 2010. This reflects a demand for affordable housing units appealing to larger family households.
Figure A-10 Households by Household Size by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Figure A-11 illustrates housing by tenure in Ceres, the County, and nearby comparable cities. Thirty- nine (39) percent of the households in Ceres are renters. This reflects 3 percentage points lower renter population than the County (42 percent) and 7 percentage points lower than Turlock (46 percent).
Figure A-11 Housing Tenure by Jurisdiction, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Household Income
Affordability is a key component in determining the housing needs of a community. Household income determines the ability of a household to purchase or rent a housing unit. However,
21.7% 13.4% 25.5% 24.8%
25.9%
22.7%
23.6% 27.3%
34.2%
38.9%
36.2% 34.0%
18.2% 25.1% 14.8% 13.9%
0%
20%
40%
60%
80%
100%
Stanislaus
County
Ceres Oakdale Turlock
5-Person or More
Household
3-4-Person Household
2-Person Household
1-Person Household
58% 61% 60% 54%
42% 39% 40% 46%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Renter Occupied
Owner Occupied
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Appendix A – Housing Needs & Fair Housing Report A-20 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 fluctuating household incomes may result in the need to spend disproportionate amounts of income on housing costs, referred to as overpayment or cost burden. As a result, this may also lead to overcrowding and/or substandard living conditions.
Income levels are defined by guidelines adopted annually by HCD to determine housing affordability, housing need, and eligibility for housing assistance. According to HCD’s 2024 State Income Limits, the area median income (AMI) for a family of four in Stanislaus County in 2022 was $92,600.
The following are income categories based on area median income (AMI) according to HCD:
Extremely low-income9: households earning 0-30 percent of AMI ($0-$27,780); Very low-income: households earning 30-50 percent of AMI ($27,781-$46,300); Low-income: households earning 50-80 percent of AMI ($46,301-$74,080); Moderate-income: households earning 80-100 percent of AMI ($74,081-$92,600); and Above-moderate income: households earning 100-120 percent of AMI ($92,601 or more).
In accordance with HCD 2024 State Income Limits data, Table A-10 shows the maximum annual household income level for each income group by household size for Stanislaus County.
Table A-10 Maximum Household Income by Household Size, Ceres, 2022 Income
Category
Household Size
1 2 3 4 5 6 7 8
Extremely
Low-
Income
$19,150 $21,900 $25,820 $31,200 $36,580 $41,960 $47,340 $52,720 Very Low-
Income $31,900 $36,450 $41,000 $45,550 $49,200 $52,850 $56,500 $60,150 Low-
Income $51,050 $58,350 $65,650 $72,900 $78,750 $84,600 $90,400 $96,250 Median
Income $64,800 $74,100 $83,350 $92,600 $100,000 $107,400 $114,800 $122,250 Moderate-
Income $77,750 $88,900 $100,000 $11,100 $120,000 $128,900 $137,750 $146,650 SOURCE: California Department of Housing and Community Development, State Income Limits 2024
9 Government Code Section 65583(a) defines extremely low-income households as earning 30 percent or below area median income, and considers them a subset of the very low-income category. The extremely low -, very low-, and low- income groups are referred to as lower-income.
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Appendix A – Housing Needs & Fair Housing Report A-21 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-12 illustrates 2019 households by income level in Ceres, the County, and nearby comparable cities. In Ceres, 47 percent of households are lower-income households. This aligns with the relatively high rates of households experiencing some type of cost burden (36 percent) in Ceres.
Overall, household income in Ceres is consistent with the County and nearby cities of Oakdale and Turlock.
Figure A-12 Households by Income Level by Jurisdiction, 2015-2019 SOURCE: U.S. Department of Housing and Urban Development (HUD), Comprehensive Housing Affordability Strategy (CHAS) ACS tabulation, 2015-2019 release.
Table A-11 summarizes households by income category in Ceres. Lower-income households makeup 47 percent of households in the City followed by above moderate-income households (42 percent). Approximately 11 percent of the households in Ceres identify as extremely low- income. Considering nearly half of all households are lower-income, it is likely that there is a need for more affordable housing options.
Table A-11 Households by Income Category, Ceres, 2015-2019 Income Category (% of County MFI) Households Percent
Extremely Low-Income (30% MFI or less) 1,455 11%
Very Low-Income (30-50% MFI) 1,780 14%
Low-Income (50-80% MFI) 2,830 22%
Moderate-Income (80-100% MFI) 1,480 11%
Above Moderate-Income (>100% MFI) 5,435 42%
Total 12,980 100%
SOURCE: Department of Housing and Urban Development (HUD) Comprehensive Housing Affordability Strategy (CHAS), 2015-2019 12% 11% 10% 14%
13% 14% 15% 13%
18% 22% 15% 16%
10%
11%
9% 10%
48% 42% 51% 47%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Greater than 100% of AMI
81%-100% of AMI
51%-80% of AMI
31%-50% of AMI
0%-30% of AMI
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Appendix A – Housing Needs & Fair Housing Report A-22 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-13 illustrates the median household income in Ceres, the County, and nearby comparable cities in 2019. Ceres’ median household income was $58,667 – approximately $2,037 lower than the County. The City of Oakdale had the highest median household income at $64,555 followed by the County ($60,704). Understanding Ceres’ median household income clarifies what income category households identify with and what is deemed affordable.
Figure A-13 Median Household Income by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
Figure A-14 provides a breakdown of 2019 incomes by category in Ceres. Twenty-two (22) percent of Ceres residents earn an annual income between $50,000-$74,999. Conversely, an approximate 42 percent are earning less than $50,000, less than the City’s median household income. Eighteen percent are earning below $25,000.
Figure A-14 Income by Category, Ceres, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2019
$60,704
$58,667
$64,555
$59,681
$55,000
$56,000
$57,000
$58,000
$59,000
$60,000
$61,000
$62,000
$63,000
$64,000
$65,000
Stanislaus
County
Ceres Oakdale Turlock
18%
12%
12%
22%
14%
16%
4%
3%
Less than $25,000
$25,000 - $34,999
$35,000 - $49,999
$50,000 - $74,999
$75,000 - $99,999
$100,000 - $149,999
$150,000 - $199,000
$200,000 or more
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Appendix A – Housing Needs & Fair Housing Report A-23 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A.3 Integration and Segregation
To inform priorities, policies, and actions, the housing element must include an analysis of integration and segregation, including patterns and trends. Integration generally means a condition in which there is not a high concentration of persons of a particular race, color, religion, sex, familial status, national origin, or having a disability or a particular type of disability in a specific geographic area. Segregation generally means the opposite condition, where concentrations of the characteristics described above are high in a specific geographic area.
Integration and Segregation
“Integration generally means a condition in which there is not a high concentration of persons of a particular race, color, religion, sex, familial status, national origin, or having a disability or a particular type of disability when compared to a broader geographic area.
Segregation generally means a condition in which there is a high concentration of persons of a particular race, color, religion, sex, familial status, national origin, or having a disability or a type of disability in a particular geographic area when compared to a broader geographic area.” SOURCE: California Department of Housing and Community Development Guidance, 2021, page 31.
Residential segregation and exclusion, whether by race, ethnicity, disability, or income, is a result of numerous housing policies, practices, and procedures—both public and private—that have had enduring and pervasive negative impacts. Overt and covert housing discrimination through land use policy, shifting housing markets, and patterns of investment and disinvestment, have restricted meaningful fair housing choice and equitable access to opportunity, particularly for communities of color. Historic patterns of segregation persist in California despite the long-standing federal mandate, established by the Fair Housing Act of 1968, that federal agencies and federal grantees affirmatively further the purposes of the FHA.
Past and present discriminatory policies and practices, including long-term disinvestment, have resulted in neighborhoods with concentrated poverty and poor housing stock, limited access to opportunity, unsafe environmental conditions, underfunded schools, dilapidated infrastructure, and other disproportionately experienced problems. In addition, governmental policies have subsidized the development of segregated, high-resourced suburbs in metropolitan areas by constructing new highway systems—often through lower income communities of color— to ensure access to job opportunities in urban centers. This physical and policy infrastructure supports patterns of discrimination and high levels of segregation that continue to persist in California and across the country. All of these conditions persist despite the over 50-year-old obligation to prohibit discrimination and affirmatively further fair housing.
10 10 California Department of Housing and Community Development. 2021. AFFH Guidance Memo. https://www.hcd.ca.gov/community- development/affh/docs/affh_document_final_4-27-2021.pdf
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Appendix A – Housing Needs & Fair Housing Report A-24 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Race and Ethnicity
Understanding the demographic, ethnic, and racial composition of a city is vital to ensuring equal opportunity to housing for all groups. This section provides an overview of racial/ethnic composition and segregation patterns within Stanislaus County, Ceres, and nearby jurisdictions.
Regional Trends
Regionally, the central urbanized area and western rural areas of Stanislaus County contained populations with at least 80 percent non-white residents, as shown in Figure A-15. Communities adjacent to U.S. 101 had populations with at least 80 percent non-white residents, especially west of Highway 99. Comparatively, the eastern portion of Stanislaus County contained populations with higher percentages of white residents. Geographically, areas with less than 20 percent non-white residents were located east of Highway 99. The central urbanized area of Stanislaus County also contained higher concentrations of white residents, where in some areas such as Modesto, non- white residents represented less than 20 percent of the population. Racial/ethnic diversity has increased between 2010 and 2020 in Stanislaus County (Table A-12).
The percentage of non-Hispanic white residents in the County has decreased by 6 percent and the percentage of Hispanic/Latino residents increased by approximately 6 percent. The percentage of Asian, Native Hawaiian/Pacific Islander, Black/African American, American Indian/Alaska Native, and other/multiple race residents changed by less than one percent.
Local Trends
According to 2015-2019 ACS estimates, the central area and outer edges of Ceres contained the highest percentage of non-white residents, as shown in Figure A-16. Figure A-17 illustrates the predominant population in Stanislaus County. The entirety of the city has a predominant Hispanic/Latino majority population, as illustrated in Figure A-18. Census Tract 31, located west of Crows Landing Road, and Census Tracts 26.03 and 30.03, located east of North Central Avenue, had the lowest percentage of total non-white populations in the city.
The Diversity Index measures the degree to which the five major ethnic populations (non-Hispanic White, non-Hispanic Black, Asian and Pacific Islander, Hispanic, and Two or more races) are evenly distributed across a geographic area. The index ranges from 0 to 1 – where 0 is low diversity, meaning only one group is present, and 1 is high diversity, meaning an equal proportion of all five groups is present.
Figure A-19 illustrates the level of diversity in Ceres. According to the HCD AFFH Data Viewer map of diversity, Ceres’ diversity level is greater than or equal to 0.70, reflecting a moderate to high diversity level across the City. Compared to nearby cities Oakdale and Turlock, Ceres is more equally diverse. The City of Oakdale and Turlock both show geographic concentrations of lower levels of diversity.
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Appendix A – Housing Needs & Fair Housing Report A-25 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-12 Population by Racial Group, City of Ceres and Stanislaus County, 2010-2019 Ethnic
Group
2010 2015 2019
City of Ceres Stanislaus
County City of Ceres Stanislaus
County City of Ceres Stanislaus
County
Total % Total % Total % Total % Total % Total %
Non-
Hispanic
White
14,616 33.1% 245,803 48.2% 13,366 28.5% 235,880 44.7% 11,774 24.4% 227,369 41.9% Black/African
American 1,204 2.7% 13,230 2.6% 788 1.7% 12,904 2.4% 1,785 3.7% 15,311 2.8% Hispanic or
Latino 23,182 52.5% 206,983 40.6% 28,503 60.7% 230,087 43.6% 29,597 61.4% 251,259 46.3% Am.
Ind./Alaska
Native
317 0.7% 3,126 0.6% 275 0.6% 2,593 0.5% 318 0.7% 2,481 0.5% Asian 3,854 8.7% 26,026 5.1% 2,598 5.5% 27,680 5.2% 3,227 6.7% 29,284 5.4% Native
Hawaiian
and PI
182 0.4% 3,101 0.6% 165 0.4% 3,704 0.7% 241 0.5% 3,625 0.7% Other/Two or
More Races 798 1.8% 11,413 2.2% 1,257 2.7% 14,519 2.8% 1,272 2.6% 13,865 2.6% Total
Population 44,153 100% 509,682 100% 46,952 100% 527,367 100% 48,214 100% 543,194 100% SOURCE: U.S. Census Bureau, ACS 5-Year Estimates, 2010-2019
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Appendix A – Housing Needs & Fair Housing Report A-26 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-15 Percent Non-White Population, Stanislaus County, 2018
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-27 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-16 Percent Non-White Population, Ceres, 2018
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-28 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-17 Predominant Population, Stanislaus County
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-29 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-18 Predominant Population, Ceres, 2018
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-30 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-19 Diversity Index, Ceres, 2018
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-31 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 To ensure that the predominant Hispanic/Latino populations of Ceres are informed about fair housing laws and their individual rights, the City has implemented Program 5.1 Fair Housing (see Chapter 2). This initiative ensures that the City provides current information on state and federal fair housing laws in both English and Spanish on its website and in public spaces across the city.
Furthermore, the program mandates the presence of a bilingual staff member to facilitate discussions regarding fair housing and assist victims of fair housing discrimination.
Persons with Disabilities
For persons with disabilities, fair housing choice and access to opportunity includes access to housing in the most integrated setting appropriate to an individual’s special needs and disability related services as required under federal civil rights law. For example, persons with disabilities who are unable to use stairs or need a zero-step shower may not have actual housing choice without the presence of housing units with these accessibility features. 11 High spatial segregation of persons with disabilities may indicate fair housing issues related to not only physical needs, but also economic disparities. According to the 2020 Annual Report on People with Disabilities in America, more than 25 percent of persons with disabilities (including physical, intellectual, and developmental; sensory; and other disability categories) live below the Census Bureau-designated poverty line, which is 14.5 percentage points higher than people without a disability.
12 Persons with disabilities may be more reliant than persons without disabilities on fixed incomes or access to public transit.
Regional Trends
According to 2019 ACS 5-year estimates, approximately 71,011 Stanislaus County residents had one or more disabilities. Table A-13 shows employment status by disability status estimates for Stanislaus County. Approximately 5.3 percent of the total employed population in the county has one or more disabilities, reflecting less than 1 percent change from 2010, while the percent of total unemployed decreased from 8 percent to 5.3 percent during this time. Additional discussion regarding persons with disabilities in Stanislaus County and Ceres is included in Section A.4 Special Needs Groups of this appendix.
11 HCD 2021. https://www.hcd.ca.gov/community-development/affh/docs/affh_document_final_4-27-2021.pdf 12 The Rehabilitation Research and Training Center on Disability Statistics and Demographics 2020. https://disabilitycompendium.org/annualreport
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Appendix A – Housing Needs & Fair Housing Report A-32 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-13 Employment Status by Disability Status, Stanislaus County, 2015-2019 Disability
Status
2010 2015 2019
Employed
(Percent of
Total
Employed)
Unemployed
(Percent of
Total
Unemployed)
Employed
(Percent of
Total
Employed)
Unemployed
(Percent of
Total
Unemployed)
Employed
(Percent of
Total
Employed)
Unemployed
(Percent of
Total
Unemployed)
No Disability 180,182
(94.8%)
36,064
(92.0%)
194,210
(94.1%) 23,236 (89.0%) 214,730
(94.6%)
16,144
(94.6%)
With a Disability 9,894 (5.2%) 3,139 (8.0%) 12,060 (5.8%) 2,863 (11.0%) 12,148 (5.3%) 908 (5.3%) Total 190,076 39,203 206,270 26,099 226,878 17,052
SOURCE: U.S. Census Bureau ACS 5-Year Estimates, 2010-2019, Table C18120 Figure A-20 shows the spatial distribution of residents living with one or more disabilities across the county. Communities located throughout the central urbanized region of the county were estimated to have a larger share of residents with disabilities compared to communities located in more rural areas in the western regions of the county. The largest portion of residents living with one or more disabilities is primarily contained in areas within and along the outer edges of Modesto.
Local Trends
According to 2019 5-year ACS estimates, 5,975 residents (approximately 13 percent) of Ceres’ population live with one or more disabilities, reflecting no change since 2012. Figure A-21 shows the percentage of the population living with one or more disabilities in the city by census tract, using 2015-2019 ACS data. Generally, most of the city had between 10 to 20 percent of residents reported living with one or more disabilities. Census tract 25.04 and 30.03 had the lowest percentages of residents reported living with one or more disabilities (less than 10 percent). Both of these census tracts are predominantly Hispanic/Latino and had a median household income that was between $55,000 and $90,100, according to 2017-2019 estimates. Community feedback from stakeholders indicated a desire for integrated housing for those with disabilities.
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Appendix A – Housing Needs & Fair Housing Report A-33 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-20 Percentage of Population with One or More Disabilities, Stanislaus County, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-34 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-21 Population with One or More Disabilities, Ceres, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-35 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Familial Status
According to the Fair Housing Act, familial status refers to the presence of children under the age of 18 in a household with a legal guardian or designee of such guardian.13 HUD provides examples of familial discrimination as (a) refusing to rent to families with children; (b) evicting families once a child joins the family through birth, adoption, custody, etc.; (c) requiring families with children to live on specific floors or in specific buildings or areas; (d) imposing overly restrictive rules about children’s use of the common areas (i.e., pools, hallways, open spaces); (e) and in advertising that prohibits children.14 Single-parent households are protected by Government Code Section 65583(a)(7). Because of their relatively lower incomes and higher living expenses, single-parent households can have limited options for affordable, decent, and safe housing. As a result, single parents are among the groups most at risk of experiencing poverty.
In addition to barriers to fair housing for single-parent households, large families (defined as families with 5 or more persons) can also experience housing discrimination as property owners impose occupancy limitations that can preclude large families with children. HUD data shows that familial status discrimination ranks third in discrimination of protected classes, behind discrimination due to disability and race.15
Regional Trends
According to 2019 ACS 5-year estimates, Stanislaus County had a total household count of approximately 173,898. In 2019, households with children present comprised 36 percent (62,348) of the total households in Stanislaus County. Tenure by household type and presence of children is shown in Table A-14. Married couple families with children comprise the largest share of owner- and renter-occupied households with children. Single-parent, female-headed households comprised approximately 13.7 percent of renter-occupied households, but only 3.5 percent of owner-occupied households. For renter-occupied households, the total single-parent, male-headed households were less than half of that of single-parent, female-headed households, showing there are more single- parent female-headed households in the county.
13 42 U.S. Code sections 3601, et seq., the Fair Housing Act 14 U.S. Department of Housing and Urban Development.
https://www.hud.gov/program_offices/fair_housing_equal_opp/discrimination_against_families_children#_Who_Is_ Protected?
15 U.S. Department of Housing and Urban Development. “Annual Report on Fair Housing FY 2017.”
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Appendix A – Housing Needs & Fair Housing Report A-36 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-14 Tenure by Household Type and Presence of Children, Stanislaus County, 2019 Household Type Owner-
Occupied Percent Renter-
Occupied Percent
Married couple family, with
Children Present 24,918 24.7% 17,170 23.4%
Single-Parent, Male
householder, no spouse present 2,589 2.5% 3,980 5.4%
Single-Parent, Female
householder, no spouse present 3,619 3.5% 10,072 13.7%
Total Households with Children
Present 31,126 31.0% 31,222 42.6%
Total Households 100,576 100% 73,322 100%
SOURCE: U.S. Census Bureau ACS 5-Year Estimates, 2019, Table B25115 According to 2010 ACS 5-year estimates, approximately 8 percent of all households in 2010 were single-parent, female-headed households. This indicates a slight reduction in single-parents, female- headed households from 2010 to 2019. Similar to 2019, most of the female-headed households with children occupied rental housing within the County.
According to 2019 ACS 5-year estimates, jurisdictions located in the central urbanized regions of the county, primarily along Highway 99, such as the cities of Modesto, Ceres, and Turlock had relatively higher proportions of children who reside in female-headed, single-parent households. In contrast, the more rural areas in the west and eastern regions of the county, including the cities of Patterson and Newman, had less single-parent households.
As shown in Figure A-22, the percentage of single female-headed households with children varies throughout the urban areas of Stanislaus County ranging from less than 20 percent up to 60 percent.
Figure A-23 shows the percentage of adults living alone in the county. In Stanislaus County, there is a concentration of adults living alone in the central urbanized region, specifically in the City of Modesto. This urban area has concentrations of adults who live alone ranging from 20 to 40 percent compared to the rest of the county, which were less than 20 percent of adults live along, including the cities of Salida, Ceres, Turlock, and Riverbank.
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Appendix A – Housing Needs & Fair Housing Report A-37 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-22 Female-Headed Households with Children, No Spouse/Partner, Stanislaus County, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-38 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-23 Adults in Households Living Alone, Stanislaus County, 2019 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-39 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Local Trends
According to 2019 ACS 5-year estimates, approximately 46 percent of all households have children in Ceres, which is a slight increase from 2010 when approximately 44 percent of all households had children. In contrast to the County, Ceres experienced a slight increase in the number of single- parent, female-headed households from 2010 to 2019, increasing from 9 percent to 10 percent, respectively.
As shown in Figure A-24, Census Tracts 25.05 and 25.03, located west of Highway 99 along the outer edges of Ceres contain a larger percentage of children residing in single-parent, female-headed households. Census Tract 26.03, 26.04, and 27.02, located in the northern region of the Ceres, also contain a larger percentage of children residing in single-parent, female-headed households. These five census tracts each have between 20 to 40 percent of children residing in a single-parent, female- headed household. Comparatively, most areas located west of Highway 99 and east of Central Avenue exhibit less than 20 percent of children residing in single-parent, female-headed households.
The highest share of children in single-parent, female-headed households is located in Census Tracts
25.05, 25.03, 26.03, 26.04, and 27.02. Figure A-25 highlights the percent of adults living alone in Ceres. All census tracts in Ceres have less than 20 percent of adults living alone.
Household Income
Identifying low or moderate-income (LMI) geographies and individuals is important to overcome patterns of segregation. HUD defines an LMI area as a census tract or block group where over 51 percent of the population is LMI (based on HUD income definition of up to 80 percent of the area median income or AMI). Household income is directly connected to the ability to afford housing.
Higher-income households are more likely to own rather than rent housing. As household income decreases, households tend to pay a disproportionate amount of their income for housing, and they are more likely to occupy structurally unsound and overcrowded housing.
Regional Trends
Household median income is lower in communities located in the southeast region of Stanislaus County. According to 2019 ACS 5-year estimates, Stanislaus County had a median household income of $60,704. Figure A-26 provides median household income data by block group for Stanislaus County. Areas highlighted in blue reflect regions of Stanislaus County where the median household income is below the state median income of $87,100.
Block groups exhibiting the lowest median incomes are highly concentrated within the central urbanized region along Highway 99 and rural areas west of Highway 99. Figure A-27 highlights LMI populations according to block group in Stanislaus County. As shown, areas situated along Highway 99 within the cities of Salida, Modesto, Ceres, Shackleford, Keys, and Turlock that contain the highest LMI populations. Block groups within the nearby cities of Patterson, Newman, Waterford, Empire, and Hughston also contain high concentrations of LMI populations. Spatially, LMI populations overlap with block groups that are predominantly Hispanic/Latino.
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Appendix A – Housing Needs & Fair Housing Report A-40 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-24 Female-Headed Households with Children, No Spouse/Partner, Ceres, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-41 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-25 Adults in Households Living Alone, Ceres, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-42 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-26 Median Household Income, Stanislaus County, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-43 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-27 Low and Moderate-Income Population, Stanislaus County 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-44 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Local Trends
According to 2019 ACS 5-year estimates, Ceres had an estimated median household income of $58,667. This is a 17 percent increase in median household income from 2010 ($50,124). As shown in Figure A-28, median household income varies across Ceres. Areas highlighted in blue reflect regions of the City where the median household income is below the state median income of $87,100. Similar to the County, block groups in Ceres exhibiting the lowest median incomes are primarily concentrated along Highway 99 and areas west of Highway 99. Figure A-29 highlights LMI populations in Ceres according to block group. Block groups located along Highway 99 and on the western outskirts of the city appear to have the highest concentrations of LMI populations. Spatially, LMI populations overlap with block groups that are predominantly Hispanic/Latino.
Racially or Ethnically Concentrated Areas of Poverty and Affluence Racially Concentrated Area of Poverty or an Ethnically Concentrated Area of Poverty (R/ECAP) and Racially Concentrated Areas of Affluence (RCAAs) represent opposing ends of the segregation spectrum from racially or ethnically segregated areas with high poverty rates to affluent predominantly White neighborhoods. Historically, HUD has paid particular attention to R/ECAPs as a focus of policy and obligations to AFFH. Recent research out of the University of Minnesota Humphrey School of Public Affairs argues for the inclusion of RCAAs to acknowledge current and past policies that created and perpetuate these areas of high opportunity and exclusion. 16 R/ECAPs
HCD and HUD’s definition of a Racially/Ethnically Concentrated Area of Poverty is:
A census tract that has a non-White population of 50 percent or more (majority-minority) or, for non-urban areas, 20 percent, AND a poverty rate of 40 percent or more; OR A census tract that has a non-white population of 50 percent or more (majority-minority) AND the poverty rate is three times the average tract poverty rate for the County, whichever is lower.
SOURCE: California Department of Housing and Community Development Guidance, 2021.
16 Goetz, E. G., Damiano, A., & Williams, R. A. (2019). Racially Concentrated Areas of Affluence: A Preliminary Investigation. Cityscape: A Journal of Policy Development and Research, 21(1), 99–124
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Appendix A – Housing Needs & Fair Housing Report A-45 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-28 Median Household Income, Ceres, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-46 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-29 Low and Moderate-Income Population, Ceres, 2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-47 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 RCAAs
HCD and HUD’s definition of an RCAA is a census tract 1) with a percentage of its total White population that is 1.25 times higher than the average percentage of the COG region’s White population; and 2) has a median income that is 2 times higher than the COG Area Median Income (AMI). Generally, these are understood to be neighborhoods in which there are both high concentrations of non-Hispanic White households and high household income rates.
SOURCE: California Department of Housing and Community Development Guidance, 2023 It is important to note that R/ECAPs and RCAAs are not areas of focus because of racial and ethnic concentrations alone. This study recognizes that racial and ethnic clusters can be a part of fair housing choice if they occur in a non-discriminatory market. Rather, R/ECAPs are meant to identify areas where residents may have historically faced discrimination and continue to be challenged by limited economic opportunity, and conversely, RCAAs are meant to identify areas of particular advantage and exclusion.
Figure A-30 illustrates R/ECAPs in Ceres revealing there are no racially and ethnically concentrated areas of poverty in the City. There are however, R/ECAPS in the neighboring cities of Modesto and Turlock.
Figure A-31 illustrates RCAAs in Ceres revealing there are no racially concentrated areas of affluence in the City. There are however some RCAAs in the cities of Oakdale and Turlock.
The household income characteristics in Ceres reveal a demand for the development of more affordable housing options that appeal to larger households. Ceres is comprised of primarily higher- income households (53 percent), most of which identify as married-couple family households (56 percent).
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Appendix A – Housing Needs & Fair Housing Report A-48 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-30 R/ECAP by Census Tract, Ceres, 2023
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-49 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-31 RCAA by Census Tract, Ceres, 2015-2019
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-50 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A.4 Disproportionate Housing Needs
Housing Problems and Severe Housing Problems
The following section details housing problems and severe housing problems in Ceres according to the Census Bureau Comprehensive Housing Affordability Strategy (CHAS).
Disproportionate Housing Needs
“Disproportionate housing needs generally refers to a condition in which there are significant disparities in the proportion of members of a protected class experiencing a category of housing need when compared to the proportion of members of any other relevant groups, or the total population experiencing that category of housing need in the applicable geographic area. For purposes of this definition, categories of housing need are based on such factors as cost burden and severe cost burden, overcrowding, homelessness, and substandard housing conditions.”
SOURCE: California Department of Housing and Community Development Guidance, 2021, page 39.
The CHAS data set provides in-depth analysis on housing needs by income level according to types of households. According the CHAS, housing problems are defined as having one or more of the following variables:
Incomplete kitchen facilities;
Incomplete plumbing facilities;
More than one person per room; and
Cost burden greater than 30 percent.
Severe housing problems are defined as having one or more of the following variables:
Incomplete kitchen facilities;
Incomplete plumbing facilities;
More than 1.5 persons per room; and
Cost burden greater than 50 percent.
Additionally, CHAS defines cost burden as the ratio of housing costs to household income. The following defines cost burden by renter and owner:
Renter Cost Burden: gross rent (contract rent plus utilities); and Owner Cost Burden: select monthly owner costs including mortgage payment, utilities, association fees, insurance, and real estate taxes.
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Appendix A – Housing Needs & Fair Housing Report A-51 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-32 and Figure A-33 illustrate housing problems by tenure and severe housing problems by tenure in Ceres. Approximately 55 percent of renter households have at least one of four housing problems and 37 percent have at least one of four severe housing problems. In contrast, 35 percent of owner households experience at least one housing problem and 18 percent experience at least one severe housing problem.
Figure A-32 Housing Problems by Tenure, Ceres, 2015-2019 SOURCE: U.S. Census Bureau, CHAS Data, 2015-2019
NOTE: The four housing problems are: incomplete kitchen facilities, incomplete plumbing facilities, more than 1 person per room, and cost burden greater than 30%.
Figure A-33 Severe Housing Problems by Tenure, Ceres, 2015-2019 SOURCE: U.S. Census Bureau, CHAS Data, 2015-2019
NOTE: The four housing problems are: incomplete kitchen facilities, incomplete plumbing facilities, more than 1.5 person per room, and cost burden greater than 50%.
35%
55%
65%
45%
0% 20% 40% 60% 80% 100%
Owner %
Renter % Household has at least 1 of 4
Housing Problems
Household has none of 4
Housing Problems OR cost
burden not available, no
other problems
18%
37%
82%
63%
0% 20% 40% 60% 80% 100%
Owner %
Renter % Household has at least 1 of 4
Severe Housing Problems
Household has none of 4 Severe
Housing Problems OR cost
burden not available, no other
problems
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Appendix A – Housing Needs & Fair Housing Report A-52 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Overcrowding
Understanding the prevalence of overcrowded households within a community helps determine the need for affordable and adequately sized housing units for the community. Overcrowding is defined as a household with more than one occupant per room excluding bathrooms and kitchens. Units with more than 1.5 persons per room are considered severely overcrowded. Overcrowding may occur due to a lack of available affordable and/or adequately sized housing units. Cultural norms and customs combined with low-income or lack of adequately size housing units can result in overcrowding too. For example, in some cultures, households are often comprised of multi- generations. If this custom is also compounded by low-income or lack of adequately sized housing units overcrowding may occur.
In Ceres, approximately 1,263 households experience some level of overcrowding. Of which, approximately 987 households are moderately overcrowded (1.01 to 1.50 occupants per room) and 276 households are severely overcrowded (1.51 or more occupants per room). Figure A-34 illustrates overcrowding by severity in Ceres compared to the County and nearby comparable cities in 2019. The City of Oakdale households experience the least amount of overcrowding (3 percent percent) and no severe overcrowding, compared to Ceres households that experience 8 percent overcrowding and 2 percent severe overcrowding. Ceres households experience approximately 3 percentage points more overcrowding overall than the County.
Figure A-34 Overcrowding by Severity by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, 2019
93%
90%
96%
94%
5%
8%
3%
4%
2% 2% 0% 2%
84%
86%
88%
90%
92%
94%
96%
98%
100%
Stanislaus
County
Ceres Oakdale Turlock
More than 1.5 Occupants per
Room
1.0 to 1.5 Occupants per Room
1.0 or Less Occupants per Room
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Appendix A – Housing Needs & Fair Housing Report A-53 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-35 illustrates overcrowding by tenure and severity in Ceres. Overcrowding by tenure is significant in Ceres, as renter-occupied households experience nearly twice as much overcrowding as owner-occupied households. Approximately 579 owner-occupied households (7 percent) in Ceres experience overcrowding compared to 684 renter-occupied households (13 percent).
Of the 684 renter-occupied households experiencing overcrowding, 125 households (2 percent) are severely overcrowded and 559 households (11 percent) are moderately overcrowded. Of the 579 owner-occupied households experiencing overcrowding, 151 (2 percent) are severely overcrowded and 428 (5 percent) are moderately overcrowded. This is indicative of a lack of affordable housing options that accommodate the needs of Ceres renter households.
Figure A-35 Overcrowding by Tenure and Severity, Ceres, 2019 SOURCE: U.S. Census Bureau, 2019
Figure A-36 illustrates concentrations of overcrowding across the region. According to the HCD AFFH Data Viewer, overcrowding in Ceres is most prevalent in the center and western areas of the City. In these regions, overcrowding rates fall within a range of 8-12 percent. Similarly, Figure A-28 reveals that households earning less than $55,000, less than the City’s median household income, are concentrated in the center of the City. These concentrations indicate a need for more housing that adequately and affordably meets the needs of households in the center region of Ceres. 93%
86%
5%
11%
2% 2%
75%
80%
85%
90%
95%
100%
105%
Owner Occupied Renter Occupied
More than 1.5 Occupants per
Room
1.01 to 1.5 Occupants per
Room
1.0 or Less Occupant per
Room
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Appendix A – Housing Needs & Fair Housing Report A-54 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-36 Overcrowded Households, Ceres
SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-55 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Cost Burden
According to HCD, overpayment or cost burden is measured as households spending more than 30 percent of their gross income including utilities for housing; severe overpayment or severe cost burden is measured as households spending 50 percent or more of their gross income for housing.
For the duration of this report, overpayment will be referred to as cost burden.
The cost burden rates of owners and renters in a community provide insight to housing needs such as, the affordability of the local housing market and the availability of housing units that accommodate household needs like size and housing type. Additionally, federal and state agencies examine cost burden to determine a community’s need for housing assistance.
Figure A-37 illustrates cost burden severity in Ceres, the County, and nearby comparable cities.
Compared to the County and nearby cities, Ceres households have similar rates of cost burden. In Ceres, 36 percent of households are cost burdened and 17 percent are severely cost burdened. The City of Turlock has slightly higher rate of severely cost burdened households (18 percent) compared to Ceres, and the County has a slightly lower rate (16 percent). Overall, the City of Turlock has the highest percent of households experiencing any type of cost burden (39 percent).
Figure A-37 Cost Burden Severity by Jurisdiction, 2015-2019 SOURCE: U.S. Census Bureau, CHAS Data, 2015-2019
63% 63% 64% 60%
19% 19% 22% 21%
16% 17% 13% 18%
1% 1% 1% 1%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Not Computed
50%+ of Income Used for Housing
30%-50% of Income Used for
Housing
0%-30% of Income Used for
Housing
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Appendix A – Housing Needs & Fair Housing Report A-56 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-38 illustrates cost burden by tenure in Ceres. Renter households experience substantially higher rates of cost burden (23 percent) and severe cost burden (25 percent) than owner households.
Seventeen (17) percent of owner-occupied households are cost burdened and 10 percent are severely cost burdened. Figure A-11 reports that 39 percent of households in Ceres are renters – this in tandem with 48 percent of renter households experiencing some type of cost burden and 13 percent experiencing some type of overcrowding reflects a demand for more affordable housing units.
Figure A-38 Cost Burden by Tenure, Ceres, 2015-2019
SOURCE: U.S. Census Bureau, CHAS Data, 2015-2019
Figure A-39 illustrates concentrations of cost burden among home owners across the region.
According to the HCD AFFH Data Viewer, the highest rates of cost burden among home owners in Ceres is concentrated in the eastern and western regions of the City. In these regions, 40-60 percent of owner households experience cost burden. The nearby cities of Oakdale and Turlock show concentrations between 20-60 percent cost burdened owner households. The City of Turlock has a pocket of concentration of up to 80 percent cost burdened owner households.
Figure A-40 illustrates concentrations of cost burden among renters across the region. When analyzing cost burden among renter-occupied households in Ceres, the majority of the City has a concentration of 40-60 percent cost burdened renter households. The highest concentration of cost burdened renter households is 60-80 percent, which are located in a small area in the eastern region.
The lowest concentration is in the southernmost region of the City at <20 percent.
73%
50%
17%
23%
10%
25%
1% 1%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Owner Occupied Renter Occupied
Not Computed
50%+ of Income Used for
Housing
30%-50% of Income Used for
Housing
0%-30% of Income Used for
Housing
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Appendix A – Housing Needs & Fair Housing Report A-57 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-39 Cost Burden by Home Owners, Ceres, 2015-2019 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-58 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-40 Cost Burden by Renter Households, Ceres, 2015-2019 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-59 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A.5 Special Needs Groups
Special needs groups are those that may face particular challenges in obtaining adequate housing due to inherent circumstances such as age, disabilities, household size, income level, age, and occupation.
Large families, single parent households, female-headed households, or extremely low- and low- income households, and homeless persons may be classified as Special Needs groups. Special Needs groups are identified due to the unique nature of household characteristics and potential housing challenges faced. Table A-15 provides a summary of special needs groups in Ceres.
Table A-15 Overview of Special Needs Groups
Special Needs Groups Count Percent of Total
Households
Percent of Total
Population
Total population 48,214 -- 100%
Total occupied units (households) 12,975 100% --
Extremely Low-income (0-30% of HAMFI)
households 1,455 households 11% --
Total Senior Population 2,451 persons -- 5%
Senior Owner-Households 2,023 households 16% --
Senior Renter-Households 428 households 3% --
Persons with Disabilities 11,404 persons -- 24%
Persons with Developmental
Disabilities1 1,467 persons -- --
Large Households 3,168 households 24% --
Single-Parent Households 3,669 households 28% --
Single-Parent, Female Headed
Households with Children (under 18)
below poverty line
606 households 5% --
People Living in Poverty 7,170 persons -- 15%
Farmworkers2 12,713 persons -- --
Migrant Farmworkers 3,503 persons -- --
Seasonal Farmworkers 6,429 persons -- --
Permanent Farmworkers 6,284 persons -- --
Persons Experiencing Homelessness3 17 persons -- --
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019; U.S. Census Bureau CHAS 2015-2019 Data; USDA Statistics Services; California Department of Developmental Services, Consumer Count by California ZIP Code and Residence Type (2021).
NOTE: 1. Data provided by California Department of Developmental Services and taken at the ZIP code level.
2. Agriculture, forestry, fishing and hunting and mining industry. Farmworker data is taken of the population 16 years and older. Data provided by USDA Statistics Services and taken at the County level for 2017; includes permanent and seasonal farmworkers.
3. Total results from 2023 Stanislaus County Homeless Point-In-Time Count.
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Appendix A – Housing Needs & Fair Housing Report A-60 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Extremely Low-Income Households and Poverty Status
Extremely low-income (ELI) households are those that earn less than 30 percent of the median family income (MFI). Very low-income households are those that earn 50 percent of less of the MFI. Extremely low-income households typically face a combination of housing challenges related to income status, family size/type, disability status, access to housing opportunities and other household characteristics. Additionally, ELI households are more likely to experience overcrowding, cost burden, and substandard housing conditions. Extremely low-income households are typically minimum-wage workers, disabled persons, farmworkers, and seniors on fixed incomes.
The 2015-2019 Comprehensive Housing Affordability Strategy (CHAS) data indicates there are approximately 1,455 are extremely low-income households (11 percent of total households) in Ceres (Table A-16). Of the extremely low-income households in Ceres, 69 percent are renter-occupied households and 31 percent are owner-occupied households, or 8 percent and 4 percent of all households, respectively.
Table A-16 Extremely Low-Income Households, Ceres, 2015-2019 Households Number Percentage of Total
Households
Total occupied units (households) 12,975 100%
Total Lower-income (0-80% of HAMFI) households 6,065 47% Extremely Low-income (0-30% of HAMFI) households 1,455 11% Extremely Low-income renters 1,000 8%
Extremely Low-income owners 455 4%
Lower-income households paying more than 50% 2,235 17%
Extremely Low-income paying more than 50% 1,070 8%
ELI Renter HH severely cost burdened 715 6%
ELI Owner HH severely cost burdened 355 3%
Lower-income households paying more than 30% 4,015 31%
Extremely Low-income paying more than 30% 1,220 9%
ELI Renter HH moderately cost burdened 830 6%
ELI Owner HH moderately cost burdened 390 3%
Lower-income households experiencing 1 of 4 Housing Problems 4,320 33% Extremely Low-income households experiencing 1 of 4 Housing Problems 1,230 9% ELI Renter HH experiencing 1 of 4 Housing Problems 840 6% ELI Owner HH experiencing 1 of 4 Housing Problems 390 3% SOURCE: U.S. Department of Housing and Urban Development (HUD), Comprehensive Housing Affordability Strategy (CHAS) 2015-2019.
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Appendix A – Housing Needs & Fair Housing Report A-61 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 NOTE: MFI = HUD Median Family Income, this is the median family income calculated by HUD for each jurisdiction, to determine Fair Market Rents (FMRs) and income limits for HUD programs. MFI will not necessary be the same as other calculations of median incomes (such as Census number), due to a series of adjustments that are made.
The four housing problems are: incomplete kitchen facilities, incomplete plumbing facilities, more than 1 person per room, and cost burden greater than 30%. ***Cost burden is the ratio of housing costs to household income. For renters, housing cost is gross rent (contract rent plus utilities). For owners, housing cost is "select monthly owner costs", which includes mortgage payment, utilities, association fees, insurance, and real estate taxes.
When analyzing cost burden by ELI households, approximately 1,070 ELI households experience severe cost burden (paying more than 50 percent of median gross income on housing) and 1,220 experience moderate cost burden (paying more than 30 percent of median gross income on housing). Of the ELI households experiencing some form of cost burden, the majority are renter- occupied households.
The projected RHNA for ELI households was based on the assumption that 50 percent of very low- income households qualify as extremely low-income households. The very low-income housing need is 706 housing units, of which the City estimates 353 housing units will accommodate the ELI housing need.
Figure A-41 illustrates the population living below the poverty level in Ceres, the County, and nearby comparable jurisdictions. In Ceres, 15 percent of the population are living below the poverty level. Similarly, the percentage of individuals living below poverty in the County is 15 percent and 16 and 12 percent in Turlock and Oakdale, respectively.
Figure A-41 Population Below Poverty Level by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
15% 15%
12%
16%
0%
2%
4%
6%
8%
10%
12%
14%
16%
18%
Stanislaus
County
Ceres Oakdale Turlock
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Appendix A – Housing Needs & Fair Housing Report A-62 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In 2019, approximately 7,170 persons in Ceres were identified as living below the poverty line; 15 percent of the population.17 Figure A-42 illustrates the percent of the population in Ceres living below the poverty line in 2019 by race and ethnicity. The Hispanic or Latino population represents 62 percent of the total population of which 14 percent is living below the poverty line. Conversely, the non-Hispanic White population has 3 percent more households living below the poverty line than the Hispanic or Latino population despite its smaller total population. The Other Race or Multiples Races population experiences the second highest rate of poverty with 32 percent living below the poverty line.
Figure A-42 Percent Living Below the Poverty Line by Race and Ethnicity, Ceres, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
NOTE: Race/Ethnicity represents percentage of the total population.
Resources
In the City of Ceres, housing costs and affordability may pose a challenge to ELI households. With a median household income of $58,667 (compared to a median household income of $60,704 in Stanislaus County), ELI residents may find it difficult to achieve homeownership. Additionally, ELI residents typically experience limited accessibility to suitable transportation services to commute from home to work. Currently, there are 352 deed-restricted affordable units in the City. To ensure these units are preserved, the City will implement Program 2.4 Conserve At-Risk Units. This initiative is aimed at conserving deed-restricted affordable units by monitoring their estimated affordability end dates, and when necessary, identifying potential buyers for at-risk units to ensure they remain deed-restricted.
17 U.S. Census Bureau ACS 5-Year Estimate, 2019, Table S1701 Hispanic or
Latino
Other Race
or Multiple
Races
(Hispanic
and Non-
Hispanic)
White
(Hispanic
and Non-
Hispanic)
White,
Non-
Hispanic
Asian
alone
Native
Hawaiian
and Other
Pacific
Islander
Black or
African
American
(Hispanic
and Non-
Hispanic)
American
Indian or
Alaska
Native
(Hispanic
and Non-
Hispanic)
Below Poverty Line 14% 32% 15% 17% 16% 35% 14% 11%
Race/Ethnicity* 62.0% 22.4% 65.3% 24.1% 6.9% 0.5% 3.9% 1.0% 0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
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Appendix A – Housing Needs & Fair Housing Report A-63 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 To address the needs of ELI households, the City will implement housing programs to facilitate the construction of affordable and supportive housing for ELI households. Programs that will directly impact ELI households include:
Program 2.1: Preserve Mobile Home Parks;
Program 3.1: Housing Diversity;
Program 3.8: Affordable Housing for Extremely Low-Income Housing Residents; Program 5.1: Fair Housing Program;
Program 5.2: Housing Choice Voucher;
Program 5.3: First-Time Home Buyer Downpayment Assistance; and Program 5.5: Place-Based Strategies to Support Economic Mobility.
All housing policies and programs can be found in Chapter 2 of the Housing Element.
In addition to the City's initiatives to foster affordable housing and link ELI and special needs households with the necessary support and resources, the following regional service providers and programs are available to assist ELI households:
Project Sentinel: Fair Housing Center;
Stanislaus Regional Housing Authority: Housing Choice Voucher Program; Stanislaus Regional Housing Authority;
Stanislaus County Affordable Housing Corporation;
First-time Homebuyer Assistance; and
Stanislaus County Regional Transit (StaRT) Dial-A-Ride.
Seniors
Seniors are identified as individuals 65 years and older. Senior households often experience a combination of factors that can make accessing or keeping affordable housing a challenge. They often live on fixed incomes and are more likely to have disabilities, chronic health conditions and/or reduced mobility. Seniors who rent may be at even greater risk for housing challenges than those who own, due to income differences between these groups.
Figure A-43 illustrates the senior population in Ceres, the County, and nearby comparable cities.
Compared to the County and nearby cities, Ceres has the lowest senior population (10 percent), approximately 3 percentage points less than the County. The City of Turlock mirrors the County with a senior population of 13 percent.
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Appendix A – Housing Needs & Fair Housing Report A-64 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-43 Senior Population by Jurisdiction, 2019
SOURCE: U.S. Census Bureau, 2019
NOTE: Senior population is identified as persons 65 years and older.
Figure A-44 illustrates senior housing by tenure in Ceres, the County, and nearby comparable cities during 2019. In Ceres, senior households are primarily owners (83 percent). This aligns with the County and nearby cities, however, the percentage of senior households that own a home in Ceres is 10 percentage points more than the County and 19 percentage points more than Turlock.
Figure A-44 Senior Housing by Tenure, Ceres, 2019
SOURCE: U.S. Census Bureau, 2019
NOTE: Senior population is identified as persons 65 years and older.
13%
10% 11% 13%
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
50%
Stanislaus County Ceres Oakdale Turlock
73% 83% 72% 64%
27% 17% 28% 36%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Renter
Owner
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Appendix A – Housing Needs & Fair Housing Report A-65 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-45 illustrates senior households by their income. Most of Ceres’ senior households earn a yearly income between $10,000-$19,999 (19 percent). Less than 12 percent of senior households earn more than $100,000.
Figure A-45 Senior Households by Income, Ceres, 2019
SOURCE: U.S. Census Bureau, 2019
NOTE: Senior population is identified as persons 65 years and older.
Resources
In Ceres, seniors (age 65+) makeup approximately 10 percent of the population. Consequently, the County and local non-profits offer the bulk of services tailored to senior residents instead of the City.
There is one senior living community located in Ceres — Ceres Christian Terrace located at 1859 Richard Way in the northeastern region of the city along Highway 99. The community provides 67 residential units and is funded through the Section 202 program. Additionally, there are two licensed residential care facilities in Ceres, including Davis Guest Home #5 located at 2405 Mauna Loa Drive and Welcome Home located at 1602 Charlottesville Lane. Davis Guest Home #5 has capacity to serve eight (8) individuals and Welcome Home has capacity to serve six (6) individuals.
Comfort Keepers, situated at 5831 Stoddard Road, Suite 802 in Modesto, offers a range of in-home care services for adults and seniors. These services include companion care, personal care, transportation, technological assistance, temporary or respite care, and interactive caregiving.
Additionally, the organization offers specialized 24-hour care.
5%
19%
16%
15%
9%
6%
7%
11%
4%
3%
2%
2%
0% 5% 10% 15% 20% 25%
Less than $10,000
$10,000 - $19,999
$20,000 - $29,999
$30,000 - $39,999
$40,000 - $49,000
$50,000 - $59,000
$60,000 - $74,999
$75,000 - $99,999
$100,000 - $124,999
$125,000 - $149,000
$150,000 - $199,999
$200,000 or more
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Appendix A – Housing Needs & Fair Housing Report A-66 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In addition to the organizations listed above, the following regional service providers and programs are available to assist Ceres’ seniors:
Stanislaus County Regional Transit (StaRT) Dial-A-Ride.; Stanislaus County Department of Aging and Veterans Services; Prevention & Early Intervention (PEI) services for older adults; Project Hope: provides Professional Brief Counseling, volunteer Peer Counseling / support, and Friendly Visitors;
Modesto Senior Citizens Services;
Sitters of Stanislaus (SOS Elder Care);
Habitat for Humanity Modesto; and
Meals on Wheels (Stanislaus County).
To address the needs of Senior households within the jurisdiction, the City of Ceres will implement the following programs during the 6
th Cycle:
Program 1.5: Promote Secondary Dwelling Unit (ADU and JADU); Program 2.1: Preservation of Mobile Home Parks;
Program 2.4: Preservation of Rental Housing;
Program 3.1: Housing Diversity;
Program 3.3: Housing Assistance for Senior Residents; Program 3.9: Accessible/Adaptable Units for Residents with Disabilities; Program 3.12: Housing Assistance for Veterans;
Program 3.15: Reasonable Accommodation; and
Program 5.1: Fair Housing.
People with Disabilities
People with disabilities face additional housing challenges. Encompassing a broad group of individuals living with a variety of physical, cognitive and sensory impairments, many people with disabilities live on fixed incomes and are in need of specialized care, yet often rely on family members for assistance due to the high cost of care. When it comes to housing, people with disabilities are not only in need of affordable housing but accessibly designed housing, which offers greater mobility and opportunity for independence. Unfortunately, the need typically outweighs what is available, particularly in a housing market with such high demand. People with disabilities are at a high risk for housing insecurity, homelessness and institutionalization, particularly when they lose aging caregivers.
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Appendix A – Housing Needs & Fair Housing Report A-67 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-46 illustrates population by disability status in Ceres, the County, and nearby comparable cities in 2019. In Ceres, 24 percent of the population has some form of disability. This reflects an approximate 11 percentage points higher rate of persons with disability than the County (13 percent) and the City of Turlock (13 percent), and is 14 percentage points higher compared to the City of Oakdale (10 percent).
Figure A-46 Population by Disability Status by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, 2019
Over the last decade, the population of persons with disabilities has generally remained constant in Ceres. Figure A-47 illustrates trends in persons with disabilities in Ceres between 2012-2019. In 2014, the population of persons with disabilities began to slightly increase from 13 percent to 14 percent. However, the trend returned to 13 percent in 2016 and remained through 2019.
Figure A-47 Trends in Persons with Disabilities, Ceres, 2012-2019 SOURCE: U.S. Census Bureau, 2012-2020
87%
76%
90% 87%
13%
24%
10% 13%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
With a disability
No disability
87% 87% 86% 86% 87% 87% 87% 87%
13% 13% 14% 14% 13% 13% 13% 13%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
2012 2013 2014 2015 2016 2017 2018 2019
No disability
Disability
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Appendix A – Housing Needs & Fair Housing Report A-68 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-17 provides an overview of disability by type and age in Ceres during 2019. Ambulatory difficulty is the most widespread disability in Ceres (28 percent) with the highest concentration among persons 65 years of age and older. This reflects 7 percent of the total population in Ceres.
Self-care difficulty and vision difficulty were the least common disabilities in Ceres with 2 percent of the population experiencing these disabilities.
Table A-17 Disability Status by Age, Ceres, 2019
Disability Type Under 18 18-64 65 and
Over Total
Percent of
Population
with a
Disability
Percent of
Total
Population
Hearing Difficulty 156 479 905 1,540 14% 3%
Vision Difficulty 134 586 439 1,159 10% 2%
Cognitive Difficulty 360 1,272 617 2,249 20% 5%
Ambulatory Difficulty 128 1,417 1,595 3,140 28% 7%
Self-care Difficulty 73 367 593 1,033 9% 2%
Independent Living Difficulty 0 1,168 1,115 2,283 20% 5% Total 851 5,289 5,264 11,404 100% 24%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
State law also requires Housing Elements to examine the housing needs of people with developmental disabilities. Developmental disabilities are defined as severe, chronic, and attributed to a mental or physical impairment that begins before a person turns 18 years old. This can include Down’s Syndrome, autism, epilepsy, cerebral palsy, and mild to severe mental delays. Some people with developmental disabilities are unable to work, rely on Supplemental Security Income, and live with family members. In addition to their specific housing needs, they are at increased risk of housing insecurity after an aging parent or family member is no longer able to care for them.
The California Department of Developmental Services provides ZIP code level counts on populations with developmental disabilities based on age and residence type. Table A-18 reports the population with developmental disabilities by age in Ceres. Approximately 1,467 persons have a developmental disability in Ceres. Of these, 913 are children (I.e., under the age of 18) and 554 are adults (Table A-18).
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Appendix A – Housing Needs & Fair Housing Report A-69 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-18 Population with Developmental Disabilities by Age, Ceres, 2021 Age Group Number
Age Under 18 913
Age 18+ 554
SOURCE: California Department of Developmental Services, Consumer Count by California ZIP Code and Age Group (2021).
NOTE: Universe: Population with developmental disabilities. Notes: The California Department of Developmental Services is responsible for overseeing the coordination and delivery of services to more than 330,000 Californians with developmental disabilities including cerebral palsy, intellectual disability, Down syndrome, autism, epilepsy, and related conditions. The California Department of Developmental Services provides ZIP code level counts. To get jurisdiction-level estimates, ZIP code counts were crosswalked to jurisdictions using census block population counts from Census 2010 SF1 to determine the share of a ZIP code to assign to a given jurisdiction.
Table A-19 shows the population with developmental disabilities by residence in Ceres. The most common living arrangement for individuals with disabilities in Ceres is the home of parent/family/guardian followed by independent/supported living arrangements.
Table A-19 Population with Developmental Disabilities by Residence, Ceres, 2021 Residence Type Number
Home of Parent/Family/Guardian 1,318
Foster/Family Home <31
Independent/Supported Living 95
Other <33
Community Care Facility <34
Intermediate Care Facility 0
SOURCE: California Department of Developmental Services, Consumer Count by California ZIP Code and Residence Type (2021).
NOTE: Universe: Population with developmental disabilities. Notes: The California Department of Developmental Services is responsible for overseeing the coordination and delivery of services to more than 330,000 Californians with developmental disabilities including cerebral palsy, intellectual disability, Down syndrome, autism, epilepsy, and related conditions. The California Department of Developmental Services provides ZIP code level counts. To get jurisdiction-level estimates, ZIP code counts were crosswalked to jurisdictions using census block population counts from Census 2010 SF1 to determine the share of a ZIP code to assign to a given jurisdiction.
Resources
In the City of Ceres, the majority of the residents that have disabilities are between the ages of 18 and 64. As such, a variety of support services are needed to assist both the younger population with disabilities, and the middle-aged and older population of residents with disabilities. Housing and transportation costs may pose a challenge to residents with disabilities. The service organization listed in the “Seniors” section above includes several resources that accommodate seniors with disabilities.
The City’s Municipal Code establishes procedures for persons with disabilities seeking equal access to housing, including reasonable accommodation for persons with disabilities. Additionally, the City follows the requirements of California Building Code Title 24, which establishes provisions for
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Appendix A – Housing Needs & Fair Housing Report A-70 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 accessible building design. To further ensure adequate housing is available for persons with disabilities, the City has included the following programs, which are designed to better serve the needs of residents with disabilities within the City of Ceres:
Program 3.1: Housing Diversity;
Program 3.5: Affordable Housing for Persons with Developmental Disabilities; Program 3.8: Affordable Housing for Extremely Low-Income Housing Residents; Program 3.9: Accessible/Adaptable Units for Residents with Disabilities; Program 3.15: Reasonable Accommodation; and
Program 5.1: Fair Housing.
In addition to the efforts described above, the following regional service providers and programs area available to assist Ceres’ residents living with disabilities:
Stanislaus County Family Caregiver Support Program;
Stanislaus County BRIDGES Volunteer Driver Program;
Stanislaus County Health Services Agency;
Stanislaus County Department of Mental Health;
Disability Resource Agency for Independent Living (Modesto); Stanislaus County Regional Transit (StaRT) Dial-A-Ride; and Right At Home (Modesto).
Large Households
Large households are defined as households of five or more individuals. Large households often have different housing needs than smaller households. Household income and local housing markets can greatly impact a household’s ability to afford adequately sized housing. If a city’s rental housing stock does not include larger apartments, large households who rent could end up living in overcrowded conditions. Similarly, large households may experience overpayment as a result of a high housing market and limited availability.
Figure A-48 illustrates 2019 households by size and tenure in Ceres. Ceres has 3,168 large households, of which 59 percent are owner-occupied households and 41 percent are renter-occupied households. Owner-occupied households makeup the majority of all households by approximately 61 percent. This combined with 36 percent of all households experiencing some level of cost burden (Figure A-37), suggests it is likely that large households in Ceres may experience overcrowding and/or overpayment.
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Appendix A – Housing Needs & Fair Housing Report A-71 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-48 Household Size by Tenure, Ceres, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Resources
In Ceres, approximately 25 percent of households include five or more people. As later discussed in Section A.7 Housing Stock Characteristics, Ceres’ housing stock includes approximately 1,779 multi- family units. Of these, approximately 9 percent are five+ bedroom units.
Large households in the City of Ceres can benefit from general programs and services for lower and moderate-income persons, including the Stanislaus County Regional Housing Authority Housing Choice Voucher program, and various community and social services provided by non-profit organizations in the region. Beyond the general programs for lower-income households, the City has included Program 3.14 to encourage the development of family friendly affordable housing units (see Chapter 2). The City will work with non-profit affordable housing developers to encourage housing development that meets the needs of large households.
To ensure adequate housing is available for large families, the City has included the following programs:
Program 2.1: Preserve Mobile Home Parks;
Program 2.4: Preservation of Rental Housing;
Program 3.1: Housing Diversity;
Program 3.14: Family Friendly Housing;
Program 5.1: Fair Housing;
Program 5.2: Housing Choice Voucher (Section 8) Program; and Program 5.3: First-Time Home Buyer Downpayment Assistance. 59%
70%
57% 57% 59%
41%
30%
43% 43% 41%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
1 Person
Household
2 Person
Household
3 Person
Household
4 Person
Household
5 Or More
Person
Household
Owner Occupied
Renter Occupied
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Appendix A – Housing Needs & Fair Housing Report A-72 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Single-Parent Households
Households headed by one person are often at greater risk of housing insecurity, particularly female- headed family households, who may be supporting children or a family with only one income.
In Ceres, the largest proportion of households is married-couple family households at 56 percent, while female-headed households make up 19 percent and male-headed households make up 10 percent of all households (Figure A-8). Figure A-49 shows single-parent households in Ceres, the County, and nearby comparable cities. Compared to the County and nearby cities, Ceres’ ratio of single-parent households is on par. Although, Ceres does have a slightly higher percentage of male- headed family households.
Figure A-49 Single-Parent Households by Jurisdiction, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Over the last decade, both female-headed and male-headed family households have slightly increased in Ceres. Figure A-50 illustrates trends in single-parent households in Ceres between 2010- 2019.18 During this period, female-headed households climbed from 18 percent in 2010 to its highest at 20 percent in 2016. In 2017, the trend began to steadily fall reaching 18.5 percent by 2019; a 0.4 percentage point increase compared to 2010. Between 2010-2019, male-headed family households experienced a greater level of change than female-headed family households, increasing a total of 2.5 percentage points. However, female-headed family households (18.5 percent) remain more prominent than male-headed family households (9.7 percent) in Ceres.
18 The data reports female- and male-headed family household as a percentage of total households in Ceres.
66.2% 65.6% 68.0% 67.6%
33.8% 34.4% 32.0% 32.4%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus
County
Ceres Oakdale Turlock
Male-headed Family
Households
Female-Headed Family
Households
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Appendix A – Housing Needs & Fair Housing Report A-73 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-50 Trends in Single-Parent Households, Ceres, 2010-2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 NOTE: This table reports female- and male-headed family households as a percentage of total households in Ceres.
Female-headed family households with children may face particular housing challenges, with pervasive gender inequality resulting in lower wages for women. Moreover, the added need for childcare can make finding a home that is affordable more challenging. Figure A-51 illustrates female-headed family households by poverty status.
In 2019, there were 606 female-headed family households with children that fell in the Below Poverty Level category compared to 17 male-headed family households with children that fell in the Below Poverty Level category in Ceres.
Figure A-51 Female-Headed Family Households by Poverty Status, Ceres, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
984
743
606
73 0
200
400
600
800
1,000
1,200
1,400
1,600
1,800
with Children with No
Children
Female-Headed Family
Households
Below Poverty Level
Above Poverty Level
18.1% 18.0% 18.5% 19.3% 19.3% 18.4%
20.1% 19.7% 19.3% 18.5%
7.2% 7.1% 7.3% 7.7% 8.6% 8.7% 9.2% 9.2% 8.8% 9.7%
0.0%
5.0%
10.0%
15.0%
20.0%
25.0%
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019
Female-Headed Family Households
Male-headed Family Households
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Appendix A – Housing Needs & Fair Housing Report A-74 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Resources
Limited household income constrains the ability of single-parent households to afford adequate housing, childcare, healthcare, and other necessities. The Ceres Healthy Start Family Resource Center located at 2491 Lawrence Street provides a range of services aimed at strengthening a household’s ability to access services and resources that support health, wellness, and education.
Services provided include but are not limited to: school readiness activities, parenting classes, support group, food and basic need referrals, healthcare assistance referral, access to mental health clinicians, free community health clinic, and free immigration consultation. Eligible individuals include insured or non-insured individuals including parents with children ages zero to five.
There are two head start programs located at 2003 Glenda Road in Ceres, including Migrant Early/Migrant-Seasonal Head Start Program and Regional Head Start Program. Migrant Early/Migrant-Seasonal Head Start Program provides childcare services for children ages six weeks through compulsory school age. Eligibility is determined according to migrant status, seasonal status, source of income, and income level. There is no cost for services. Regional Head Start Program provides childcare services for children ages three to five years of age. Eligibility is determined according to federal poverty guidelines. Children in foster care, homeless children, and children from families receiving public assistance are categorically eligible regardless of income.
Ceres Partnership, situated at 1317 Grandview Avenue in Ceres, is a program administered by the Center for Human Services. It offers a comprehensive array of services aimed at connecting families with vital resources within the community. With a particular emphasis on single-parent households, especially those headed by females, the organization tailors its services to meet the specific needs of this demographic. Services provided encompass a wide spectrum, including parent education, support groups, literacy and school readiness programs, classes and support for expectant mothers, child development screening, resource and referral services, utility assistance, nutrition classes, assistance with CalFresh applications, enrollment support for Medi-Cal and health insurance, translation services for Spanish-speaking clients, as well as job search and resume assistance.
In addition to the service organizations listed above, the following regional service providers and programs are available to assist Ceres’ single-parent households:
Housing Choice Voucher Program;
Project Sentinel: Fair Housing Center;
Stanislaus County Affordable Housing Corporation;
Samaritan House;
Redwood Family Center;
Stanislaus County Down-Payment Assistance Program; and Stanislaus County Regional Transit (StaRT) Dial-A-Ride.
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Appendix A – Housing Needs & Fair Housing Report A-75 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Additionally, the City of Ceres has committed to enacting the following programs during the 6th Cycle:
Program 3.7: Low Barrier Navigation Centers;
Program 3.8: Affordable Housing for Extremely Low-Income Housing Residents; Program 3.14: Family Friendly Housing;
Program 5.1: Fair Housing;
Program 5.2: Housing Choice Voucher (Section 8) Program; Program 5.3: First-Time Home Buyer Downpayment Assistance; and Program 5.5: Place-Based Strategies to Support Economic Mobility.
Farmworkers
Farmworkers are traditionally defined as people whose primary incomes are earned through permanent or seasonal agricultural labor. Farmworkers are generally considered to have special housing needs due to their limited income and the often unstable nature of their employment. In addition, farmworker households tend to have high rates of poverty, live disproportionately in housing that is in the poorest condition, have extremely high rates of overcrowding, and have low homeownership rates.
Figure A-52 shows hired farm labor in Stanislaus County between 2002-2017. According to the U.S.
Department of Agriculture Census of Agriculture, the number of permanent farmworkers (working 150 days or more per year) in Stanislaus County has decreased since 2002 (7,220), totaling 6,284 in 2017. Similarly, the number of seasonal farmworkers (working less than 150 days per year) has also decreased since 2002 (12,073), totaling 6,429 in 2017.
Figure A-52 Hired Farm Labor by County, Stanislaus County, 2002-2017 SOURCE: U.S. Department of Agriculture, Census of Farmworkers (2002, 2007, 2012, 2017), Table 7: Hired Farm Labor.
NOTES: Universe: Hired farm workers (including direct hires and agricultural service workers who are often hired through labor contractors). Farm workers are considered seasonal if they work on a farm less than 150 days in a year, while farm workers who work on a farm more than 150 days are considered to be permanent workers for that farm.
7,220
12,073
6,258
9,691
5,928
8,729
6,284 6,429
0 2,000
4,000
6,000
8,000
10,000
12,000
14,000
Permanent Seasonal
Farm Workers
2002 2007 2012 2017
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Appendix A – Housing Needs & Fair Housing Report A-76 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 According to the City’s General Plan, there are approximately 700 acres of agricultural land within City’s Planning Area. However, not all of the land is active farm land and only 4 percent of the City’s employment is for Agriculture and Natural Resources. Nonetheless, Ceres shares the responsibility for farmworker housing as farmworkers may live within 75 miles of agricultural land uses (including dairy, vineyards and produce) and the City is within 75 miles of these uses.
The California Institute for Rural Studies released a Farmworker Housing Study and Action Plan for Salinas Valley and Pajaro Valley in April 2018. While the Study was conducted in a different region outside of Stanislaus County, some of the key findings (that may still be relevant to farmworkers in other jurisdictions throughout the State of California) of the Study included:
A survey of 420 farmworkers in the labor shed as well as interviews with employers and other stakeholders was conducted to gather primary data. Among the farmworkers surveyed, men and women were relatively evenly distributed across age groups with 75 percent of the interviewees married. The clear majority of the immigrant farmworker interviewees had very few years of schooling. They were 92 percent immigrants (not born in the U.S.); Most households of farmworkers interviewed included non-family members who were for the most part other farmworkers. There are consistently stunningly high rates of residences that are above the severely crowded condition of 2.0 people per room. This is true of almost all the subgroups of the population. Often more than 5 people per bathroom; About 40 percent of respondents live in houses, 30 percent in apartments. Another 19 percent live in rented rooms without kitchens – either in houses or apartments. Another 12 percent live in “other” types of dwellings. Eighty-nine percent of farmworkers were renters and 11 percent owners. Of those who reported as owners, a quarter owns mobile homes; and Other characteristics of those interviewed included:
Most have only completed primary school;
Wages ranged from a median of $12.79 per hour, mean of $13.64, with median annual income of $25,000;
The majority do not work all year in agriculture – 7.5 months is the median; 44 percent of migrants work all year, 20 percent of non-migrants work year-round; Average age at arrival is about 20;
Median number of years in the US is 15 years;
Median age was 37;
Median number of years with current employer is 4 years; a quarter worked for their employer for 8 years or more;
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Appendix A – Housing Needs & Fair Housing Report A-77 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Two-thirds are from four states in Mexico:
Oaxaca 21 percent;
Michoacan 19 percent;
Jalisco 14 percent;
Guanajuato 10 percent;
13 percent self-identified as indigenous Mixtec, Triqui, Zapotec; They work in a range of crops throughout the region;
46 percent participate in harvest;
16 percent are packers;
38 percent participate in all other farm-related tasks such as:
Weeding;
Irrigating;
Thinning;
Pruning;
Loading;
Driving; and
Operating machines.
The farmworker housing demand model developed as part of the study calculates the total housing units needed of all types, based on target People Per Dwelling (PPD), and total permanent affordable farmworker housing based on the current rate that farmworkers access subsidized housing. Key findings of the demand model were:
An additional 33,159 units of farmworker housing are needed to alleviate critical overcrowding in farmworker households that are occupied at 7.00 PPD to the average PPD of 3.11 in Stanislaus County and the average PPD 3.21 in San Joaquin County; A total of 4,393 units of permanent affordable farmworker housing are needed to maintain the present “access rate” of 7.6 percent of farmworkers to subsidized housing; and The data from this study indicate an overwhelming need for affordable permanent year-round family housing.
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Appendix A – Housing Needs & Fair Housing Report A-78 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Resources
In an effort to provide farmworker housing to address the needs in the region, the Stanislaus County Housing Authority is currently under contract with the Office of Migrant Services (OMS) to operate four (4) migrant farmworker housing centers with locations in Watsonville, Patterson, Empire, and Westley. Among the four (4) migrant farmworker housing centers, approximately 318 units are provided as affordable, seasonal rental housing for migrant farmworker families. The housing centers operate for 180 days each year, and may provide season extensions pending approval by OMS. The units range in size and price from 1-bedroom ($11/day) to 4-bedroom units ($12.50/day). A security deposit of $100 is required, and all utilities are included in the rental rate.
The Stanislaus Housing Authority also administers farmworker housing in Ceres through the Ceres Farm Labor Center.
To enable the development of housing types suitable for lower-income households, including farmworkers, the City will implement the following programs (see Chapter 2):
Program 1.9: Changes to the Zoning Code (permit SROs and mobile/manufactured housing); Program 3.4: Temporary/Seasonal Farmworker Housing;
Program 3.8: Affordable Housing for Extremely Low-Income Housing Residents; Program 3.11: Employee Housing; and
Program 3.14: Family Friending Housing.
In addition to the City’s efforts to enable housing for lower-income households, including farmworkers, the following regional service providers and programs are available to assist farm- worker households within the greater Stanislaus County region:
Spanish Farmworkers Resource Line;
The Office of Migrant Services;
California Rural Legal Assistance;
Central Valley Opportunity Center; and
Farm and Food Worker Relief Grant Program.
The City of Ceres is aware of the Statewide Farmworker Housing Needs Survey that HCD launched in compliance with the requirements of AB 1654 (Rivas, Chapter 638, Statutes of 2022), and as more information becomes available regarding farmworker housing needs, the City will update the policies and programs to further accommodate the needs of farmworkers in jurisdictions within 75 miles of the City limits.
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Appendix A – Housing Needs & Fair Housing Report A-79 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Persons Experiencing Homelessness
Homelessness remains an urgent challenge in many communities across the state, reflecting a range of social, economic, and psychological factors. Rising housing costs result in increased risks of community members experiencing homelessness. Addressing the specific housing needs for the unhoused population remains a priority throughout the region, particularly since homelessness is disproportionately experienced by people of color, people with disabilities, those struggling with addiction and those dealing with traumatic life circumstances.
Table A-20 reports homeless persons in Stanislaus County, Ceres, Oakdale, and Turlock between 2018-2023. According to the 2023 Stanislaus County Point-In-Time Homeless Count, the region experienced a steady increase in homeless persons between 2019 to 2021. In 2022, the number of homeless persons decreased by approximately 37 percent. By 2023, the number of homeless persons increased by 12 percent reaching 2,091 persons.
Table A-20 Homeless Population, 2018-2023
Jurisdiction
Sheltered/Unsheltered Population
2018 2019 2020 2021 2022 2023
Stanislaus
County 1,356 1,923 2,107 2,927 1,857 2,091
Ceres 7 24 29 - 15 17
Oakdale 28 43 36 - 26 22
Turlock 155 247 232 - 211 233
SOURCE: Stanislaus County Point-in-Time (PIT) Homeless Count, 2018-2023 Similar to the County, the number of homeless persons in Ceres also increased between 2018 to 2020 before decreasing in 2022. According to the 2023 Stanislaus County PIT Count, Ceres has 17 homeless persons. Comparatively, this is much lower than nearby cities in the region.
Table A-21 shows homelessness by household type and shelter status in Stanislaus County in 2022.
In Stanislaus County, the most common type of household experiencing homelessness are those without children in their care. Among households experiencing homelessness that do not have children, 60 percent are unsheltered. Conversely, the majority of homeless households with children are in emergency shelters (64 percent).
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Appendix A – Housing Needs & Fair Housing Report A-80 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-21 Homelessness by Household Type and Shelter Status, Stanislaus County, 2022 Type of Shelter
People in
Households
Composed Solely
of Children
Under 18
People in
Households with
Adults and Children
People in
Households without
Children Under 18 Total
Count Percent Count Percent Count Percent
Sheltered –
Emergency Shelter 0 0% 63 64% 494 33% 557
Sheltered –
Transitional
Housing
0 0% 33 34% 106 7% 139
Unsheltered 1 100% 2 2% 908 60% 911
Total 1 100% 98 100% 1,508 100% 1,607
SOURCE: U.S. Department of Housing and Urban Development (HUD), Continuum of Care (CoC) Homeless Populations and Subpopulations Reports (2022).
NOTES: Universe: Population experiencing homelessness. This data is based on Point-in-Time (PIT) information provided to HUD by CoCs in the application for CoC Homeless Assistance Programs. The PIT Count provides a count of sheltered and unsheltered homeless persons on a single night during the last ten days in January. Each County is its own CoC, and so the data for this table is provided at the county-level. Per HCD’s requirements, jurisdictions will need to supplement this county-level data with local estimates of people experiencing homelessness.
Resources
According to PIT counts dating back to 2018, Ceres has had a relatively low number of persons experiencing homelessness within the city compared to nearby jurisdictions. As a result, most resources for the homeless population are provided at the county level. However, access to transportation, public services, and resources in Ceres may present a challenge to the those experiencing homelessness, despite the limited need.
Stanislaus Regional Transit Authority (StanRTA) operates five bus routes that provide service from Ceres to Modesto, Patterson, Hughson, Keyes, and Turlock. In total, there are 13 bus stops located throughout Ceres providing adequate public transportation opportunities. Local knowledge and data indicate persons experiencing homelessness in Ceres are typically located near the city’s urbanized core.
Currently, there is no emergency shelter within the city limits of Ceres. Nevertheless, neighboring cities such as Modesto and Turlock offer several temporary shelters designed to support homeless individuals and low-income persons with special needs. To facilitate the development of emergency shelters in Ceres, an analysis of potential sites suitable for their development has been included in Appendix B of this Housing Element. Five potential sites within the M-1, H-1, and PC Zones were examined for their suitability to accommodate emergency shelters, with each capable of providing a minimum of 30 beds if developed for this purpose. For a comprehensive discussion, please refer to Appendix B.
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Appendix A – Housing Needs & Fair Housing Report A-81 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City will implement Program 3.10 (Emergency Shelters for Homeless Individuals) to identify and designate appropriate receiving sites for emergency shelters within the city limits. Additionally, Program 1.9 (Changes to the Zoning Code) will be implemented to amend the Zoning Code to permit emergency shelters in conformance with state law.
In addition to the City’s actions to enable the development of emergency shelters, the following regional facilities offer supportive housing services in Stanislaus County for homeless and special needs low-income persons:
Children’s Crisis Center – Marsha’s House: Ceres;
Modesto Women’s Mission: 1400 East Yosemite Boulevard, Modesto; Stanislaus County Habitat for Humanity: 630 Kearney Avenue, Modesto; Hutton House: 201 Jennie Street, Modesto;
Haven Women’s Center of Stanislaus: 301 Starr Avenue, Turlock; HOST House: 1010 10th Street, Modesto;
We Care Program: 221 S Broadway, Turlock; and
The Salvation Army Shelter: 320 9th Street, Modesto.
Limited English Proficiency
California has long been an immigration gateway to the United States, which means that many languages are spoken throughout the region and beyond. Since learning a new language is universally challenging, it is not uncommon for residents who have immigrated to the United States to have limited English proficiency. This limit can lead to additional disparities if there is a disruption in housing, such as an eviction, because residents might not be aware of their rights or they might be wary to engage due to immigration status concerns.
Figure A-53 illustrates the population with limited English proficiency in Ceres compared to the County. In Ceres, 13 percent of residents five (5) years and older identify as speaking English not well or not at all, which is 3 percent higher than the proportion for Stanislaus County (10 percent).
This in tandem with a 61 percent Hispanic or Latino population, indicates a need for the prioritization of language translation services for all outreach including fair housing resources and education.
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Appendix A – Housing Needs & Fair Housing Report A-82 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-53 Population with Limited English Proficiency, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
NOTE: Universe: Population 5 years and over.
In an effort to affirmatively further fair housing, the City has developed Program 5.1 which states all fair housing resources, including the fair housing complaint referral process be provided in both English and Spanish. Full program details can be found in Chapter 2.
Resources
The City is committed to ensuring all residents have equal accessibility to housing assistance and resources. The City provides translation services at public meetings and provides bi-lingual engagement materials for City events. In an effort to affirmatively further fair housing, this 6 th Cycle
Housing Element contains Program 5.1, which states all fair housing resources including the fair housing complaint referral process be provided in both English and Spanish (see Chapter 2).
A.6 Access to Opportunity
This section discusses disparities in access to opportunity among protected classes including access to quality education, employment, transportation, and environment. The California Tax Credit Allocation Committee (TCAC) in collaboration with HCD developed a series of opportunity maps that help to identify areas of the community with good or poor access to opportunity for residents.
These maps were developed to align funding allocations with the goal of improving outcomes for low-income residents—particularly children.
10% 13%
90% 87%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Stanislaus County Ceres
Population 5 Years and Over
Who Speak English "Well" or
"Very well"
Population 5 Years and Over
Who Speak English "Not well"
or "Not at all"
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Appendix A – Housing Needs & Fair Housing Report A-83 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Access to Opportunity
“Access to opportunity is a concept to approximate place-based characteristics linked to critical life outcomes. Access to opportunity oftentimes means both improving the quality of life for residents of low-income communities, as well as supporting mobility and access to ‘high resource’ neighborhoods. This encompasses education, employment, economic development, safe and decent housing, low rates of violent crime, transportation, and other opportunities, including recreation, food and healthy environment (air, water, safe neighborhood, safety from environmental hazards, social services, and cultural institutions).” SOURCE: California Department of Housing and Community Development Guidance, 2021, page 34.
The opportunity maps highlight areas of highest resource, high resource, moderate resource, low resource and high segregation and poverty. TCAC provides opportunity maps for access to opportunity in quality education, employment, transportation, and environment. Opportunity scores are presented on a scale from zero to one and the higher the number, the more positive the outcomes.
Disparities in Access to Opportunity
Figure A-54 illustrates TCAC Opportunity areas across the region. The majority of Ceres is considered a low resource area as is much of central Stanislaus County. One area in the eastern region of the City is categorized as a moderate resource area, and one area in the southwestern region of the City is categorized as a high resource area. It is worth noting that the area categorized as high resource also shows concentrations of households earning less than the City’s median household income ($58,667) and the area categorized as moderate resource shows concentrations of households earning more than the City’s median household income (Figure A-13).
While there are no census tracts in Ceres designated as high segregation and poverty, just north of the City boundaries there are census tracts designated as high segregation and poverty.
Economic
TCAC’s economic opportunity score is comprised of poverty, adult educational attainment, employment, job proximity, and median home value. Figure A-55 illustrates economic opportunity across the region based on the TCAC Economic Opportunity Map. According to the California Department of Housing and Community Development AFFH Data Viewer, all areas of Ceres have a low to moderate economic opportunity score of 0.25-0.75. This reflects a low to moderate level of opportunity for economic advancement for residents in Ceres. In the eastern region of the City, there is one area that has a score of 0.75-1.0, reflecting more positive economic outcomes. This area also shows concentrations of households earning more than the City’s median household income.
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Appendix A – Housing Needs & Fair Housing Report A-84 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-54 TCAC Opportunity Composite Score, Ceres, 2022 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-85 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-55 TCAC Opportunity Economic Score, Ceres, 2022 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-86 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Education
TCAC’s education score is based on math proficiency, reading proficiency, high school graduation rates, and the student poverty rate. Opportunity scores are presented on a scale from zero to one and the higher the number, the more positive the outcomes. Figure A-56 illustrates educational opportunity based on the TCAC Educational Opportunity Map. According to TCAC’s Educational Opportunity Map, the majority of Ceres scores less than 0.25 indicating a low level of positive educational outcomes. However, a few areas in the eastern region of the City show slightly higher concentrations of positive educational outcomes ranging between 0.25-0.5, and one area in the southwestern region scores between 0.75-1.0 indicating a high positive educational outcome. This aligns with Figure A-54 showing concentrations of higher and lower TCAC composite scores for these divergent areas.
The City of Ceres is served by the Ceres Unified School District (CUSD), along with a variety of elementary, middle, and high schools within the City of Ceres. Despite the TCAC/HCD educational outcome data, the City of Ceres Unified School District (CUSD) reported a 91.8 percent graduation rate among all students in the district for 2022, which is higher than the statewide average (87.4 percent),
19 indicating positive educational outcomes.
When broken down by race/ethnicity, African-American and Asian students graduated at a slightly higher rate (100 percent and 94.2 percent, respectively) than other students, although graduation rates are very high across races and ethnicities: Hispanic and White students’ graduation rates were
92.3 percent and 85.3 percent, respectively. There is no data available for the graduation rates of American Indian, Filipino, and Pacific Islander students, as less than 10 students from each respective group within the CUSD graduated. The lowest graduation rate was among students with a disability at 72.2 percent.
19 https://www.caschooldashboard.org/reports/50710430000000/2022/academic -engagement#graduation-rate
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Appendix A – Housing Needs & Fair Housing Report A-87 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-56 TCAC Opportunity Education Score, Ceres, 2022 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-88 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Environmental Justice and Disadvantaged Communities
The California Health and Safety Code Section 39711 defines a disadvantaged community as:
1. Areas disproportionately affected by environmental pollution and other hazards that can lead to negative public health effects, exposure, or environmental degradation; or
2. Areas with concentrations of people that are of low income, high unemployment, low levels of homeownership, high rent burden, sensitive populations, or low levels of educational attainment.
The California Environmental Protection Agency (CalEPA) identified 10 census tracts in Ceres as disadvantaged communities. The primary factors affecting these disadvantaged communities are high levels of fine particulate matter, ozone pollution, and contaminated drinking water. 20 The TCAC Opportunity Areas Environmental scores are based on the CalEnviroScreen 4.0 indicators, which identify areas disproportionately vulnerable to pollution sources such as ozone, PM2.5, diesel PM, pesticides, toxic release, traffic, cleanup sites, groundwater threats, hazardous waste, impaired water bodies, and solid waste sites.
Figure A-57 illustrates environmental pollution estimates based on the TCAC Environmental Opportunity Map. Ceres scores moderate to high in terms of pollution burden with varying concentrations across the City. The City has areas scoring in a range of less than 0.25 (less positive outcomes) to 0.75 (more positive outcomes). The majority of the City falls within the 0.25-0.5 range, indicating high levels of environmental pollution burden. One area in Ceres has a concentration of lower levels of environmental pollution burden in the 0.5-0.75 range, located in a northeastern pocket of the City.
The City has identified a number of policies and programs in the Ceres General Plan 2035 to address environmental justice within the disadvantaged communities. For more in-depth information regarding disadvantaged communities in Ceres, refer to the Ceres General Plan 2035.
Vulnerability
The Social Vulnerability Index (SVI) provided by the Center for Disease Control (CDC)—ranks census tracts based on their ability to respond to a disaster—includes four themes of socioeconomic status, household composition, race or ethnicity, and housing and transportation. Figure A-58 illustrates social vulnerability across the region based on the SVI. Ceres scores high on the SVI (between 0.25-0.7501) indicating that the City is highly vulnerable to disasters, and ill equipped to respond to them. Concentrations of highest vulnerability are primarily located along the western perimeter and southern regions of the City.
20 Ceres General Plan 2035, page 5-10.
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Appendix A – Housing Needs & Fair Housing Report A-89 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-57 TCAC Opportunity Environmental Score, Ceres, 2022 SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-90 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-58 Social Vulnerability Index, Ceres, 2018
SOURCE: California Department of Housing and Community Development Guidance, 2021, page 36.
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Appendix A – Housing Needs & Fair Housing Report A-91 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Disparities Specific to the Population Living with a Disability In Ceres, 24 percent of the population is living with at least one disability, compared to 13 percent in the County. The most common disabilities in the City are ambulatory difficulty (7 percent), cognitive difficulty (5 percent), and independent living difficulty (5 percent).
Disparities in Access to Affordable Housing
Another area where individuals pertaining to special needs groups experience disparities is in access to adequate and affordable housing supply, and available transportation. In general, special needs groups such as Seniors, ELI residents, residents with disabilities, and other special needs groups are the most vulnerable to the impacts of lack of housing opportunities and adequate transit.
In Ceres, the populations most impacted by disparities in access to affordable housing include:
Seniors, ELI residents, residents that belong to minority ethnic and/or racial groups, residents with disabilities, and farmworkers. The City has encountered a 32 percent increase in housing prices over the past three years, jumping from $325,586 in 2019 to $429,471 in 2021. As a result, Ceres’ residents from minority ethnic and racial backgrounds experience high levels of disparity with respect to homeownership. Sixty-two (62) percent of Black and African-American residents in the City are renters. Comparatively, 67 percent of the City’s White population are homeowners (for in- depth analysis on housing tenure by race and ethnicity, refer to Figure A-61).
In Ceres, ELI residents also face hardships in obtaining affordable housing and becoming homeowners. Table A-25 shows that the majority of the City’s renters fall within the Low-Income and below categories, and only 25 percent of the City’s renters earn income that would be considered Above-Moderate. Conversely, the majority (52 percent) of the City’s homeowners earn an income that is Above-Moderate.
Seniors and Farmworkers within the City of Ceres are also vulnerable to housing disparities. Out of the City’s Senior population, most of them earn between $10,000 and $19,999 on an annual basis (refer to Figure A-34). Table A-29 shows that Ceres Christian Terrace (a HUD subsidized affordable housing apartment community for Seniors) and the Ceres Farm Labor Center FLC (a HUD subsidized affordable housing apartment community for Farmworkers) are at-risk of conversion to market-rate units.
In an effort to address the disparities in access to affordable housing that the City’s special needs residents are facing, the City of Ceres will enact the following programs (for a full list of programs, refer to Chapter 2 of the Housing Element):
Program 2.1: Preserve Mobile Home Parks;
Program 2.4: Preservation of Rental Housing;
Program 3.1: Housing Diversity;
Program 3.3: Housing Assistance for Senior Residents;
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Appendix A – Housing Needs & Fair Housing Report A-92 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Program 3.4: Temporary/Seasonal Farmworker Housing;
Program 3.6: Support to Address Regional Homeless Needs; Program 3.7: Low-Barrier Navigation Centers;
Program 3.8: Affordable Housing for Extremely Low-Income Housing Residents; Program 5.1: Fair Housing;
Program 5.2: Housing Choice Voucher Program;
Program 5.3: First-Time Home Buyer Downpayment Assistance; and Program 5.5: Place-Based Strategies to Support Economic Mobility.
Disparities in Access to Transportation
In 2021, the City of Ceres collaborated with members of the City’s Active Transportation Advisory Committee and other community stakeholders to publish the Ceres Citywide Active Transportation Plan (CATP). The CATP highlights the needs of disadvantaged communities within the City – with the understanding that disadvantaged communities may face unique disparities in access to adequate transportation. As stated in the CATP, the City’s disadvantaged communities are primarily located within “southern and western Ceres – south of Whitmore Avenue and west of Central Avenue.” 21 This also includes older neighborhoods directly adjacent to SR-99 as well as unincorporated islands within Ceres’ Sphere of Influence (SOI).
To meet the transportation needs of the City’s disadvantaged communities, the City has proposed to undertake the following programmatic actions:
Promote Walkability and Active Transportation (Program 2.7 of the Housing Element); Apply for funding from the California Sustainable Transportation Planning Grant Program; Coordinate between transit routes and active transportation infrastructure; Enhance sidewalks, crosswalks, and bikeways; and
Improve first/last-mile commutes and expand connectivity.
A.7 Housing Stock Characteristics
Ceres’ housing stock is defined as all housing units within its jurisdiction. Characteristics of housing stock include housing type, age, condition, tenure, vacancy rates, costs, affordability, and growth.
The following section provides an in-depth analysis of the housing stock in Ceres to determine whether the current the housing stock meets the needs of existing and future residents.
21 The City of Ceres, Ceres Citywide Active Transportation Plan (2021).
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Appendix A – Housing Needs & Fair Housing Report A-93 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Housing Growth
Table A-22 provides an overview of housing growth trends between 2010-2019 in Ceres, the County, and neighboring cities. Between 2010-2019, Ceres housing unit estimates declined approximately 4 percent, whereas the County and surrounding cities experienced growth in housing units. These estimates show the majority of housing decline in Ceres occurred between 2015-2019 (-3 percent). It is important to note that these are only estimates and may include sampling errors.
Table A-22 Housing Unit Growth Trends by Jurisdiction, 2010-2019 Jurisdiction 2010 2015 2019 Percent Change
2010-2015
Percent Change
2015-2019
Stanislaus County 177,591 180,169 181,748 1% 1%
Ceres 13,871 13,741 13,393 -1% -3%
Oakdale 7,441 7,681 8,314 3% 8%
Turlock 24,699 25,350 26,099 3% 3%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 Housing Type
Table A-23 provides a comparison of housing unit types in Ceres, the County, and nearby comparable cities. In Ceres, single-family detached homes are the most common housing type (79 percent) followed by multifamily units (13 percent). Similarly, the County’s most common housing type is single-family detached units (76 percent) followed by multifamily (16 percent). Overall, Ceres has the highest percentage of single-family detached units compared to the County and nearby cities.
Table A-23 Housing Units by Type by Jurisdiction, 2019
Jurisdiction
Single-Family
Detached
Single-
Family
Attached
Multifamily Mobile
Homes Total Units
Count Percent Count Percent Count Percent Count Percent Stanislaus County 137,469 76% 6,443 4% 29,661 16% 7,858 4% 181,431 Ceres 10,639 79% 428 3% 1,779 13% 467 4% 13,313
Oakdale 6,362 77% 344 4% 1,275 9% 333 4% 8,314
Turlock 17,589 67% 1,015 4% 6,732 26% 731 3% 26,067
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
NOTE: Table indicates total housing units.
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Appendix A – Housing Needs & Fair Housing Report A-94 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-59 illustrates a comparison of housing type trends in Ceres for 2010, 2015, and 2019. In all three years, single-family detached homes have remained the primary housing type at an average of 77 percent. Multifamily housing (5+ units) has been the second most popular housing type (9 percent). Mobile homes and single-family attached homes have remained the least common housing types in Ceres.
Figure A-59 Housing by Type, Ceres, 2010, 2015, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2019 Housing Availability and Tenure
Housing tenure refers to individuals who own or rent a housing unit. The number of residents who own their homes compared to those who rent their homes can help identify the level of housing insecurity (i.e., ability for individuals to stay in their homes) in a city and region. Generally, renters may be displaced more quickly if prices increase. Additionally, housing tenure may be an indicator of housing affordability (i.e., if the local housing market has high barriers to entry, there may be more renter households than owner households).
Figure A-60 illustrates housing tenure in Ceres between 2010 and 2021. As shown, housing tenure in Ceres has remained largely dominated by owner-occupied households, averaging 61 percent during this period. Whereas, renter-occupied households average 39 percent between 2010 and 2021. This is largely impacted by favorable market conditions in Ceres, which have resulted in naturally occurring affordable housing.
76%
5% 5%
9%
5%
77%
5% 5%
9%
4%
79%
3% 4%
9%
4%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
Single-Family
Home: Detached
Single-Family
Home: Attached
Multifamily
Housing: Two to
Four Units
Multifamily
Housing: Five-
plus Units
Mobile Homes
2010
2015
2019
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Appendix A – Housing Needs & Fair Housing Report A-95 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-60 Housing Tenure, Ceres, 2010-2021
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2010-2021 In Ceres, the housing stock includes 7,945 owner-occupied housing units and 5,030 renter-occupied housing units (Table A-24). When analyzing housing unit type in tandem with tenure, the majority of all housing units are single-family detached units (79 percent), of which 27 percent are renter- occupied and 71 percent are owner-occupied (Table A-23).
Table A-24 Housing Units by Type and Tenure, Ceres, 2019 Tenure
Single-
Family
Detached
Single-
Family
Attached
Multifamily Mobile
Homes Total Units
Count Percent Count Percent Count Percent Count Percent Renter-
Occupied 2,892 58% 372 7% 1,626 32% 140 3% 5,030
Owner-
Occupied 7,516 95% 56 1% 13 0.2% 360 5% 7,945
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
NOTE: Table indicates total occupied housing units.
Table A-25 reports household tenure by income level in Ceres. The largest proportion of both renters (25 percent) and homeowners (52 percent) fall in the Greater than 100 percent of AMI group. However, lower-income renters as a whole (0-80 percent of AMI), makeup 63 percent of renter households.
67% 64% 63% 61% 58% 58% 60% 60% 60% 61% 60% 60%
33% 36% 37% 39% 42% 42% 40% 40% 40% 39% 40% 40%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 Owner Occupied Renter Occupied
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Appendix A – Housing Needs & Fair Housing Report A-96 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-25 Household Tenure by Income Level, Ceres, 2015-2019 Tenure
0-30
Percent AMI
31-50
Percent AMI
51-80
Percent AMI
81-100
Percent AMI
Greater than 100
Percent AMI
Count % Count % Count % Count % Count %
Renter-Occupied 1,000 20% 1,070 21% 1,130 22% 570 11% 1,265 25% Owner-Occupied 455 6% 710 9% 1,700 21% 910 11% 4,170 52% SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Table A-26 provides an overview of household size by tenure for Ceres, the County, and nearby comparable cities. In Ceres, the average household size is 3.7, of which renter-households account for the largest households (3.74 persons/unit). An average household size of 3.74 suggests a need for more large housing units. This aligns with 56 percent of Ceres’ households being comprised of married-couple family households (Figure A-8). Compared to the County and nearby cities, Ceres has the highest average household size (3.7 persons/unit). The County also has a high average household size of 3.1 suggesting a need for large housing units and even a need for smaller independent units such as accessory dwelling units and junior accessory dwelling units (ADUs/JADUs) for extended family, etc.
Table A-26 Household Size by Tenure by Jurisdiction, 2019 Jurisdiction Owner-Occupied Renter-Occupied Average Household Size Stanislaus County 3.07 3.12 3.1
Ceres 3.61 3.74 3.7
Oakdale 2.95 2.85 3.0
Turlock 2.97 2.76 2.9
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Figure A-61 illustrates 2019 household tenure by race in Ceres. Tenure by race varies substantially in Ceres. The majority of all households are owner-occupied, of which Black or African American households have the lowest rate of ownership (38 percent) and highest rate or renting (62 percent).
Hispanic and Latino households makeup the majority of Ceres households (61 percent), yet the homeownership rate is 58 percent compared to non-Hispanic White households at 67 percent homeownership comprising 24 percent of the population.
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Appendix A – Housing Needs & Fair Housing Report A-97 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-61 Household Tenure by Race, Ceres, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Figure A-62 illustrates 2019 vacancy rates in Ceres, the County and nearby comparable cities. Ceres has the lowest vacancy rate of the nearby cities at 3 percent, one point below the County (4 percent).
At 6 percent, the City of Oakdale has the highest vacancy rate, three points above Ceres.
Figure A-62 Vacancy Rates by Jurisdiction, 2019
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Table A-27 shows vacant housing units by type. Compared to the County and nearby cities, Ceres has the lowest vacancy rate at 3 percent. Of the vacant units in Ceres, 27 percent are sold but not occupied, and 26 percent are available for rent. The availability of housing compounded with a need in the region, suggests a mismatch of housing need in some proportion (i.e., affordability, size, etc.).
4.3%
3.1%
6.1%
3.5%
0.0%
1.0%
2.0%
3.0%
4.0%
5.0%
6.0%
7.0%
Stanislaus County Ceres Oakdale Turlock
American
Indian or
Alaska
Native
(Hispanic
and Non-
Hispanic)
Asian alone
Native
Hawaian
and Other
Pacific
Islander
Black or
African
American
(Hispanic
and Non-
Hispanic)
Hispanic or
Latino
Some Other
Race/Multi
ple Races
White
(Hispanic
and Non-
Hispanic)
White, Non-
Hispanic
Renter Occupied 35% 33% 45% 62% 42% 31% 40% 33%
Owner Occupied 65% 67% 55% 38% 58% 69% 60% 67%
65% 67% 55%
38%
58% 69% 60% 67%
35% 33% 45%
62%
42% 31% 40% 33%
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Appendix A – Housing Needs & Fair Housing Report A-98 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-27 Vacant Housing Units by Type, Ceres, 2019
Housing Unit Type Estimate Percentage
For rent 109 26%
Rented, not occupied 29 7%
For sale only 40 10%
Sold, not occupied 113 27%
For season, recreations, or occasional use 6 1%
For migrant workers 0 0%
Other vacant 121 29%
Total 418 100%
SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019
Table A-28 shows housing permits issued between 2015-2021 by the City of Ceres according to income group. Ceres’ 5th Cycle RHNA was 2,571 housing units. Between 2015 and 2021, permits were issued for 79 housing units in Ceres, 3 percent of the RHNA. Of those, 71 were for above moderate-income housing, 7 were for moderate-income housing, and one (1) was for low-income housing.
Table A-28 Housing Permits by Income Group, Ceres, 2015-2020 Income Group Number Percent of 5th Cycle RHNA Met
(2,571)
Very Low-Income Permits 0 0.0%
Low-Income Permits 1 0.03%
Moderate-Income Permits 7 0.27%
Above Moderate-Income Permits 71 2.7%%
Total 79 3%
SOURCE: California Department of Housing and Community Development (HCD), 5th Cycle Annual Progress Report Permit Summary (2022).
NOTE: Universe: Housing permits issued between 2015 and 2020. Notes: HCD uses the following definitions for the four income categories: Very Low Income: units affordable to households making less than 50 percent of the Area Median Income for the county in which the jurisdiction is located. Low Income: units affordable to households making between 50 percent and 80 percent of the Area Median Income for the county in which the jurisdiction is located. Moderate Income: units affordable to households making between 80 percent and 120 percent of the Area Median Income for the county in which the jurisdiction is located. Above Moderate Income: units affordable to households making above 120 percent of the Area Median Income for the county in which the jurisdiction is located.
Assisted Housing Developments At-Risk of Conversion
While there is an immense need to produce new affordable housing units, ensuring that the existing affordable housing stock remains affordable is equally important. Additionally, it is typically faster and less expensive to preserve currently affordable units that are at risk of converting to market-rate than it is to build new affordable housing.
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Appendix A – Housing Needs & Fair Housing Report A-99 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-29 summarizes assisted units at-risk in Ceres. The data in the table below comes from the California Housing Partnership’s Preservation Database, the state’s most comprehensive source of information on subsidized affordable housing at risk of losing its affordable status and converting to market-rate housing.
22 According to the California Housing Partnership, there are 352 assisted multifamily rental units in Ceres. Of the 352 units, 67 are at moderate risk of converting to market- rate by the year 2029.
Table A-29 Assisted Units At-Risk of Conversion
Development Address Affordable
Units
Estimated Affordability
End Year Risk Level
Almond Terrace Apartments 2004 Evans Rd,
Ceres, CA 95307 45 2057 Low
Ceres Christian Terrace 1859 Richard Way,
Ceres, CA 95307 67 2029 Moderate
Casa Grande Apartments
3100 E. Whitmore
Ave, Ceres, CA
95307
99 2068 Low
Whitmore Oaks Apartments 2617 Blaker Rd,
Ceres, CA 95307 52 2057 Low
River Crest 2809 Della Dr,
Ceres, CA 95307 35 2059 Low
Ceres Farm Labor Center FLC 2100 Glenda Rd,
Ceres, CA 95307 54 2053 Low
Total 352
SOURCE: California Housing Partnership, Preservation Database (2020).
NOTE: Universe: HUD, Low-Income Housing Tax Credit (LIHTC), USDA, and CalHFA projects. Subsidized or assisted developments that do not have one of the aforementioned financing sources may not be included. While California Housing Partnership’s Preservation Database is the state’s most comprehensive source of information on subsidized affordable housing at risk of losing its affordable status and converting to market-rate housing, this database does not include all deed-restricted affordable units in the state. Consequently, there may be at-risk assisted units in a jurisdiction that are not captured in this data table. Per HCD guidance, local jurisdictions must also list the specific affordable housing developments at-risk of converting to market rate uses. This document provides aggregate numbers of at-risk units for each jurisdiction, but local planning staff should contact Danielle Mazzella with the California Housing Partnership at [email protected] to obtain a list of affordable properties that fall under this designation. California Housing Partnership uses the following categories for assisted housing developments in its database: Very-High Risk: affordable homes that are at-risk of converting to market rate within the next year that do not have a known overlapping subsidy that would extend affordability and are not owned by a large/stable non-profit, mission-driven developer. High Risk: affordable homes that are at-risk of converting to market rate in the next 1-5 years that do not have a known overlapping subsidy that would extend affordability and are not owned by a large/stable non-profit, mission-driven developer. Moderate Risk: affordable homes that are at-risk of converting to market rate in the next 5-10 years that do not have a known overlapping subsidy that would extend affordability and are not owned by a large/stable non-profit, mission-driven developer. Low Risk: affordable homes that are at-risk of converting to market rate in 10+ years and/or are owned by a large/stable non-profit, mission-driven developer.
22 This database does not include all deed-restricted affordable units in the state, so there may be at-risk assisted units in a jurisdiction that are not captured in this data table.
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Appendix A – Housing Needs & Fair Housing Report A-100 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Ceres Christian Terrace is a HUD subsidized affordable housing apartment community that includes 67 deed-restricted affordable units. The estimated affordability end date is July 31, 2029, which indicates a moderate level of risk of converting to market rate. The City will coordinate with HUD to determine if deed-restrictions are intended to be extended for the 67 units. If necessary, the City will identify potential buyers of the at-risk project, such as the Housing Authority of Stanislaus County or a local non-profit organization, as well as potential funding sources. As outlined in Program 2.4, the City is prepared to take the necessary actions to preserve at-risk affordable units (see Chapter 2). The City is actively identifying other parcels throughout the City that can accommodate low-income affordable units. The City will partner with the Stanislaus Regional Housing Authority to ensure efforts to provide affordable are continuous throughout the housing cycle.
To maintain the existing affordable housing stock, the City can preserve existing affordable units and facilitate the development of new units. Depending on the circumstances of at-risk projects, different options may be used to preserve or replace the units. Preservation options to ensure the viability and ongoing supply of affordable units typically include: 1) construction of replacement units; 2) provision of rental assistance to tenants 3) transfer of the project to nonprofit ownership; and 4) purchase of affordability covenants. These options are described below. The City’s focus is on proactive construction of replacement units and rental assistance.
Construction of Replacement Units
The construction of new affordable housing units is a means of replacing the at-risk units should they be converted to market-rate units. The cost of developing housing depends on a variety of factors, including density, size of the units (i.e. square footage and number of bedrooms), location, labor, materials and land costs, and type of construction. The City is implementing a number of programs to encourage development of new affordable units to increase the City’s affordable housing stock (see Chapter 2). The City estimates the average cost of construction for replacement units to be approximately $200 per square foot.
Rental Assistance
Rental subsidies using non-federal (state, local, or other) funding sources can be used to maintain affordability of at-risk units. These rent subsidies can be structured to mirror the federal Housing Choice Voucher (Section 8) program. Under Section 8, HUD pays the difference between what tenants can pay (defined as 30 percent of household income) and what HUD estimates as the fair market rent on the unit. The feasibility of this alternative is highly dependent on the availability of other funding sources necessary to make rent subsidies available and the willingness of property owners to accept rental vouchers if they can be provided. Housing Choice Vouchers are available through the Stanislaus Regional Housing Authority.
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Appendix A – Housing Needs & Fair Housing Report A-101 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Transfer of Ownership
Transferring ownership of an at-risk project to a nonprofit housing provider is generally one of the least costly ways to ensure that at-risk units remain affordable for the long term. By transferring property ownership to a nonprofit organization whose mission includes affordable housing, the risk of losing the low-income restrictions is minimized, and the project would become potentially eligible for a greater range of governments assistance. The Stanislaus Regional Housing Authority is the most likely entity to acquire ownership of at-risk units, including the Ceres Christian Terrace apartment complex.
Purchase of Affordability Covenants
Another option to preserve the affordability of at-risk projects is to provide an incentive package to the owners to maintain the projects as affordable housing. Incentives could include bringing down the interest rate on the remaining loan balance, providing loans for capital improvements, and/or supplementing subsidies. The feasibility of this option depends on whether the complex is too highly leveraged. By providing lump sum financial incentives or ongoing subsidies in the form of rents or reduced mortgage interest rates to the owner, the City can ensure that some of all of the units remain affordable.
Displacement
Displacement has the most severe impacts on low- and moderate-income residents. When individuals or families are forced to leave their homes and communities, they also lose their support network.
Figure A-63 illustrates displacement risk in Ceres. According to the California Department of Housing and Community Development (HCD) AFFH Data Viewer and the Urban Displacement Project 2022 estimates, Ceres’ renter-occupied households earning between 0-80 percent AMI are at highest risk of displacement risk in the central region of the City. This region has also shown concentrations of low resources (Figure A-54) and high social vulnerability (Figure A-58).
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Appendix A – Housing Needs & Fair Housing Report A-102 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-63 Displacement Risk, Ceres, 2022
SOURCE: California Department of Housing and Community Development, AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-103 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Housing Age and Condition
Housing age and condition are factors considered in overall housing quality as they may affect the structural integrity and ability to adequately function for a household. Thus, the age and condition of a house may indicate the need for major repairs to the foundation, plumbing, or roof.
Figure A-64 shows housing stock age in Ceres. Seventy-eight (78) percent of the housing stock was built prior to 1999 and is over 20 years old. Twenty-two (22) percent of the housing stock was built between 2000-2009 and 1 percent was built in 2010 or later.
Figure A-64 Housing Stock Age, Ceres, 2019 SOURCE: U.S. Census Bureau, ACS 5-Year Estimate, 2019 According to Ceres’ Code Enforcement Office, the City has identified areas of the jurisdiction that are the most susceptible to disrepair and require the most maintenance and upkeep. Within these areas, the City specifically tagged eight (8) residential structures due to the nature of the substandard conditions and lack of Code compliance. Substandard conditions range from minor repairs and code citations, such as: broken doors and windows, trash and debris on the property, and a lack of utilities, to major repairs and code citations, such as: sanitation issues, fire damage, illegal utility connections, etc. The average cost for complete rehabilitation of a unit in the City is between $50,000 and $75,000.
The areas within the City of Ceres that are currently in need of the most repairs and rehabilitation are the following:
From between Hackett Road and Don Pedro Court to Farris Avenue and Central Avenue; From Don Pedro Court and Whitmore Avenue to 5
th Street and Rose Avenue; and
From South Modesto/Ceres off of Herndon Road to Richland Avenue from Nadine Avenue and River Road.
2%
11%
26%
39%
22%
1%
0%
5%
10%
15%
20%
25%
30%
35%
40%
45%
Built 1939
Or Earlier
Built 1940
To 1959
Built 1960
To 1979
Built 1980
To 1999
Built 2000
To 2009
Built 2010
Or Later
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Appendix A – Housing Needs & Fair Housing Report A-104 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 This 6th Cycle Housing Element proposes policies and programs to address and facilitate the rehabilitation and preservation of existing and new housing. Program 2.1 and Program 2.3 specifically address the rehabilitation of existing residential units (see Chapter 2).
Housing Costs and Affordability
Identifying the cost of owning or renting a home in a city helps determine the affordability of housing at different income levels. Understanding housing affordability also informs what types and sizes of housing are needed by the community’s households. Housing affordability is considered affordable if the monthly housing cost does not exceed 30 percent of a household’s gross income. In Ceres, a lack of affordable housing for locals has been a major issue surrounding housing as the City has become an affordable housing destination for the Bay Area workforce. Thus, implementing policies and programs to protect housing for the local population is critical to ensuring the housing needs of the community are met and the local economy is supported.
Home Prices and Rental Costs
Table A-30 shows changes in median home values between 2019-2022 in Ceres, the County and nearby comparable cities. According to Zillow Home Value Index data, the median home value in Ceres was estimated at $325,586 in December 2019. By 2022, the median home value in Ceres increased approximately 32 percent due to market demand. By comparison, the median home value in the County was valued at $336,390 in December 2019 and experienced the same rate of increase by 2022.
Table A-30 Median Home Value by Jurisdiction, 2019-2022 Jurisdiction
Median Home Value
Percent Change 2019-2022
2019 2020 2021 2022
Stanislaus County $336,390 $367,444 $419,312 $442,795 32% Ceres $325,586 $353,265 $397,776 $429,471 32%
Oakdale $393, 631 $432,870 $494,504 $524,117 33%
Turlock $359,730 $391,029 $438,601 $461,146 28%
SOURCE: Zillow Home Value Index, 2019-2022
NOTE: Housing value estimates were taken from December for years 2019-2022.
Rental Affordability
Similar to home value prices, rental prices have also increased over the last decade. This significantly affects lower-income households as they are typically majority renters. High rental prices can exacerbate housing challenges such as overcrowding and cost burden if adequate rental stock is not available to suit household needs.
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Appendix A – Housing Needs & Fair Housing Report A-105 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-31 shows average apartment rent estimates by unit size in Ceres based on December 2024 Apartments.com rental market data.23 Included in the table is Housing and Urban Development’s (HUD) Fair Market Rents (FMR) for 2024, which establishes rental subsidy limits for Section 8 housing voucher recipients. The data shows that average apartment rents are lower than HUD- defined FMRs across all unit types, with the exception of a one-bedroom unit which is higher than the FMR. For example, the average rent for a studio is $703, while the FMR is $1,143, and for a three-bedroom unit, the average rent is $2,070 compared to an FMR of $2,153. This suggests that the rental market in Ceres may include units that are "naturally affordable," meaning they are priced below the federal benchmark without government subsidies or interventions. This affordability could reflect local market conditions, such as lower demand or incomes, or a surplus of rental housing.
Table A-31 Average Apartment Rents by Number of Bedrooms, Ceres, 2024 Unit Type Average Apartment Rents Fair Market Rents (HUD) Studio $703 $1,143
One bedroom $1,364 $1,188
Two bedrooms $1,408 $1,528
Three bedrooms $2,070 $2,153
Four bedrooms - $2,536
SOURCE: Apartments.com, 2024; HUD, Fair Market Rent Documentation System, 2024; NOTE: Apartments.com rental value estimates were taken from December 2024 and based on median rental price in Ceres.
Fair Market Rent values are based on Modesto, CA MSA.
Table A-32 reports the maximum monthly housing costs affordable to households according to income group in Stanislaus County. Income groups are based on the HCD 2024 State Income Limits report, which considers housing affordable assuming a household can pay up to 30 percent of its monthly income toward housing. As shown in Table A-32, maximum affordable sales prices are based on the following assumptions: 6.49 percent interest rate, 24 30-year fixed loan, 1.2 percent
taxes, zero down payment, and $800 in annual insurance.
As mentioned in Table A-30, the median home price in Ceres in December 2022 was $429,471, which is only affordable to above moderate-income households (42 percent of Ceres households are categorized as above moderate-income).
23 https://www.apartments.com/rent-market-trends/ceres-ca/ 24 Interest rate based on December 29, 2022 interest rate according to Freddie Mac Primary Mortgage Market Survey
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Appendix A – Housing Needs & Fair Housing Report A-106 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-32 Housing Affordability, Ceres, 2024
Income Group HCD Income Limits
Maximum Affordable Price
Monthly Rental Ownership
Extremely Low (0-30% AMI)
One Person $19,150 $479 $50,561
Two Person $21,900 $548 $59,076
Three Person $25,820 $646 $71,129
Four Person $31,200 $780 $87,733
Very Low (30-50% AMI)
One Person $31,900 $798 $89,823
Two Person $36,450 $911 $103,906
Three Person $41,000 $1,025 $117,865
Four Person $45,550 $1,139 $131,824
Low (50-80% AMI)
One Person $51,050 $1,276 $148,797
Two Person $58,350 $1,459 $171,181
Three Person $65,650 $1,641 $193,688
Four Person $72,900 $1,823 $215,888
Moderate (100-120% AMI)
One Person $77,750 $1,944 $230,831
Two Person $88,900 $2,223 $265,083
Three Person $100,000 $2,500 $299,275
Four Person $111,100 $2,778 $333,343
SOURCE: California Department of Housing and Community Development, State Income Limits, 2024, Stanislaus County https://www.zillow.com/mortgage-calculator/house-affordability/ NOTES: State Income Limits use 2024 Area Median Income (AMI). Stanislaus County four-person household median income= $92,600.
Figure A-65 illustrates public housing units across the region. According to the California Department of Housing and Community Development AFFH Data Viewer, Ceres has concentrations between 7-35 public housing units in the central region of the City. Additionally, the City's census tracts show moderate concentrations of 5-15 percent Housing Choice Voucher usage among renters in the central region of City, and concentrations of 0-5 percent in the western and eastern perimeters of the City. Figure A-66 illustrates housing choice voucher usage across the region.
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Appendix A – Housing Needs & Fair Housing Report A-107 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-65 Public Housing Buildings by Census Tract, Ceres SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-108 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Figure A-66 Housing Choice Vouchers by Census Tract, Ceres SOURCE: California Department of Housing and Community Development AFFH Data Viewer
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Appendix A – Housing Needs & Fair Housing Report A-109 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A.8 Fair Housing Enforcement and Outreach Capacity
This section discusses fair housing legal cases and inquiries, fair housing protections and enforcement, and outreach capacity.
Fair Housing Legal Cases and Inquiries
California fair housing law extends beyond the protections in the Federal Fair Housing Act (FHA).
In addition to the FHA protected classes—race, color, ancestry/national origin, religion, disability, sex, and familial status—California law offers protections for age, sexual orientation, gender identity or expression, genetic information, marital status, military or veteran status, and source of income (including federal housing assistance vouchers).
The California Department of Fair Employment in Housing (DFEH) was established in 1980 and is now the largest civil rights agency in the United States. According to their website, the DFEH’s mission is, “to protect the people of California from unlawful discrimination in employment, housing and public accommodations (businesses) and from hate violence and human trafficking in accordance with the Fair Employment and Housing Act (FEHA), Unruh Civil Rights Act, Disabled Persons Act, and Ralph Civil Rights Act”.
25 DFEH receives, evaluates, and investigates fair housing complaints. DFEH plays a particularly significant role in investigating fair housing complaints against protected classes that are not included in federal legislation and therefore not investigated by HUD. DFEH’s website provides detailed instructions for filing a complaint, the complaint process, appealing a decision, and other frequently asked questions.
26 Fair housing complaints can also be submitted to HUD for investigation.
Additionally, Stanislaus County has a number of local resource and enforcement organizations:
Stanislaus Regional Housing Authority: a nonprofit, public corporation, is committed to addressing the unmet housing needs of residents and communities in Stanislaus County. Fair Housing Council of Central California: a professional, non-profit, civil rights organization dedicated to the elimination of discrimination in housing and the expansion of housing opportunities for all persons. The Center accomplishes its goal through the advocacy of equal housing opportunities, assisting victims of housing discrimination and enforcing compliance with fair housing laws, including the Community Reinvestment Act and the Equal Credit Opportunity Act.
25 https://www.dfeh.ca.gov/aboutdfeh/
26 https://www.dfeh.ca.gov/complaintprocess/
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Appendix A – Housing Needs & Fair Housing Report A-110 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Public Interest Law Project: a nonprofit support center for California legal services and other public interest law programs. The California Affordable Housing Law Project (CAHLP) is a project of the Public Interest Law Project. CAHLP concentrates primarily on the enforcement of California’s housing element and redevelopment statutes and of state and federal relocation assistance and fair housing laws.
Coalition of Homeless Service Providers: Advocate on the subject of homelessness with policy makers, public funders, and those with lived experience. California Rural Legal Assistance (CRLA): a nonprofit legal service program created to help California’s low-income individuals and communities. CRLA provides low-income rural Californians with free legal assistance and a variety of community education and outreach programs. Half of its resources are committed to multi-client cases that grapple with the root causes of poverty, with the goal of improving conditions for farmworkers, single parents, school children, the elderly, people with disabilities, and entire communities.
Between 2016 and 2020, 55 fair housing complaints in Stanislaus County were filed with the California Department of Fair Employment and Housing (DFEH). Among the complaints countywide, most were related to physical disabilities (39 cases) and familial/marital status (20 cases).
Discrimination based on race was not common (5 cases). A complaint may involve multiple acts of discrimination. A total of 55 acts of discrimination were recorded in Stanislaus County.
The National Fair Housing Alliance (NFHA) identifies three significant trends in 2020 that are relevant for this AFFH Report:
First, fair lending cases referred to the Department of Justice from federal banking regulators have been declining, indicating that state and local government entities may want to play a larger role in examining fair lending barriers to homeownership; Second, NFHA identified a significant increase in the number of complaints of harassment— 1,071 complaints in 2020 compared to 761 in 2019; and
Finally, NFHA found that 73 percent of all fair housing complaints in 2020 were processed by private fair housing organizations, rather than state, local, and federal government agencies— reinforcing the need for local, active fair housing organizations and increased funding for such organizations.
27 27 https://nationalfairhousing.org/2021/07/29/annual-fair-housing-report-shows-increase-in-housing-harassment/
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Appendix A – Housing Needs & Fair Housing Report A-111 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Outreach and Capacity
Currently, the City of Ceres website does not contain outright information about local fair housing ordinances. The website should also more transparently describe the steps residents should take if they feel they have faced discrimination and are seeking information about filing complaints (e.g., link to Housing and Urban Development (HUD) and State of California fair housing pages).
The site should also reference the organizations that provide fair housing services and assistance to City residents. Program 5.1 has been developed to ensure fair housing resources are provided to community members in Ceres via the City website.
The following organizations offer fair housing services and assistance to the residents of Ceres:
Stanislaus Housing Authority; and
Project Sentinel: Modesto Office.
Compliance with State Fair Housing Law
The City of Ceres complies with existing fair housing laws and regulations by ensuring that all residents have equal access to housing programs, services, and resources and supporting residents in filing complains on housing discrimination. The City of Ceres is compliant with the following state laws that promote fair and affordable housing. The City has not been alleged or found in violation of the following:
Fair Housing Act of 1968 – The City has adopted housing policies that prohibit housing discrimination based on protected characteristics and ensuring equal access to housing programs and services.
California Fair Employment and Housing Act (FEHA) (Part 2.8 (commencing with Section 12900) of Division 3 or Title 2) – The City complies with the Fair Employment and Housing Act by upholding policies that prohibit housing discrimination based on protected characteristics and enforces these policies by supporting residents seeking to file a complaint to the FHEO or who wish to pursue legal action.
Government Code 65008 – The City does not discriminate or deny any individual or group of individuals the right to residence, land ownership, tenancy, or other land use on the basis of one’s membership or perceived membership in a protected class, method of financing, and/or the intended occupancy. The City has adopted housing policies that prohibit discrimination based on protected characteristics. Further, the City has received zero FHEO complaints, and is committed to conducting outreach and educating residents on Fair Housing Law. Program
5.1.A in this Housing Element commits the City to providing information on fair housing and services offered in the region (see Chapter 2).
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Appendix A – Housing Needs & Fair Housing Report A-112 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Government Code 11135 et. seq. – The City does not discriminate or deny any individual or group of individuals access to programs or activities operated, administered, or funded with financial assistance from the state, regardless of one’s membership or perceived membership in a protected class. The City included Programs 3.3, 3.4, 3.5, 3.8, 3.9, 3.10, 3.11, 3.14, 5.1 and 5.2 in this Housing Element to promote affordable housing opportunities and resources, including Housing Choice Vouchers, shared housing programs, and employee/farmworker housing resources for residents that fall within each of the protected classes (see Chapter 2). Assembly Bill 686 – The City has included this assessment of fair housing and identifies strategies to increase housing opportunities for all residents, with specific actions to reduce housing disparities for disadvantaged communities.
Density Bonus Law – The City last updated their Density Bonus provisions in the Municipal Code in 2020. In compliance with State law, the City will update its Density Bonus provisions outlined in the Municipal Code to be consistent with recent changes to the State Density Bonus Law. Program 1.7 will regulate this amendment to the Code (see Chapter 2). Senate Bill (SB) 35 –The City is subject to SB 35 requirements and will comply with State law as established in this Housing Element through Program 1.13 (see Chapter 2). Rehabilitation Act of 1973 – The City does not discriminate against persons with disabilities and promotes equal opportunities, accessibility, and independence for individuals with disabilities. American Disabilities Act – The Chapter 41 of the City’s Municipal Code establishes procedures for persons with disabilities seeking equal access to housing including reasonable accommodation for persons with disabilities. The City ensures housing developers comply with the American Disabilities Act through permit process review. The City includes Program 3.15 to amend the Municipal Code regulations related to reasonable accommodations (see Chapter 2).
Housing Accountability Act (Gov. Code. Section 65589.5) requiring adoption of a Housing Element and compliance with RHNA allocations – The City will comply with the Housing Accountability Act by approving any eligible housing development projects, including those with at least 20 percent affordable units to lower-income households. No Net Loss Law (Gov. Code Section 65863) requiring that adequate sites be maintained to accommodate unmet RHNA allocations – The City complies with the No Net Loss Law by identifying sites that can accommodate the City’s RHNA. The City is also committed to establishing minimum density requirements for multi-family housing developments in the R-3, R-4, and R-5 districts.
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Appendix A – Housing Needs & Fair Housing Report A-113 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Limits on Growth Controls Law (Gov. Code. Section 65302.8) – The City complies with the Limits on Growth Controls Law. The City has not adopted any mandatory general plan elements which limit the number of housing units.
Housing Element Law (Gov. Code Section 65583(c)(5),(c)(10) – The City has included this analysis of fair housing and identifies strategies to increase housing opportunities for all residents, with specific actions to reduce housing disparities for lower-income households. Least Cost Zoning Law (Gov. Code. Section 65913.1) – The City complies with this State law by designating and zoning sufficient vacant land for residential use with appropriate standards, in relation to zoning for nonresidential use, and in relation to growth projections of the general plan to meet housing needs for all income categories as identified in the Housing Element. Excessive Subdivision Standards Law (Gov. Code. Section 65913.2) – The City complies with this law in that the jurisdiction does not impose criteria for design, as defined in Section 66418, or improvements, as defined in Section 66419, for the purpose of rendering infeasible the development of housing for any and all economic segments of the community.
Housing Specific Policies Enacted Locally
The City of Ceres identified the following local policies that contribute to the regulatory environment for affordable housing development in the City.
Policy 1.1: The City shall designate sufficient land at various densities to allow for the construction of sufficient housing to meet its legally adopted HCD Regional Housing Need Allocation (RHNA) between 2023 and 2031;
Policy 1.6: Zoning for Transitional and Permanent Supportive Housing; Policy 1.7: Amend the Zoning Ordinance to align with Density Bonus State Law; Policy 2.4: Conserve At-Risk Units; and
Policy 5.1: Fair Housing Program.
ATTACHMENT E
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Appendix A – Housing Needs & Fair Housing Report A-114 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A.9 Fair Housing Recommendations
Contributing Factors and Fair Housing Action Plan
The disparities in housing choice and access to opportunity discussed above stem from historical actions, socioeconomic factors that limit employment and income growth, barriers to open housing choice, and until recently, very limited resources to respond to needs.
Ceres differs from the County and StanCOG region overall based on its relatively high proportion of residents identifying as Hispanic or Latino (61 percent in Ceres compared to 46 percent in Stanislaus County) and small non-Hispanic White population (24 percent in Ceres and 42 percent in the County). Additionally, Ceres’ proportion of Black/African American and Asian residents is greater than the County. Overall, Ceres has a much more diverse resident population than the County and nearby jurisdictions, however, socioeconomic and housing choice disparities pose negative effects for the community.
Priority of Contributing Factors
As a result of the housing needs and fair housing analysis, the City of Ceres has prioritized the following contributing factors to the fair housing issues:
Lack of affordable housing (high priority);
Lack of diverse housing stock (high priority);
Limited housing construction (high priority);
Limited economic opportunity (medium priority);
Lack of City promotion of fair housing resources and outreach (medium priority); and Lack of effective programmatic action and City resources (medium priority).
As a result of the housing needs and fair housing analysis, the identified fair housing issues and contributing factors have been prioritized and assigned programmatic action as indicated on the following page in Table A-33, Fair Housing Issues & Contributing Factors.
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Appendix A – Housing Needs & Fair Housing Report A-115 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table A-33 Fair Housing Issues & Contributing Factors
Fair Housing Issue Contributing Factor(s) Programmatic Action Priority Disproportionate Housing Needs
Ceres’ households are comprised of 61 percent
owner-occupied households and 39 percent
renter-occupied households, of which 42 percent
are experiencing at least one of four housing
problems. Additionally, renter-households are
disproportionately impacted by cost burden and
overcrowding.
Limited economic opportunity;
Jobs to housing imbalance;
Lack of adequate housing stock that meets the needs
of residents; and
Lack of affordable housing.
Program 5.1: Fair Housing Program
Program 5.2: Housing Choice Voucher Program
Program 5.4: Place-Based Strategies to Support
Infrastructure Improvements
High
Special Needs Groups
In Ceres, special needs groups comprise large
shares of the population. Of the total households
in Ceres, Large Households makeup 24 percent,
Single-Parent households makeup 28 percent,
and Extremely Low-Income households makeup
11 percent. Additionally, persons with disabilities
makeup 24 percent of the total population.
These special needs groups experience
disproportionate impacts of poverty,
overcrowding, and cost burden increasing the
challenge of obtaining adequate housing in the
City.
Lack of effective programmatic action and City
resources;
Limited economic opportunity;
Jobs to housing imbalance;
Lack of fair housing resources;
Lack of diverse housing stock; and
Lack of affordable housing.
Program 3.1: Housing Diversity
Program 3.3: Housing Assistance for Senior Residents
Program 3.4: Temporary/Seasonal Farmworker
Housing
Program 3.5: Affordable Housing for Persons with
Developmental Disabilities
Program 3.7: Low Barrier Navigation Centers
Program 3.8: Affordable Housing for Extremely Low-
Income Housing Residents
Program 3.9: Accessible/Adaptable Units for People
with Disabilities
Program 3.10: Emergency Shelters
Program 5.4: Place-Based Strategies to Support
Infrastructure Improvements
High
Limited Housing Stock
Ceres’ decline in housing unit production since
2010, the lack of affordable housing production
and diverse housing types, along with increasing
housing costs create barriers to enter the local
housing market.
Lack of housing construction; only 79 units have been constructed in the City since 2015 (3 percent of the 5
th
Cycle RHNA); and
Since 2015, there have been 71 housing permits in
the City for above moderate-income units, seven (7)
for moderate-income, and only one (1) for low-income
households.
Program 1.1: Regional Housing Needs Allocation
Program 1.5: Promote Secondary Dwelling Units (ADU
and JADU)
Program 3.1: Housing Diversity
High
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Appendix A – Housing Needs & Fair Housing Report A-116 EMC Planning Group Inc.
Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Fair Housing Issue Contributing Factor(s) Programmatic Action Priority Access to Opportunity
Access to employment opportunities are limited
to the majority of students due to the spatial
mismatching of jobs and housing.
Jobs to housing imbalance;
Limited educational and economic
opportunity;
Lack of diverse housing stock; and
Lack of affordable housing.
Program 3.1: Housing Diversity
Program 5.4: Economic Mobility
Medium
Fair Housing Enforcement
No residents filed fair housing complaints in
Ceres, indicating a potential lack of awareness
about fair housing rights.
Lack of access to information about fair housing
rights; and
Limited knowledge of fair housing by
residents.
Program 5.1: Fair Housing Program
Program 5.2: Housing Choice Voucher Program
Medium
SOURCE: City of Ceres; EMC Planning Group
ATTACHMENT E
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Appendix A – Housing Needs & Fair Housing Report A-117 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Local Knowledge of Contributing Factors to Fair Housing In order to better inform this Housing Element to meet the needs of Ceres residents, the City solicited the input of the public with a number of prompted questions through an online Stakeholder Survey. The responses were taken into consideration for incorporation into the Housing Element to guide policies and programs that address the housing needs of existing and future residents. The following are a few of the questions and responses from the Stakeholder Survey.
Question: What factors prevent you from obtaining permanent housing in Ceres? Community members offered the following responses:
Housing affordability;
Limited supply of housing;
Limited variety of housing options; and
Limited employment opportunities.
Question: What do you expect from your city or county regarding homelessness/housing? Community members offered the following responses:
Affordable housing programs;
Programs and rehabilitation centers that provide wrap-around support services for special need groups such as, extremely low-income households, the unhoused, the disabled, seniors, veterans, etc.;
Construction of housing for low-income households; and Incentives for landlords to provide rent control.
For a complete review of all survey questions and responses, please refer to Appendix E, Attachment B – Stakeholder Survey Report.
A.10 Conclusion
To address the fair housing issues identified in the analysis above, the programs referenced above are included in this Housing Element, and further detailed in Chapter 2 of the Housing Element.
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Appendix A – Housing Needs & Fair Housing Report A-118 EMC Planning Group Inc.
Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
This side intentionally left blank.
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Housing Constraints
B
APPENDIX
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ATTACHMENT E
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Table of Contents
APPENDIX B HOUSING CONSTRAINTS ......................................................................... B-1 B.1 Introduction ........................................................................................................................... B-1 B.2 Governmental Constraints ................................................................................................... B-1 B.3 Non-Governmental Constraints ....................................................................................... B-41 Tables
Table B-1 General Plan Designations that Allow Housing ................................................... B-2 Table B-2 Residential Development Standards ....................................................................... B-5 Table B-3 Parking Requirements ............................................................................................. B-12 Table B-4 Ceres Permitted Housing Types ............................................................................ B-17 Table B-5 Development Standards in M-1, H-1, and PC Zones ........................................ B-25 Table B-6 Capacity for Emergency Shelters........................................................................... B-26 Table B-7 City of Ceres Planning Fees ................................................................................... B-31 Table B-8 City of Ceres Residential Development Impact Fees ......................................... B-33 Table B-9 Estimate of Total Residential Development Fees Imposed .............................. B-35 Table B-10 Recent Entitlement and Building Permit Process Times, 2015-2023 .............. B-38
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ATTACHMENT E
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Appendix B – Housing Constraints B-1 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Appendix B
Housing Constraints
B.1 Introduction
State law requires that Housing Elements include an analysis of governmental and nongovernmental constraints upon the maintenance, improvement, or development of housing for all income levels.
Governmental constraints include land use controls, building codes and their enforcement, fees and exactions, and permitting procedures. Nongovernmental constraints are primarily market-driven and include land costs, construction costs and the availability of financing.
B.2 Governmental Constraints
Governmental regulations, while intentionally regulating the quality of development in the community, can also unintentionally increase the cost of development and thus the cost of housing.
These governmental constraints include land use controls, building codes and their enforcement, site improvements, fees and other exactions required of developers, and local processing and permit procedures. Land use controls may limit the amount or density of development, thus increasing the cost per unit. On-site and off-site improvements like road improvements, traffic signals on adjacent streets or sewer improvements may increase an individual project’s costs of development. Processing and permit requirements may delay construction, increasing financing and/or overhead costs of a development.
This section analyzes key land use controls that have an impact on housing development in Ceres.
This includes a discussion of the General Plan Land Use Element, the zoning code, fees and exactions, permit processing, building codes, improvement standards, and parking regulations. The section ends with a discussion of special housing topics that have been the subject of state legislation in recent years. Where land use controls have been determined to pose an undue constraint on the development of housing or where the jurisdiction has yet to take action to comply with new state mandates, this section calls out the need for corrective action.
Land Use Controls
The City’s General Plan Land Use Element and Zoning Ordinance are the primary tools used to manage the land use and development in Ceres. Ceres recently updated its General Plan in 2018, and the updated plan includes a fuller range of residential densities than the previous 1997 plan, plus five new mixed-use designations that allow housing in combination with commercial and office uses.
ATTACHMENT E
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Appendix B – Housing Constraints B-2 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 As required by state law, the General Plan includes a land use map indicating the allowable uses and densities at various locations in the City. The Land Use section identifies seven (7) residential land use designations and five (5) mixed-use designations that allow housing. These designations and their relevant characteristics are summarized below in Table B-1, General Plan Designations that Allow Housing.
Table B-1 General Plan Designations that Allow Housing
Designation Allowed Use Density
Residential Agricultural Single-family dwellings, mobile homes, manufactured homes 0.2 to 0.5 units/acre Very Low-Density Residential Single-family dwellings Up to 4.5 units/acre Low-Density Residential Single-family dwellings Up to 7 units/acre Medium Density Residential Attached and detached single family units and all multi- family units 7 to 12 units/acre
Medium High Density Residential Attached single family and multi-family units 12 to 20 units/acre Downtown Residential Townhouses; and multiple-family residential uses, including condominiums, duplexes, triplexes, and apartments 10 to 30 units/acre High Density Multiple-family residential uses, including condominiums, duplexes, triplexes, and apartments 20 to 30 units/acre Neighborhood Commercial Second floor or back of store units 12 to 25 units/acre Downtown Office Single family and multi-family units 5 to 25 units/acre Office Single family and multi-family units 5 to 25 units/acre Downtown Mixed Use Multi-family units 10 to 40 units/acre Regional Commercial (RC) Second floor units only FAR 3.0 SOURCE: City of Ceres General Plan, 2018
The updated Ceres General Plan contains an appropriate array of land use designations that accommodate a range of housing types and affordability levels. The land use designations that most readily accommodates lower-income housing include, Downtown Residential (10 to 30 du/ac), High Density (20 to 30 du/ac), and all of the mixed-use designations (Neighborhood Commercial, Downtown Office, Office, and Downtown Mixed-Use, and Regional Commercial. These density ranges and new opportunities for mixed-use are sufficient to provide low- and very low-income housing. Taken together, these basic land use controls pose no undue constraint on the development of housing in Ceres.
Density Bonuses/Incentives for Affordable Housing Developments In 2020, the City updated the Density Bonus Program as part of their Zoning Ordinance. Chapter
18.39 of the City’s Zoning Ordinance provides a detailed description of the program. The City’s Density Bonus Program was adopted to contribute significantly to the economic feasibility of
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Appendix B -– Housing Constraints B-3 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element HCD Revised Draft January 2025 affordable housing in proposed developments by offering incentives to developers consisting of density bonuses or other concessions of equal financial value, in compliance with Government Code sections 65915 and 65917.
According to Chapter 18.39 of the City of Ceres Zoning Ordinance (updated in 2020), housing developments must have a minimum of five (5) units, excluding any bonus units, to qualify for the density bonus program, and meet one or more of the following criteria:
10 percent of the total units are designated for lower-income households, as defined in section 50079.5 of the Health and Safety Code;
5 percent of the total units are designated for very low-income households, as defined in section 50105 of the Health and Safety Code;
10 percent of the total dwelling units in a common interest development, as defined in section 4100 of the Civil Code, for persons and families of moderate income, as defined in section 50093 of the Health and Safety Code, provided that all units in the development are offered to the public for purchase;
50 percent of the total units are designated for senior citizens, as defined in sections 51.3 and
51.12 of the Civil Code; and
10 percent of the total units of a housing development for transitional foster youth, as defined in section 66025.9 of the Education Code, disabled veterans, as defined in section 18541, or homeless persons, as defined in the federal McKinney-Vento Homeless Assistance Act (42 U.S.C. sec. 11301 et seq.).
A density bonus agreement between a developer and the City is legally binding. It ensures that the requirements of the Density Bonus Ordinance are satisfied. The agreement establishes the number of target units, their size, location, terms and conditions of affordability, and production schedule.
The agreement also requires proper management and maintenance of the units.
According to State law, a density bonus of at least 50 percent over the maximum authorized will be allotted for any housing development consisting of 24 percent low-income units or 15-percent very low-income units. To comply with State law, the City has included Program 1.7 to ensure the Zoning Ordinance is updated and consistent with the General Plan (see Chapter 2).
Local Ordinances
Although local ordinances and policies are enacted to protect the health and safety of citizens and further the general welfare, it is useful to periodically reexamine local ordinances and policies to determine whether, under current conditions, they are accomplishing their intended purpose or constituting a barrier to the maintenance, improvement, or development of housing for all income levels. The City of Ceres does not have any local ordinances that would affect or hinder the development of housing in the City.
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Appendix B – Housing Constraints B-4 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Growth Management Measures
Growth management measures include ordinances, policies, procedures, or measures imposed by the local government that specifically limit the amount or timing of residential development and can produce constraints to the development of housing. The City of Ceres does not have any growth management measures that would affect or hinder the development of housing.
Ceres Zoning Ordinance and Development Review Process
This section discusses government constraints related to the Ceres Zoning Ordinance and development review process.
Ceres Zoning Ordinance
The City of Ceres Zoning Ordinance established the development standards and densities for new housing in the City. These plans and standards have a direct impact on the amount of housing that can be developed, the location and types of such housing, and ultimately on the affordability of housing in the community. Zoning ordinance regulations include minimum lot sizes, maximum number of dwelling units per acre, setbacks, lot coverage, maximum building height, and minimum parking requirements.
The authority for the establishment of a zoning map and accompanying regulations grows directly out of the General Plan, which was recently updated by the City of Ceres in 2018. Due to the pandemic, the City of Ceres has yet to update it Zoning Code to bring it into consistency with Ceres General Plan 2035. Once this task is accomplished, the City will have a robust set of plans and regulatory tools established that will provide ample opportunities for a full range of housing types and affordability levels. The General Plan, itself, contains an implementation program that sets as one of the City’s top priorities the update of its Zoning Ordinance (see Implementation Action 2.1, on Page A-7 of the 2018 General Plan).
This 6
th Cycle Housing Element likewise contains Program 1.9 (see Chapter 2), which commits the City to updating its Zoning Code to become fully consistent with the newly adopted General Plan.
This must include, but is not limited to, Zoning Code changes that implement new and revised residential and mixed-use general plan designations and Zoning Map changes that ensure that allowable locations of residential and mixed-use zoning districts are fully consistent with the General Plan Land Use Diagram.
Allowed uses and key development standards currently contained in the Ceres Zoning Code (Municipal Code Title18) are summarized in Table B-2, Residential Development Standards. As stated above, these standards and not fully consistent with the recently adopted Ceres General Plan 2025.
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Appendix B – Housing Constraints B-5 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table B-2 Residential Development Standards
Zoning Minimum Lot Area
(sq ft)
Density
(du/ac)
Setbacks (ft) Maximum
Height (ft) Allowed Uses Maximum Lot Coverage
Front Side Rear
R-A 43,560 1 du/ac 25 12 25 25
(2 stories)
SFD; Residential care facilities;
Transitional housing; Supportive housing 15% of site area4 R-1 Interior lot – 6,200
Corner lot – 7,500
7 du/ac
20 Interior –
12 Exterior -
15 15% yard depth
25 ft max
25 (2 stories)
SFD; Duplex (Corner Lot);
MH; Residential care facilities;
Transitional housing; Supportive housing
40% of site area5
R-2
SFD Interior lot – 6,200
SFD Corner lot – 7,500
All other principal uses
– 9,000
7 du/ac (LDR)
10 du/ac
(MDR)
20 Interior –
12 Exterior --
10 20% yard depth
25 ft max
25 (2 stories)
SFD; Duplex; Cluster Dwellings; Condos;
MH; Residential care facilities;
Transitional housing; Supportive housing
SFD – 40%5
Interior lots – 50%
Corner lots – 45%
R-3 6,000 12 du/ac 20
Interior –
12 Exterior –
20 20% yard depth
25 ft max
40 (3 stories)
SFD; Duplex; Cluster Dwellings; Condos;
MFD; MH; Residential care facilities;
Transitional housing; Supportive housing
SFD – 40%
Interior lots – 50%
Corner lots – 45%
R-4 5,300 20 du/ac 20
Interior –
12 Exterior –
20 20% yard depth
25 ft max
35 (3 stories)
SFD; Duplex; Cluster Dwellings; Condos;
MFD; MH; Residential care facilities;
Transitional housing; Supportive housing;
Employee housing
SFD & Duplex – 40%5
Interior lots – 60%
Corner lots – 54%
R-5 5,300 30 du/ac 20
Interior –
12 Exterior –
20 20% yard depth
25 ft max
40 (3 stories)
SFD; Duplex; Cluster Dwellings; Condos;
MFD; MH; Residential care facilities;
Transitional housing; Supportive housing;
Employee housing
SFD & Duplex – 40%6
Interior lots – 60%
Corner lots – 54%
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Appendix B – Housing Constraints B-6 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Zoning Minimum Lot Area
(sq ft)
Density
(du/ac)
Setbacks (ft) Maximum
Height (ft) Allowed Uses Maximum Lot Coverage
Front Side Rear
P-C1,2,3,9 - - - - - - SFD; Duplex; MFD Medium; MFD High; ADU; MH
SFD – 40%
Duplex interior lots – 50%
Duplex corner lots – 45%
MFD medium interior lots – 50%
MFD medium corner lots – 45%
MFD high interior lots – 60%
MFD high corner lots – 54%
AP 8,000 25 du/ac - - - - Residential (CUP); MFD
(CUP) -
C-1 See note.8 - 10 min.
Interior – 5
min.
Exterior –
10 min.
10 min. 25
(two stories) Residential (accessory) 50%
C-2 - - 10 min.
Interior – 5
min.
Exterior –
10 min.
10 min. 25
(two stories) Residential (accessory) 50%
M-17 10,000 - - - - - Emergency Shelter (permitted);
Employee Housing (accessory use) 60% of site area
M-27 - - - - - - Employee Housing (accessory use) 60% of site area SOURCE: City of Ceres, Municipal Code Tile 18 Zoning, 2023 NOTES: 1 No requirements for individual dwelling units, however, total lot area of the P-C district shall not be less than one acre. 2 Setback requirements shall be approved by Planning Commission. 3 Building height requirements shall be approved by Planning Commission. 4 Additional 10% allowable lot coverage is provided for accessory structures proposed on single-family lots when dwelling footprint has reached 15% maximum. 5 Additional 10% allowable lot coverage is provided for accessory structures proposed on single-family lots when dwelling footprint has reached 40% maximum. 6 Additional allowable lot coverage is provided for accessory structures proposed on single-family lots when dwelling footprint has reached 40% maximum. 7 Subject to Planning Commission approval for Accessory Use. 8 For all principal uses, the minimum lot area shall be 10,000 square feet. For uses requiring a use permit, the minimum lot area shall be as specified by the Planning Commission. 9 Lot dimension requirements shall be approved by Planning Commission.
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Appendix B – Housing Constraints B-7 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Yard Requirements & Setbacks
A yard is defined as any open space other than a court on the same lot with a building or a dwelling group, which space is generally open from the ground to the sky, except for the projections and/or accessory buildings permitted in this title (Ceres Municipal Code 18.02.010). For all residential uses, front yard and exterior side yard areas of single-family homes shall be landscaped and maintained.
Front-yard setbacks can significantly affect multi-family development by influencing the overall building footprint and density of the development, which impacts cost and development feasibility.
Setback requirements mandate the distance between the front property line and the nearest point of the building, creating space between the street and the structure. As shown in Table B-2 above, front-yard setbacks for the R-3, R-4, and R-5 Zoning Districts are a minimum of 20 feet. This poses a potential constraint for the development of affordable multi-family development in these zones.
Lot Coverage
Lot coverage is defined as the portion of a lot or building site which is occupied by any building, accessory structure or covered patio used for human occupancy (Ceres Municipal Code 18.02.010).
Lot coverage is regulated to manage densities in specific zoning districts. As shown in Table B-2 above, zoning districts permitting multi-family development, including R-3, R-4, and R-5, impose a maximum lot coverage of 50 percent for interior lots and 45 percent for corner lots in the R-3 Zone, and 60 percent for interior lots and 54 percent for corner lots in the R-4 and R-5 Zones. This permitted maximum lot coverage presents a potential challenge for the development of multi-family housing, which typically requires higher lot coverages compared to single-family or duplex housing types. Therefore, the current Zoning Code indirectly limits the types of development in the R-3, R-4, and R-5 Zones to those that have a smaller footprint.
Floor Area Ratio
Floor Area Ratio (FAR) expresses the ratio of building square footage to land square footage and allows for flexibility in design as long as other development standards (such as height and setbacks) are compliant. FAR regulations influence the scale, density, and character of development within a community. Higher FARs generally allow for more intense development with taller buildings and greater floor area, while lower FARs result in less dense development with shorter buildings and less floor area. FAR requirements for all residential Zoning Districts is provided below.
R-A Zoning District FAR Requirements
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.15:1; and
Two-story buildings: maximum allowable FAR is 0.24:1.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-8 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The permitted FAR for the R-A Zoning District aligns with the customary low-density residential agriculture uses, serving as a transitional buffer between residential and agricultural land uses. These parcels are designed to be expansive, with only a portion of the lot allocated for a single-family residence.
R-1 Zoning District FAR Requirements
Interior Lots
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.40:1.0; and
Two story buildings: maximum allowable FAR 0.54:1.0.
Corner Lots
Single story buildings and the first story of all multiple story buildings: maximum FAR is
0.40:1.0; and
Two-story buildings: maximum allowable FAR 0.64:1.0.
The allowed FAR for the R-1 Zoning District reflects the typical characteristics of low-density residential land use, prioritizing spacious lots with relatively small building footprints.
R-2 Zoning District FAR Requirements
Single-family refer to R-1 permitted FAR.
All Other Interior Lots
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.50:1.0.
All Other Interior Lots
Two-story buildings: maximum allowable FAR is 0.80.1.0.
All Other Corner Lots
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.45:1.0.
All Other Corner Lots
Two-story buildings: maximum allowable FAR is 0.72.1.0.
Similar to the R-1 Zoning District, the R-2 Zoning District permits FARs that correspond to low- density residential uses, fostering the development of single-family residences up to two stories in height.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-9 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 R-3 Zoning District FAR Requirements
Single-family refer to R-1 permitted FAR.
Single-Family and Two-Family Corner Lots
Single story buildings and first story of all multiple buildings: maximum allowable FAR 0.40:1.0; and
Two-story buildings: maximum allowable FAR is 0.64:1.0.
All Other Interior Lots
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.50:1.0;
Two story buildings: maximum allowable FAR is 0.80.1.0; and All 2.5 story building: maximum allowable FAR is 0.96:1.0.
All Other Corner Lots
Single story buildings and first story of all multiple story buildings: maximum allowable FAR is
0.45:1.0;
Two-story buildings: maximum allowable FAR is 0.72.1.0; and All 2.5 story buildings: maximum allowable FAR 0.86:1.0.
As previously mentioned, the City will enact Program 1.9 to prohibit single-family detached residential uses in the R-3, R-4, and R-5 Zoning Districts (see Chapter 2). Upon analyzing the permitted FAR in the R-3 Zoning District for all uses except single-family lots, it appears the permitted FAR limits development for single-story buildings on interior and corner lots. Permitted FAR for single-story buildings on interior lots is 0.50 and 0.45 on a corner lot. To address this, the permitted FAR for single-story buildings on interior lots should be increased to allow a FAR of at least 0.60 and increase to 0.70 on corner lots.
R-4 Zoning District FAR Requirements
Single-Family Lots
Single story buildings and the first story of all multiple story buildings: maximum allowable FAR is 40:1.0;
Two-story buildings: maximum allowable FAR is 0.64:1.0; and Three-story buildings: maximum allowable FAR is 0.96:1.0.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-10 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Two-Family Interior Lots
Single story buildings and the first story of all multiple story buildings: maximum allowable FAR is 0.50:1.0;
Two-story buildings: maximum allowable FAR is 0.80:1.0; and Three-story buildings: maximum allowable FAR is 1.20:1.0.
All Other Interior Lots
Single-story buildings and the first story of all multiple-story buildings: maximum allowable FAR is 0.60:1.0;
Two-story buildings: maximum allowable FAR is 0.95:1.0; and Three-story buildings: maximum allowable FAR is 1.94:1.0.
Two-family Corner Lots
Single-story buildings and the first story of all multiple story buildings, the maximum allowable FAR shall be 0.45:1.0;
Two-story buildings, the maximum allowable FAR shall be 0.72:1.0; and Three-story buildings, the maximum allowable FAR shall be 1.08:1.0.
All Other Corner Lots
Single-story buildings and the first story of all multiple-story buildings: maximum allowable FAR is 0.54:1.0;
Two-story buildings: maximum allowable FAR is 0.86:1.0; and Three-story buildings: maximum allowable FAR is 1.30:1.0.
Upon analyzing the permitted FAR in the R-4 Zoning District for all uses except single-family lots, it appears the permitted FAR limits development for single-story buildings on corner lots. Permitted FAR for single-story buildings on a corner lot is 0.54. To address this, the permitted FAR for single- story buildings on corner lots should be increased to 0.70 on corner lots.
R-5 Zoning District FAR Requirements
Single-Family Lots
Single story buildings and the first story of all multiple story buildings: maximum allowable FAR is 40:1.0;
Two-story buildings: maximum allowable FAR is 0.64:1.0; and Three-story buildings: maximum allowable FAR is 0.96:1.0.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-11 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Two-Family Interior Lots
Single-story buildings and the first story of all multiple story buildings: maximum allowable FAR is 0.50:1.0;
Two-story buildings: maximum allowable FAR is 0.80:1.0; and Three-story buildings: maximum allowable FAR is 1.20:1.0.
All Other Interior Lots
Single-story buildings and the first story of all multiple-story buildings: maximum allowable FAR is 0.60:1.0;
Two-story buildings: maximum allowable FAR is 0.95:1.0; and Three-story buildings: maximum allowable FAR is 1.94:1.0.
Two-Family Corner Lots
Single-story buildings and the first story of all multiple story buildings: maximum allowable FAR is 0.45:1.0;
Two-story buildings: maximum allowable FAR is 0.72:1.0; and Three-story buildings: maximum allowable FAR is 1.08:1.0.
All Other Corner Lots
Single-story buildings and the first story of all multiple-story buildings: maximum allowable FAR is 0.54:1.0;
Two-story buildings: maximum allowable FAR is 0.86:1.0; and Three-story buildings: maximum allowable FAR is 1.30:1.0.
Upon analyzing the permitted FAR in the R-5 Zoning District for all uses except single-family lots, it appears that the permitted FAR limits the development of single-story buildings on corner lots, allowing a FAR of 0.54:1.0. To address this, the permitted FAR for single-story buildings on corner lots should be increased to allow a FAR of at least 0.70.
Maximum Building Heights
Building height is defined as the vertical distance measured from sole plate to the highest portion of the roof of the building, exclusive of chimneys, ventilators and other exceptions to building height permitted in the zones in which it is located (Ceres Municipal Code 18.02.010). The City’s maximum density of 40 dwelling units per acre is achievable in three to four stories. Currently, the City’s Zoning Code permits a maximum height of up to 35 feet or three stories in the R-4 Zoning District, and up to 40 feet or three stories in the R-3 and R-5 Zoning Districts. These permitted heights are adequate to accommodate multi-family development in these zones.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-12 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Minimum and Maximum Densities
The Ceres Zoning Code currently allows a full range of maximum housing densities from 1 to 30 dwelling units per acre (RA to R-5 Zoning Districts, respectively), but the Zoning Code assigns no minimum densities in any residential zoning district. The absence of minimum densities poses a significant constraint on the development of affordable housing, as it allows the potential for development at considerably lower densities in zones that are intended for high density uses.
With the adoption of Ceres General Plan 2035, the City has established the foundation for significant changes to the Ceres Zoning Code, and one of these changes should be the establishment of minimum development densities for zoning districts that provide opportunities for multi-family housing (see Program 1.9, mentioned above, which commits the City to updating its Zoning Code to implement Ceres General Plan 2035). Additionally, the program establishes minimum densities in accordance with the general plan for the R-3, R-4, and R-5 Zoning Districts.
Parking Standards
Excessive parking standards that are not reflective of actual parking demand can pose a significant constraint to housing development by increasing development costs and reducing the potential land available for project amenities or additional units. Parking requirements according to zoning designation are summarized in Table B-3, Parking Requirements.
These parking standards are typical for Central Valley cities. However, they do have the potential to pose undue constraints on the development of affordable housing. The City will implement Program 2.6, which aims to decrease parking requirements for multi-family residential zoning districts (R-3, R-4, and R-5). Under this program, one and a half (1.5) parking spaces would be required regardless of the number of bedrooms, with a further reduction to one-half (0.5) parking spaces for affordable residential units (see Chapter 2). As a result of these concessions, potential constraints to development associated with existing parking standards will be reduced.
Table B-3 Parking Requirements
Zoning
Designation Parking Requirement
R-A SFD: 2 per unit
Residential care facilities: 1 space for every 3 licensed beds R-1 SFD: 2 fully enclosed and covered off-street parking spaces per unit Residential care facilities: 1 space for every 3 licensed beds R-21
SFD: 2 fully enclosed and covered off-street parking spaces per unit Duplex: 1.5 spaces per unit, one of which shall be covered Residential care facilities: 1 space for every 3 licensed beds
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-13 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Zoning
Designation Parking Requirement
R-32 SFD: 2 fully enclosed and covered off-street parking spaces per unit All other residential uses: 1.5 spaces/1-bedroom; 2 spaces/2-bedroom; 2.5 spaces/3+-bedroom one of which shall be covered
Residential care facilities: 1 space for every 3 licensed beds R-42 SFD: 2 fully enclosed and covered off-street parking spaces per unit All other residential uses: 1.5 spaces/1-bedroom; 2 spaces/2-bedroom; 2.5 spaces/3+-bedroom one of which shall be covered
Residential care facilities: 1 space for every 3 licensed beds R-52 SFD: 2 fully enclosed and covered off-street parking spaces per unit All other residential uses: 1.5 spaces/1-bedroom; 2 spaces/2-bedroom; 2.5 spaces/3+-bedroom one of which shall be covered
Residential care facilities: 1 space for every 3 licensed beds P-C3 See note
A-P R-1, R-2, R-3, R-4: 2 fully enclosed and covered off-street parking spaces per unit Residential care facilities: 1 space for every 3 licensed beds C-2 For all mixed-uses, parking requirements of the most intense use shall apply M-1 1 space per employee on the maximum shift
SOURCE: City of Ceres, Municipal Code Title 18 Zoning
NOTES:
1. Other principal uses parking requirements (Municipal Code 18.09.060)
2. For multiple-family residential projects devoted entirely to persons 55 years of age and older, off-street parking requirements shall be as approved by the Planning Commission through the site plan approval process, but in no case shall have less than one space per dwelling unit (Municipal Code 18.10.060)
3. Off-street parking for all uses shall be the same as the requirements specified for the same or similar uses in other sections of this title, as determined by the Director of Community Development, and comply with the standards established in chapter 18.25. The parking or storage of any vehicles within the front yard exterior side yard landscape areas of a single-family residence is prohibited.
Overall Constraints Posed by Residential Development Standards While the Ceres Zoning Code allows for a range of housing types and affordability levels, there are some notable features that limit opportunities for affordable housing. The following includes changes to the Zoning Code in order to facilitate the development of an affordable and diverse housing stock in Ceres:
Prohibit single-family detached residential uses in the R-3, R-4, and R-5 Zoning Districts; Establish minimum density requirement of 7 dwelling units per acre in the R-3 Zoning District; Establish minimum density requirement of 12 dwelling units per acre in the R-4 Zoning District; Establish minimum density requirement of 20 dwelling units per acre in the R-5 Zoning District; Amend development standards for the R-3, R-4, and R-5 Zoning Districts to permit a minimum lot coverage of 70 percent and maximum front-yard setbacks of 15 feet;
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-14 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Increase permitted FAR in R-3 Zoning District to allow a FAR of at least 0.60 for single-story buildings on interior lots and a FAR of at least 0.70 for single-story buildings on corner lots; Increase permitted FAR in R-4 Zoning District to allow a FAR of at least 0.70 for single-story buildings on corner lots;
Increase permitted FAR in R-5 Zoning District to allow a FAR of at least 0.70 for single-story buildings on corner lots;
Reduce parking standards for R-3, R-4, and R-5 Zoning Districts to require one and a half (1.5) parking spaces regardless of the number of bedrooms and further reduce to on-half (0.5) parking spaces for affordable residential units;
Permit single-room occupancy (SROs) in all mixed-use districts by-right, requiring no discretionary review;
Permit emergency shelters in the Highway Commercial Zone (H-1) and PC Zone with Service Commercial General Plan Designation;
Amend the written development standards for emergency shelters to allow proximity requirements in accordance with State law (Government Code Section 65583.(a)(4)), such that emergency shelters shall not be required to be more than 300 feet apart; Amend the written development standards for emergency shelters to require parking consistent with AB 139, requiring only sufficient parking to accommodate all staff working in the emergency shelter;
Permit mobile/manufactured homes in all zones where single-family residential is allowed, in compliance with State requirements;
Permit low-barrier navigation centers by-right in areas zoned for mixed-use and nonresidential zones permitting multifamily uses; and
Codify SB 9 regulations to facilitate new construction on single-family parcels (Program 1.9).
The changes to the Ceres Zoning Code discussed above will be regulated through Program 1.9, Program 2.6, and Program 3.7 included in Chapter 2 of the housing element. Once implemented, these programs should ensure that the Ceres Zoning Code does not constitute an undue constraint on the development of affordable housing in the community.
Specific/Master Plans
The purpose of a Specific Plan is to implement the goals and policies of the General Plan in a detailed manner that is both area and project specific. A Specific Plan contains detailed development standards and implementation measures to which projects within a specified geographic area must adhere. Specific Plans are often used to achieve goals that are not ordinarily attainable through zoning alone. The following are brief descriptions of the City’s adopted Specific Plans that influence the development of housing.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-15 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Mitchell Road Corridor Specific Plan
The Mitchell Road Corridor Specific Plan was adopted by the Ceres City Council in September 1995. The purpose of the Mitchell Road Corridor Specific Plan is to establish comprehensive guidance and regulations for the development of approximately 450 acres. The Specific Plan establishes development regulations, policies, and programs for the implementation of the approved land use. The Specific Plan allows for the following residential land uses: Low Density Residential (5-7 du/ac), Medium Density Residential (7-15 du/ac), High Density Residential (15-25 du/ac), Mobile Homes, and Condo-Group Dwellings. Densities permitted within the Specific Plan range between 5 to 25 dwelling units per acre.
Eastgate Master Plan
The Eastgate Master Plan was adopted by the Ceres City Council in February 2004. The purpose of the Eastgate Master Plan is to create a unique and innovative community design with respect to the development of the project area. The Master Plan allows the following residential land use and zoning classifications: Very-Low Density Residential (4.5 du/ac); Low Density Residential (7 du/ac); Single-Family Medium Density Residential (12 du/ac); Multifamily Medium Density Residential (12 du/ac). Densities permitted within the Master Plan range between 4.5 to 12 dwelling units per acre.
Downtown Specific Plan
The Ceres Downtown Specific Plan was adopted by the Ceres City Council in January 2011. The purpose of the Downtown Specific Plan is to implement a vision for Downtown Ceres which supports the resurgence of the downtown area as a key destination point. The Downtown Specific Plan aligns with the General Plan to promote a mixed-use, pedestrian oriented urban center. The Specific Plan allows the following land use and zoning classifications for each of the four districts:
Downtown Mixed-Use (Community Commercial (C-2)), Civic Center/Office (Administrative Professional (A-P)), SR 99 Gateway Commercial (Highway Commercial (H-1)), and Eastern Residential (Medium High Density Multifamily Residential (R-4)). Of the four districts, all allow residential except SR 99 Gateway Commercial. Densities permitted within the Specific Plan range between 25 to 40 dwelling units per acre.
West Landing Specific Plan
The West Landing Specific Plan was adopted by the Ceres City Council in April 2011 and annexed in 2012. The purpose of the West Landing Specific Plan (WLSP) is to implement a comprehensively planned community that provides an appropriate balance of land uses and systematically constructed infrastructure and services to adequately and responsibly support development across 960 acres of developed, underdeveloped and agricultural land. The West Landing Specific Plan aligns with the General Plan to promote a balance of uses including, creating a livable, walkable environment, designating sufficient commercial and employment-oriented land uses, and providing a diversity of
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-16 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 housing choices while also protecting adjacent farmland. The Specific Plan allows for the following residential land uses: Very Low Density Residential (4.5 du/ac), Low Density Residential (7 du/ac), Medium Density Residential (12 du/ac), High Density Residential I (18 du/ac), High Density Residential II (25 du/ac), Neighborhood Commercial (18-25 du/ac), and Office (18-25 du/ac).
Densities permitted within the Specific Plan range between 4.5 to 25 dwelling units per acre. In the future, the exact layout of various land use designations within the West Landing Specific Plan may need to shift and change in order to achieve market feasibility and successful progression of development. Any such adjustments would be reviewed for compatibility with the West Landing Specific Plan, the Ceres General Plan, the Housing Element, the California Environmental Quality Act, the Ceres Municipal Code, and adhere to State law with regard to “no net loss” of affordable housing.
Whitmore Ranch Specific Plan
The purpose of the Whitmore Ranch Specific Plan is to implement a comprehensively planned residential community that promotes diverse housing options, facilitates pedestrian connectivity, and ensures adequate access to existing developed areas and community services. The Specific Plan allows for the following residential land uses
1: Low Density Residential (7 du/ac), Medium Density
Residential (13 du/ac), and High Density Residential (25 du/ac). Densities permitted within the Specific Plan range between 7 to 25 dwelling units per acre. This area was annexed in 2019.
Zoning for a Variety of Housing Types
California Housing Element Law requires the housing element to provide for a variety of housing types including multifamily rental housing, factory-built housing, mobile homes, housing for agricultural employees, supportive housing, single-room occupancy units, emergency shelters, and transitional housing (Government Code Section 65583 and 65583.2). Providing development opportunities for a variety of housing types promotes diversity in housing price, style, and size, and contributes to neighborhood stability by offering more affordable housing and accommodating a diverse income mix. Table B-4 shows the housing types permitted in Ceres.
1 Densities are assumed average densities (units/acres); City of Ceres, Whitmore Ranch Specific Plan, 2018.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-17 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table B-4 Ceres Permitted Housing Types
Housing Types R-A R-1 R-2 R-3 R-4 R-5 C-F PC M-1 M-2 A-P C-1 C-2 C-3 H-1 A-O Single-Unit Dwellings P P P P P P - P15 - - CUP A17 A18 - - - Medium Density Multi-Unit
Dwellings - - - P6 P10 P13 - P15 - - CUP A17 A18 - -
Medium-High Density Multi-
Unit Dwellings - - - - P11 P13 - P15 - - CUP A17 A18 - - - Duplex - P1 P4 P4 P9 P13 - P15 - - CUP A17 A18 - - -
Accessory Dwelling Units2 A A A A A A - P - - - - - - - - Group and Cluster Dwellings,
Condominiums - - P4 P8 P9 P13 - P15 - - CUP A17 A18 - - - Mobile Homes/Manufactured
Homes - P P P P P - P14 - - - - - - - -
Rooming/
Boarding A19 - A5 A7 A12 - - - - - CUP A17 A18 - - -
Single-Room Occupancy P P P P P P
Residential Care Facility3 P P P P P P - P - - CUP A17 A18 - - - Transitional Housing3 P P P P P P - P - - CUP P17 P18 - - -
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-18 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Housing Types R-A R-1 R-2 R-3 R-4 R-5 C-F PC M-1 M-2 A-P C-1 C-2 C-3 H-1 A-O Supportive Housing3 P P P P P P - P - - CUP P17 P18 - - - Employee Housing - - - - P16 P16 - - A A CUP A A - - -
Emergency Shelters - - - - - - - P20 P20 - - - - - P20 - Low Barrier Navigation Centers - - - - - - - - - - - - - - - - SOURCE: City of Ceres Municipal Code, 2023
KEY: P: Permitted; CUP: conditional use permit required; A: accessory use; -: not permitted.
NOTES:
1 Subject to the provisions of Section 18.08.020.
2 Subject to the provisions of Section 18.28.060.
3 Subject to the provisions of Section 18.02.010.
4 Subject to site plan approval under subsection 18.09.060.I. 5 Subject to the provisions of Section 18.09.030.
6 Subject to site plan approval under subsection 18.10.060.I. 7 Subject to the provisions of Section 18.10.030.
8 Subject to site plan approval under subsection 18.10.060.I. 9 Subject to site plan approval under subsection 18.11.060.I. 10 Subject to site plan approval under subsection 18.11.060.I. 12 Subject to the provisions of Section 18.11.030.
13 Subject to site plan approval under subsection 18.12.060.I. 14 Subject to the development standards of Section 18.28.070. 15 Subject to the development standards of Section 18.13.050. 16 No more than 6 workers
17 Residential uses permitted as accessory use that are clearly secondary and incidental to the principal use 18.15.030. 18 Residential uses permitted as accessory use that are clearly secondary and incidental to the principal use 18.16.030. 19 Rooming and boarding of not more than three persons per single-family dwelling unit. 20 Subject to the provisions of Section 18.28.100.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-19 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Single-Family Dwelling Units
A single-family dwelling is defined as a detached building designed or used exclusively for the occupancy of one family and having a kitchen facility for only one family. Single-family dwelling units are permitted in all residential zones, as well as the Planned Community (P-C) zone and as accessory uses in the Neighborhood Commercial (C-1) and Community Commercial (C-2) zones.
Multiple-Family Dwelling Units
A multiple-family or multifamily dwelling is defined as a detached building designed and used for occupancy by three or more families, all living independently of each other and having separate kitchen and sanitary facilities for each family. Multifamily dwelling units are permitted according to density.
Medium density multifamily dwelling units are permitted in residential zones R-3—R-5 and the Planned Community (P-C) zone. Additionally, they are permitted as an accessory use in the Neighborhood Commercial (C-1) and Community Commercial (C-2) zones, and with a conditional use permit in the Administrative Professional (A-P) zone.
Medium-high density multifamily dwelling units are permitted in residential zones R-4—R-5 and the Planned Community (P-C) zone. Additionally, they are permitted as an accessory use in the Neighborhood Commercial (C-1) and Community Commercial (C-2) zones, and with a conditional use permit in the Administrative Professional (A-P) zone.
Accessory Dwelling Units
Accessory Dwelling Units (ADU) often provide housing for seniors, students, family members, and single-parent households. As a result, it is regarded that ADUs provide naturally occurring affordable housing.
On March 23, 2020, the City of Ceres City Council adopted Ordinance No. 2020-1059, allowing ADUs in all residential zones (R-A, R-1, R-2, R-3, R-4, R-5) as well as the Planned Community (P-C) District. According to Planning and Building Division Staff, the City has issued six ADU permits between 2019-2022.
Mobile and Manufactured Housing
State law requires manufactured homes be permitted equally anywhere that single-family homes are permitted. Mobile homes are an affordable homeownership for farmworkers and other very low-, low-, and moderate-income households. Mobile and manufactured homes are permitted in all residential zones (R-1 through R-5), except the Residential Agriculture (R-A) zone. According to the Ceres 2035 General Plan, mobile and manufactured homes are a permitted use in the Residential Agriculture (RA) land use designation. However, in the Ceres Municipal Code, the R-A Zone does not permit mobile and manufactured homes.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-20 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 To remove barriers to the development of mobile and manufactured housing, the City has included Program 1.9 to amend the Zoning Code to permit mobile and manufactured housing in all zones, including the R-A Zone, where single-family residential is allowed, in compliance with Government Code Section 65852.3(a).
Single-Room Occupancy/Rooming and Boarding
A single-room occupancy (SRO) unit usually is small, between 200 to 350 square feet. These units provide a valuable source of affordable housing for individuals and can serve as an entry point into the housing market for people who previously experienced homelessness. SRO units can be hotel, boarding houses, or just rooms rented out on a monthly basis in a private residence.
The Ceres Zoning Ordinance does not have a specified definition of a single-room occupancy (SRO) unit, but instead defines a boarding house or rooming house as, “a building containing a single dwelling unit, where lodging is provided with or without meals for compensation to not more than three (3) non-transients.” This definition is applicable to single or multifamily dwelling units, rather than hotels. Rooming and boarding is permitted as an accessory use in residential zones R-A, R-2, R-3, and R-4, as well as Neighborhood Commercial (C-1) and Community Commercial (C-2) zones. Additionally, rooming and boarding is permitted with a conditional use permit in the Administrative Professional (AP) zone.
To facilitate the construction of SROs, the City has included Program 1.9 to amend the Zoning Code to define SROs and to permit them by-right, requiring no discretionary review in all mixed-use districts (see Chapter 2).
Residential Care Facility
A residential care facility is defined as a state-licensed structure operating as a lodging house in which nursing, dietary, and other personal services are rendered to convalescents, invalids, or aged persons in return for compensation, but in which no surgical or other primary treatments, such as customarily provided in hospitals or sanitariums are performed, and in which no persons are kept or served who normally would be admissible to a mental hospital. Residential care facilities include convalescent homes, rest homes, nursing homes, and other residential care facilities as deemed similar by the Director of Community Development.
In November 2015, the City of Ceres City Council adopted Ordinance No. 2015-1032 amending the Zoning Ordinance to allow Residential Care Facilities as a principal use in all residential zones.
Additionally, Residential Care Facilities are permitted in the Administrative Professional (A-P) zone with a conditional use permit and in the Neighborhood Commercial (C-1) and Community Commercial (C-2) zones as accessory uses “clearly secondary and incidental to the principal use.”
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-21 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Currently, the City does not regulate the permittance of unlicensed residential care facilities or group homes. Program 1.9 has been included to establish unlicensed residential care facilities as a permitted use where single-family uses are permitted, subject only to the generally applicable, nondiscriminatory health, safety, and zoning laws that apply to all single-family residences (see Chapter 2).
Transitional and Supportive Housing
Transitional Housing is a type of supportive housing used to facilitate the movement of people experiencing homelessness into permanent housing. A person experiencing homelessness may live in a transitional apartment for a predetermined period of time, however not less than six months while receiving supportive services that enable independent living. Supportive housing is permanent rental housing linked to a range of support services designed to enable residents to maintain stable housing and lead fuller lives.
2 In December 2015, the City Council adopted Ordinance No. 2015-1034 amending the Zoning Code to permit Transitional and Supportive Housing in all residential zones (R-A—R-5) and zones that permit residential uses as a by-right use requiring no discretionary review. Program 1.6 addresses SB 2 requirements for transitional and permanent supportive housing in accordance with Government Code Section 65651 (see Chapter 2).
Homeless Shelter/Emergency Shelter
Per Government Code, § 65583(a)(4), all jurisdictions must identify a zone(s) where emergency shelters are allowed by-right as a permitted use without a conditional use or other discretionary permit. Local jurisdictions are allowed to set standards for the development of emergency shelters but are limited to objective standards that address a specific and limited set of criteria. As the approval of emergency shelters is a non-discretionary action, it qualifies as exempt under the California Environmental Quality Act (CEQA). Housing Element updates must include an analysis of any development standards for emergency shelters to confirm that they comply with the state mandate.
In March 2020, the City of Ceres City Council adopted Ordinance No. 2020-1059, permitting emergency shelters by-right in the Light Industrial (M-1) zoning district, as well as providing development standards.
3 Ceres Zoning Code defines emergency shelters as housing with minimal supportive services for homeless persons that is limited to occupancy of six (6) months or less by a homeless person. No individual or household shall be denied emergency shelter because of an inability to pay. Per Municipal Code Section 18.28.100(B)(3), development standards for emergency shelters in Ceres are as follows:
2 Government Code §65582 defines Transitional and Supportive Housing in full. 3 City of Ceres Municipal Code Ordinance No. 2015-1026
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-22 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Number of beds. A single emergency shelter may have up to 30 beds. An emergency shelter with a capacity greater than 30 occupants shall be subject to the approval of a conditional use permit;
Length of stay. An emergency shelter shall operate on a first-come, first-serve basis with clients only permitted on site and admitted to the facility between 5:00 PM and 7:00 AM (PST). Clients must vacate the facility by 8:00 AM and the facility shall not guarantee a bed for the next night; Location requirement. A minimum distance of 300 feet shall be maintained from any other emergency shelter, as measured from the property line;
Outdoor Activities. Any outdoor storage, including, but not limited to, items brought on site by clients for overnight stays, shall be screened from public view by a minimum seven-foot-tall decorative wall or fence. Service animals may accompany a disabled person, and pets may be permitted if contained within an adequately sized and sturdy pet carrier. Shopping carts shall not be permitted on site. Individual lockers shall be provided to allow shelter clients to temporarily store their private belongings while using the shelter. No person shall be allowed to camp on the premises or sleep on the premises outside of the shelter building. Facility Improvements. Facility improvements shall comply with this Code and the most current adopted California Building and Safety Codes, specific to the establishment of dormitories and shall additionally provide:
• Clean sanitary beds and sanitation facilities.
• A minimum of one toilet for every eight beds per gender. • A minimum of one shower for every eight beds per gender. • Private shower and toilet facility for each area designated for use by individual families. • If the shelter accommodates both men and women in the same building, segregated sleeping, lavatory and bathing areas shall be provided. Reasonable accommodation shall be made to provide segregated sleeping, lavatory and bathing areas for families. • Adequate indoor client intake areas (100 square feet minimum) must be provided within the premises for clients and prospective clients to prevent queuing into private sidewalks, parking and access areas, or public right-of-way areas. • Parking for emergency shelters shall be provided at a rate of one space per staff member plus one space per six occupants allowed at the maximum capacity. • Bicycle rack parking shall be provided at a minimum of ten bicycles per facility. • Adequate exterior lighting shall be provided for security purposes. The lighting shall be stationary, directed away from adjacent properties and public rights-of-way, and of an intensity compatible with the neighborhood.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-23 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 • The facility may provide the following services in a designated area separate from sleeping areas:
A counseling center for job placement, educational, health care, legal services, or mental health services.
Laundry facilities to serve the number of clients at the shelter. Central cooking, kitchen facilities, and dining areas. Recreation areas. If outdoors, such area shall be visually separated from public view by a minimum six-foot tall decorative screen wall or fence.
Management Plan. An emergency shelter management plan shall be submitted to the City.
In accordance with AB 139, the City is taking actions to ensure that zoning, definitions, and development standards do not preclude the development of emergency shelters. The City has included Program 1.9 to amend the Zoning Code to comply with State law including the following actions (see Chapter 2):
Amend the definition of emergency shelters in compliance with AB 2339; Amend the emergency shelter development standards to allow proximity requirements in accordance with Government Code Section 65583.(a)(4), such that emergency shelters shall not be required to be more than 300 feet apart (see Chapter 2); Permit emergency shelters by-right in the Highway Commercial (H-1) Zone and Planned Community (PC) Zone with Service Commercial General Plan Designation; Revise parking requirements outlined in the development standards for emergency shelters to be consistent with AB 139, requiring only sufficient parking to accommodate all staff working in the emergency shelter; and
Review all other development standards and make necessary revisions to ensure consistency with State law.
As described in Appendix A of the Housing Element, during the 2023 Point-in-Time (PIT) Count, 17 homeless individuals were counted in Ceres. The City has approximately 6.38 acres of vacant or underutilized land within its M-1 zone district. This amount of vacant land is sufficient to accommodate the existing and anticipated homeless population in the City of Ceres. The majority of parcels located within the M-1 Zoning District are typically one (1) acre or less, and are suitable for the development of an emergency shelter based on the size needed for structures, parking, etc. to accommodate one or more facilities with 17 beds. As mentioned above, the City will amend the Zoning Code to also permit emergency shelters by-right in the Highway Commercial (H-1) Zone and the Planned Community (PC) Zone with Service Commercial General Plan Designation. The City’s M-1, H-1, and PC zones are located in close proximity to government services, commercial land uses, transportation corridors, and have the capacity in land to accommodate the City’s need for an emergency shelter.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-24 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Development standards for the M-1, H-1, and PC Zones are detailed in Table B-5. Development standards for the M-1 and H-1 zones do not pose barriers to the development of emergency shelters. Development standards for lot area, lot coverage, setbacks, FAR, and allowed density are reasonable and do not hinder the development of emergency shelters. However, height requirements in the M-1 Zone are not defined and requires Planning Commission approval, which consists of a single hearing to determine the maximum allowed building height. This presents a lack of clarity for developers and uncertainty for approval of development projects. To remove these potential constraints to development, Program 1.9 establishes an amendment to the Municipal Code to identify a maximum height limit of 50 feet, requiring no Planning Commission approval (see Chapter 2).
In the PC Zone, Planning Commission approval is required for setbacks, FAR, and height. The PC Zoning District is understood as a “boutique” zoning district, which has been utilized to facilitate specific development throughout the city. As previously mentioned, the City’s lack of defined approval findings generally increases uncertainty for residential development projects. Program 1.14 establishes an amendment to the Zoning Code to adopt objective criteria for approval findings (see Chapter 2). This is aimed at increasing approval certainty for project applicants and developers alike.
The PC Zoning District will be subject to these approval findings once adopted, which will also increase approval certainty in this zoning district. While approval of development standards in the PC Zoning District may be made at a single hearing of the Planning Commission, the increased level of review may present minor constraints to development.
The vacant parcels available for development of an emergency shelter listed in Table B-6 meet the minimum development standards outlined in Table B-5.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-25 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table B-5 Development Standards in M-1, H-1, and PC Zones Zoning
Designation
Lot Area
Sq. Ft.
Lot Coverage/
Dimensions Setbacks FAR Height Density
M-1 Min.
10,0002
Max. Coverage: 60%
Min. Width: 100 ft
Min. Depth: 100 ft
Front: 15 ft min.
Side:
interior/rear no
requirements;
Exterior 15 ft
min.
Max.
0.50:1.03 See note.1 No
requirements
H-1 Min.
10,0004
Max. Coverage 60%
Min. Width: non-cul-
de-sac lots: 100 ft
Min. Width: cul-de-sac
or curvilinear lots: 70 ft
Min. Depth: 100 ft
Front: 10 ft min.
Side: 10 ft min.
interior /exterior
Rear: 10 ft min
1-Story of all
buildings:
max.
0.50:1.0
2-Story:
max.
0.80:1.0
3-Story:
max.1.54:1.0
Main
buildings:
35 ft. (3-
stories)
Accessory
buildings:
15 ft. (1-
story)
No
requirements
PC (subject to
Specific Plan
regulations)
N/A
SFD: Max. Coverage
40%
Duplex: Max Coverage
interior lot 50%; corner
lot 45%
Medium density MFD:
Max Coverage interior
lot 50%; corner lot
45%
Medium high density
MFD: Max. Coverage
interior lot 60%; corner
lot 54%
Lot dimensions
5 See note.6 See note. 7 See note.8 See note.9
SOURCE: City of Ceres
NOTES: 1 The height of all main and accessory buildings erected in the M-1 zone shall be as approved by the Planning Commission except those areas of an M- 1 zone that fall within the area designated as an Airport Overlay Zone, which shall comply to the height limitations prescribed by that Zone. 2 For all principal uses minimum lot area is 10,000. Uses requiring Use Permit are specified by Planning Commission. 3 For all buildings and the first story of all multiple-story buildings, the maximum allowable FAR shall be 0.50:1.0. For all multiple-story buildings, the maximum allowable FAR shall be as approved by the Planning Commission. 4 For all principal uses, the minimum lot area shall be 10,000 square feet. For uses requiring a use permit, as specified by the use permit. 5 All lot dimensions shall be approved by the Planning Commission. 6 All setback requirements in the P-C Zone shall be approved by the Planning Commission, excluding requirements for accessory structures, minor alterations and additions.
7. FAR in P-C Zone is as approved by Planning Commission. 8 Building height in the P-C Zone is as approved by the Planning Commission, except any area that falls within the area designated as an airport overlay zone shall comply with the height limitations prescribed by that zone, if they are more restrictive than those prescribed by the master plan. 9 The population density for all residential uses shall not exceed the density as established by the general plan.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-26 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City has identified five (5) vacant parcels within the M-1, H-1, and PC zones to demonstrate sufficient capacity to accommodate the need for emergency shelters. At 200 square feet per bed, 25 beds could be accommodated in a building of approximately 5,000 square feet, which would allow a buffer of eight (8) additional beds beyond the City’s existing need of 17 beds. Table B-6 shows the capacity for emergency shelters in the five (5) identified vacant sites located in the M-1, H-1, an PC Zones.
As shown in Table B-6, the smallest identified parcel is 0.36 acres (15,681.6 square feet) which would allow up to 39 beds assuming a 50 percent development scenario. This provides more than double the number of beds needed to accommodate the homeless individuals counted in the 2023 PIT Count, providing capacity for existing and future persons experiencing housing insecurity.
Assuming all five (5) sites were used for emergency shelters and developed at 50 percent, approximately 961 beds could be accommodated.
Table B-6 Capacity for Emergency Shelters
Zoning
Designation Address/APN Parcel Size
(Acres) Existing Use
Number of Beds
using 50%
Development
Scenario
M-1 127-032-010 1.95 Vacant 212
H-1 040-005-022 0.36 Vacant 39
H-1 040-005-012 1.51 Vacant 164
PC 040-008-023 1.47 Vacant 160
PC 040-008-022 3.55 Vacant 386
Total 8.84 961
SOURCE: City of Ceres
NOTES: Number of beds is determined by dividing square footage of site by a minimum of 200 square feet per person/bed per Government Code 65583(3)(I).
Given that the City has property appropriately zoned and available to construct multiple emergency shelters, the City is in compliance with State law. Additionally, the City has included Program 1.9 to establish amendments to the Municipal Code to permit emergency shelters by-right in the H-1 and PC Zones in accordance with State law and to remove barriers to development (see Chapter 2).
Low Barrier Navigation Center
Assembly Bill 101, adopted in 2019, requires a Low Barrier Navigation Center be a use by-right in areas zoned for mixed-use and nonresidential zones permitting multifamily uses if it meets specified requirements as defined by Government Code, §65583.2(i).
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-27 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A Low Barrier Navigation Center is defined as a Housing First, low-barrier, temporary service- enriched shelter focused on helping homeless individuals and families to quickly obtain permanent housing. Low barrier includes best practices to reduce barriers to entry such as, allowing partners, pets, storage of personal items, and privacy (Gov. Code, §65660). If the City receives applications for these uses, it will process them as required by State law. Program 3.7 has been set forth (see Chapter 2) to develop by-right procedures for processing Low Barrier Navigation Centers.
Employee and Farmworker Housing
Section 17021.5 of the Health and Safety Code generally requires employee housing for six or fewer persons to be treated as a single-family structure and residential use. No conditional use permit, zoning variance, or other zoning clearance shall be required for this type of employee housing that is not required of a family dwelling of the same type in the same zone.
Ceres Zoning Code defines employee housing as housing for six or fewer workers deemed a single- family structure with a residential land use, and shall be treated the same as a single-family structure with a residential land use, and treated as a single-family dwelling of the same type in the same zone; includes but is not limited to farmworker housing. Employee housing is permitted in residential zones R-4 and R-5, and permitted as an accessory use in the Light Industrial (M-1), General Industrial (M-2), Neighborhood Commercial (C-1), and Community Commercial (C-2) zones.
Additionally, employee housing is permitted with a conditional use permit in the Administrative Professional (AP) zone. Within the City’s R-4 district, the Stanislaus Housing Authority administers the Ceres Farm Labor Project, which provides farmworker housing.
In compliance with Health and Safety Code Sections 17021.5 and 17021.6, Program 3.11 has been included in Chapter 2 of this 6
th Cycle Housing Element to amend the Ceres Zoning Code to permit employee housing for six or fewer persons under the same regulations that would apply to a single- family residential use in the same district. Additionally, Program 3.11 establishes an amendment to the Zoning Code to define and allow employee housing consisting of no more than 12 units or 36 beds to be permitted in the same manner as other agricultural uses in the same zone (Section 17021.6).
Housing for Persons with Disabilities
The Federal Fair Housing Act (FHA) and California Fair Employment and Housing Act (FEHA) prohibit discrimination in housing on the basis of disability status (among other conditions) and require governments to execute reasonable accommodations, modifications or exceptions, to land use regulations, zoning ordinances, permit and processing procedures, and policies and programs to allow a qualified person with a disability to obtain adequate housing.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-28 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Government Code §65583(c)(3) requires the housing element provide a program to “address and where appropriate and legally possible, remove governmental constraints to the maintenance, improvement, and development of housing for persons with disabilities.
Reasonable Accommodation
Reasonable accommodations typically include deviations from development standards and/or building regulations, and expedited processing of applications that consist of housing for persons with disabilities.
In March 2020, the City of Ceres City Council adopted Ordinance No. 2020-1059, revising the Reasonable Accommodations policy and procedures. Chapter 18.41 of the City’s Zoning Code provides policies and procedures for reasonable accommodation in order to promote equal access to housing opportunities.
According to Ceres’ Zoning Code 18.41.010(c), a request for reasonable accommodation may include modification or exception to the rules, standards, and practices for the siting, development, and use of housing or housing-related facilities that would eliminate regulatory barriers and provide a person with a disability equal opportunity to housing of their choice.
Requests for reasonable accommodation go to the Community Development Director for review, unless the project for which the request for a reasonable accommodation is made requires another discretionary permit or approval that is subject to Planning Commission action (as per subsection
18.03.040.B). Then the Planning Commission acts as the decision maker for both the request for reasonable accommodation and the discretionary permit or approval at the same time. As set forth in Municipal Code Chapter 18.34, any person aggrieved by the action of the Director of Community Development or Planning Commission may file an appeal by written notice of appeal, within ten days of the final determination, on a form prescribed by the City which shall be filed with the City Clerk. Appeals of decisions regarding the City’s General Plan must be received within five days of the decision pursuant to Government Code Section 65354.5. All appeals are required to go before the City Council for a public hearing.
To address potential obstacles in the approval process for requests for reasonable accommodation, the City has included Program 3.15 (see Chapter 2). This program proposes an amendment to Municipal Code Chapter 18.34 to clarify the term “aggrieved parties” in relation to reasonable accommodation, and to limit the parties eligible to appeal a request for reasonable accommodation to the applicant or the personal beneficiary.
Per Municipal Code 18.41.040, the following findings of approval are required to grant reasonable accommodation.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-29 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 A. The written decision to approve, conditionally approve, or deny a request for a reasonable accommodation shall be based on the following findings, all of which are required for approval:
1. That the housing, which is the subject of the request for reasonable accommodation, will be used by one or more individuals with a disability protected under the fair housing laws;
2. The requested accommodation is necessary to provide one or more individuals with a disability an equal opportunity to use and enjoy a dwelling;
3. The requested accommodation will not result in a fundamental alteration in the nature of the City's zoning laws, rules, policies, practices, and procedures;
4. The requested accommodation will not, under the specific facts of the case, result in a direct threat to the health or safety of other individuals or substantial physical damage to the property of others.
5. The requested accommodation will not impose an undue financial or administrative burden on the City as "undue financial or administrative burden" is defined in fair housing laws and interpretive case law.
6. In making these findings, the decision maker may approve alternative reasonable accommodations which provide an equivalent level of benefit to the applicant.
B. The City may consider, but is not limited to, the following factors in determining whether the requested accommodation is necessary to provide one or more individuals with a disability an equal opportunity to use and enjoy a dwelling:
1. Whether the requested accommodation will affirmatively enhance the quality of life of one or more individuals with a disability;
2. Whether the individual or individuals with a disability will be denied an equal opportunity to enjoy the housing type of their choice absent the accommodation;
3. In the case of a residential care facility, whether the requested accommodation is necessary to make facilities of a similar nature or operation economically viable in light of the particularities of the relevant market and market participants; and/or
4. In the case of a residential care facility, whether the existing supply of facilities of a similar nature and operation in the community is sufficient to provide individuals with a disability an equal opportunity to live in a residential setting.
C. The City may consider, but is not limited to, the following factors in determining whether the requested accommodation would require a fundamental alteration in the nature of the City's zoning laws, rules, policies, practices, and procedures:
1. Whether the requested accommodation would fundamentally alter the character of the neighborhood;
2. Whether the accommodation would result in a substantial increase in traffic or insufficient parking;
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-30 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025
3. Whether granting the requested accommodation would substantially undermine any purpose of either the City's general plan or applicable specific plan; and/or
4. In the case of a residential care facility, whether the requested accommodation would create an institutionalized environment due to the number of and distance between facilities that are similar in nature or operation.
The City’s current Findings of Approval for requests for reasonable accommodation are lengthy and include subjective findings in sections B and C. The Findings of Approval specified in section A are objective and do not present impediments to providing improvements for requests for reasonable accommodation. To eliminate subjectivity in the review of requests for reasonable accommodation, the City will implement Program 3.15 (see Chapter 2). This program establishes an amendment to the Municipal Code to remove the findings requirements outlined in sections B and C of Chapter
18.41.040. This initiative aims to enhance clarity and eliminate uncertainty surrounding requests for reasonable accommodation.
Further, the City adheres to the 2022 International Building Code, which requires at least 10 percent but not less than one (1) of the multistory dwellings in apartment buildings with three (3) or more dwelling units and/or condominiums with four (4) or more dwelling units must be ADA compliant. 4 Definition of Family
A City’s zoning ordinance may impede the ability of persons with disabilities to obtain adequate and affordable housing based on the definition of “family” or “household.” Specifically, in the case of group homes or care facilities, when the number of family members is limited or requires family or household members be related.
The Ceres Zoning Ordinance defines family as two (2) or more persons related by birth, marriage, or adoption; or an individual or group of persons living together in a dwelling unit. This definition is consistent with state law and does not pose a constraint on the development or attainment of housing for persons with disabilities.
Fees and Exactions
The development of new housing units imposes certain costs upon local government, such as the cost of providing planning services and inspections. In addition, there are long-term costs such as the continued maintenance of a community’s infrastructure and public facilities. In order to pay for such services, local governments charge fees for proposed development applications. These fees and exactions can impact the cost and feasibility of developing the housing as well as its affordability.
They can also involve issues of private property rights. High planning and site development fees can impact property owners’ ability to make improvements or repairs, especially for lower-income households.
4 Source: https://codes.iccsafe.org/content/CABC2022P2/chapter-11a-housing-accessibility
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-31 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Development projects are subject to fees and exactions from a growing number of public entities, ranging from special districts to regional agencies. In order to create a viable development proposal, it is important to estimate the cumulative amount of fees to which the housing development will be subject.
Development Fees
The City of Ceres assesses a number of different types of fees and other public costs on new development. Table B-7 provides a current list of applicable planning fees.
Table B-7 City of Ceres Planning Fees
Application/Permit Type Fee
Site Plan Approval
Site Plan Approval – Custom Residential $100
Site Plan Approval – Commercial/Industrial (Hearing) $1,230 Site Plan Approval Amendment – Commercial/Industrial (Hearing) $1,060 Site Plan Approval Amendment – Commercial/Industrial Staff Level $670 Site Plan Approval – Residential (Hearing) $920
Site Plan Approval Amendment – Residential (Hearing) $920 Site Plan Approval Amendment – Residential (Staff Level) $650 Variance
Variance $1,170
Conditional Use Permit
Hearing, Major $1,400
Hearing, Minor $1,220
Staff Level-Request for Minor Amendment $920
Planned Community Development Plan
Planned Community Development Plan $1,500
Planned Community Development Plan Amendment $1,250
Rezone/Prezone/Planning Community Master Plan $1,440
Tentative Parcel/Tract Maps
Tentative Parcel Map 4 or less $1,940
Tentative Parcel Map 5 or more $2,040
Tentative Tract/Parcel Map Amendment $1,250
Tentative Tract/Parcel Map Time Extension $390
Lot Line Adjustments $910
Time Extension $650
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-32 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Application/Permit Type Fee
Sign Permit $140
Development Agreements/Plans
Development Agreement(a) $2,000 (deposit/hourly rates)
Development Agreement Amendment(a) $2,000 (deposit/hourly rates) Development Plan – Specific/Master Plan (c)(d) $2,500 (deposit/hourly rates) Development Plan – Specific/Master Plan Amendment (a) $1,000 (deposit/hourly rates) General Plan Amendment(a) $2,000 (deposit/hourly rates) Annexation(a)(b) $2,000 (deposit/hourly rates)
Zoning Ordinance Text Amendment $1,000 (deposit/hourly rates) Out of Boundary Service Agreement $1,000 (LAFCO hearing)/$500 (Staff level)
Appeal
Appeal of Planning Commission Decision $630
Appeal of Planning Manager Determination $315
Planning Commission Interpretation $500
Environmental Review Fees
Initial Study/Mitigated Negative Declaration(f) $880
Environmental Impact Report(c)(d) $2,500 (deposit/hourly rates) Dept. of Fish and Wildlife Fees
Review of Negative Declaration/Mitigated Neg. Dec.(e) $2,764 Review of EIR(e) $3,839.25
Notice of Exemption(e) $57
Notice of Determination(e) $57
Maintenance Fees
Copies of Maps (black and white) $10
CD Copies of Documents/Minutes/Plans $10
File Archive-Microfilming $97
SOURCE: City of Ceres Planning Fee Schedule, 2023
NOTES: (a) Deposit required-Burdened hourly rate charged against deposit. (b) Deposit required-Burdened hour rate plus full cost of map service charged against deposit. (c) Deposit required-Burdened hourly rate plus consultant and/or attorney costs charged against deposit. (d) Requires submission of Processing Agreement Form.
(e) Fee set by State of California/Stanislaus County and may be adjusted each year. (f) May require special studies (noise, traffic, air, etc…) – full cost of studies is responsibility of applicant. $10,000 deposit is required so that staff may begin RFP process towards selection of a consultant to complete necessary study. If study is less than deposit, unused balance will be returned. If amount is more than deposit, the applicant will be required to submit the difference prior to commencement of contract.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-33 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The building fee structure is currently based on the valuation or cost of the project. This is a widely accepted and used system to establish both building permit fees as well as the cost to complete a plan review. Fees are generally collected at the time of permit issuance.
In addition to the application fees for administrative procedures described above, the City also requires fees for new residential development. Table B-8, City of Ceres Residential Development Impact Fees, describes each application fee that could be applied during the process of developing residential units. These fees are typical of cities similar to Ceres and do not impose any impediments to housing affordability.
Table B-8 City of Ceres Residential Development Impact Fees Development Fees Single-family Multi-family
Police $428.23 $307.18
Fire $904.26 $781.67
Municipal Facilities $1,221.80 $1,056.17
Wastewater $6,079.20 $5,288.90
Parks and Recreation $5,164.91 $4,464.75
Community Facilities $1,758.34 $1,519.98
Transportation $3,095.70 $1,919.05
Water $6,830.94 $3,647.52
Information and Technology $193.77 $167.50
Subtotal $25,677.15 $19,152.72
Ceres Unified School District1,2 $6,015.00 $3,809.50
County Public Facilities $7,310.00 $4,825.00
Total $38,027.15 $27,787.22
SOURCE: City of Ceres, Capital Facilities Cost Fee Schedule Resolution No. 2013-73; Stanislaus County Public Facilities Fee, 2021 NOTES: 1. Assumes a 1,500 sq. ft. single family unit.
2. Assumes a 950 sq. ft. multi-family unit
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-34 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 New developments within the City of Ceres are also required to pay a fee for the development of new school facilities. The maximum fee is set by the State for residential, commercial and industrial development. The City and the impacted school districts do not collect impact fees higher than the allowed maximum. These combined fees are typical of cities in California.
While the required development and public facilities fees unquestionably increase housing costs, at least marginally, these fees provide for services that are necessary (i.e., sewer and water service, police and fire protection) or are expected by residents (i.e., parks, adequate streets, libraries). Due to the constraints on City finances, those who receive the benefits must pay for these needed and desired services. These costs can be considered a type of user fee, with the newer residents paying their own way.
Table B-9 provides an example estimate of total residential development fees for single-family and multi-family developments including planning department fees, building department fees, impact fees, and regional fees.
While fee types in comparable and neighboring jurisdictions do not precisely align with the fee types in Ceres for a side-by-side comparison, the total estimated fees as cited in the City of Modesto’s Draft 2023-2031 Housing Element Update (Table 74) offer comparative insight. While Ceres estimates a total of $42,922.15 for a single-family home and $30,707.22 per multi-family unit, the City of Modesto estimates $30,720 for a single-family home and $23,157 per multi-family unit. However, Modesto’s estimates do not include regional fees such as Ceres Unified School District and County Public Facilities, which amount to approximately $13,325 for incorporated areas of Stanislaus County including Ceres, Hughston, Modesto, Patterson, and Waterford. Including regional fees, the estimated total development fees in Modesto for a single-family home would total $44,045 and a multi-family unit would total $36,482. Therefore, Ceres’ total estimated development fees are significantly lower than the City of Modesto.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-35 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table B-9 Estimate of Total Residential Development Fees Imposed Development Fees Single-family* Multi-family**
Planning Department Fees
Site Plan Approval $920 $920
Building Department Fees
Plan Check1 $3,000 $2,000
Impact Fees
Police $428.23 $307.18
Fire $904.26 $781.67
Municipal Facilities $1,221.80 $1,056.17
Wastewater $6,079.20 $5,288.90
Parks and Recreation $5,164.91 $4,464.75
Community Facilities $1,758.34 $1,519.98
Transportation $3,095.70 $1,919.05
Water $6,830.94 $3,647.52
Information and Technology $193.77 $167.50
Subtotal $29,597.15 $22,072.72
Regional Fees
Ceres Unified School District $6,015.00 $3,809.50
County Public Facilities $7,310.00 $4,825.00
Total $42,922.15 $30,707.22 per unit
SOURCE: City of Ceres, Capital Facilities Cost Fee Schedule Resolution No. 2013-73; Stanislaus County Public Facilities Fee, 2021 NOTES: 1. Plan check fee is 1 percent of valuation of construction. * Assumes a 1,500 sq. ft. single-family unit and $300K valuation. ** Assumes a 950 sq. ft. multi-family unit and $200K valuation.
Residential Permit Processing
Processing and permit procedures can pose a considerable constraint to the production and improvement of housing. Common constraints include lengthy processing time, unclear permitting procedures, layered reviews, multiple discretionary review requirements, and costly conditions of approval. These constraints increase the final cost of housing, uncertainty in the development of the project, and overall financial risk assumed by the developer.
Site Plan Review
Ceres’ residential development permit process is officially initiated with the submission of an application, fees, and necessary plans and drawings for proper review. A Predevelopment Review application is recommended for larger projects to identify important issues early in the review process to allow time for adjustments prior to submitting either a formal application or building
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-36 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 plans. City staff reviews the Predevelopment Review application in an attempt to address all known issues and provide preliminary comments and guidance as early as possible in the process. The City has no design or historical review Boards.
The Municipal Code establishes a site plan review procedure for all developments, which is reviewed by the Planning Commission to determine if the proposed project conforms with the Zoning Code and General Plan. Upon completion of the review and evaluation of a site plan application, a public hearing is held for the Planning Commission to present their decision to either deny, grant, or modify the site plan review subject to specific conditions. Currently, the City lacks written approval findings for development projects.
To remove uncertainty from the approval process, the City has included Program 1.14 (see Chapter 2), to establish an amendment to the Zoning Code to adopt written approval findings. To ensure residential projects are reviewed based on objective criteria, the City will adopt the following findings of approval.
1. The proposed project is consistent with the objectives of the General Plan, complies with applicable zoning regulations, Planned Development, Master Plan or Specific Plan provisions, Improvement Standards, and other applicable standards and regulations adopted by the City.
2. The proposed project will not create conflicts with vehicular, bicycle, or pedestrian transportation modes of circulation.
3. The site layout (orientation and placement of buildings and parking areas), as well as the landscaping, lighting, and other development features, is compatible with and complements the existing surrounding environment and ultimate character of the area under the General Plan.
4. The proposed architecture, including the character, scale, and quality of the design, relationship with the site and other buildings, building materials, colors, screening of exterior appurtenances, exterior lighting and signing, and similar elements, establishes a clear design concept and is compatible with the character of buildings on adjoining and nearby properties.
Once implemented, the approval process for residential development will not pose constraints related to the approval process.
Currently, site plan review for residential projects in the Planned Community (PC) Zoning District are subject to the discretion of the Planning Commission. As previously mentioned, the lack of written approval findings creates uncertainty for project applicants, which may pose a constraint to development. However, once Program 1.14 is implemented, the City’s Zoning Code will define written approval findings that are objective and increase approval certainty. These approval findings will be applied when determining appropriate development standards, including lot dimensions, setbacks, floor area ratio, and building height in the PC Zoning District.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-37 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Building Plan Review
Residential building plan review is contracted out to Stanislaus County and is limited to a maximum of 15 working days. In the event that plans are resubmitted for plan check, the subsequent plan check must be completed within seven working days. This review time is much quicker than neighboring cities in the county, which typically take between four to six weeks of review time.
Commercial building permits and various building-support applications (energy, electrical, plumbing, mechanical, fire) are reviewed by the Ceres Engineering and Planning Departments, as well as Stanislaus County and Modesto Fire.
Entitlement and Permit Processing Times
New Housing Element law now also requires an examination of the length of time between receiving approval for a housing development and submittal of an application for building permits.
The time between application approval and building permit issuance is influenced by a number of factors, none of which are directly impacted by the City. Factors that may impact the timing of building permit issuance include: required technical or engineering studies; completion of construction drawings and detailed site and landscape design; securing construction and permanent financing; and retention of a building contractor and subcontractors.
Processing times for development review vary, based on the size of the project and the extent of environmental review required, and can range from six months to more than one year if an EIR is required. When an application is submitted, it is reviewed within 30 days to verify that it is complete or the applicant is notified that it is incomplete. Once the application is complete, typical processing times align with the requirements of the State Permit Streamlining Act of 1992. The City makes a determination of CEQA streamlining or exemption within 30 days of receiving a complete application. Typical processing time is about one month for a single-family home, and about four to six months for a multiple-family housing project, unless delayed by the environmental clearance process due to significant environmental impacts.
The majority of residential permits in Ceres are for medium density residential projects. These large- scale projects often vary in the amount of time to reach the point of building permit issuance after planning approvals. Table B-10 shows the average time between entitlement approvals and building permit application submittals for residential development projects during the 2015-2023 planning period.
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ITEM 16
Appendix B – Housing Constraints B-38 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Table B-10 Recent Entitlement and Building Permit Process Times, 2015-2023 Development Type Entitlement Approved Building Permit
Application Submitted
Multi-Family Development Projects
Dhillon Villas 3/27/23 No application submitted.
Magnolia Square Apartments 8/15/22 Not yet issued. Application submitted 3/29/23 and first plan check letter sent 4/26/23.
Service Rd and Morgan HDR
Development 5/02/22 Not yet issued. Application submitted 3/01/23.
Moffett Apartments 12/13/21 Summer 2024 (forecasted)
Single-Family Development Projects
Olive Villas 7/13/20 1/05/23
Cambridge Estates Phase 2 5/09/20 8/18/22, more ongoing Cherry Hollow 9/12/16 No application submitted.
Tuscany Village 2004 8/31/21, more ongoing
SOURCE: City of Ceres, 2023
Summary of Permit Processing
The processing of planning permits in the City of Ceres is restricted to the number of planners employed by the City. The City of Ceres currently employs a Community Development Director and one Senior Planner to handle planning applications. Given the hundreds to thousands of development applications that are expected in the coming eight-year housing element planning cycle, it is highly recommended the City supplement its planning staff to handle the work. Building permit processing times are considerably faster than neighboring cities in the County, due to the City’s contracted partnership with the County in reviewing building permits. The City also included Program 1.13 to establish a checklist and procedures for SB 35 and SB 330 (see Chapter 2). This aims to ensure efficient and complete application processing.
Transparency of Development Standards and Fees
Per Government Code section 65940.1(a)(1), jurisdictions must post all zoning and development standards and associated fees on the jurisdiction’s website. The City of Ceres complies with State law, providing zoning and development standards on the City’s website by reference to the City’s Municipal Code. Associated fee schedules are also readily available on the City’s website through the Planning and Building departments.
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-39 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Building Codes and Code Enforcement
Building and safety codes are adopted to preserve public health and safety, and ensure the construction of safe and decent housing. These codes and standards also have the potential to increase the cost of housing construction or maintenance. The City’s Building Code is currently based on the latest, 2022 version of the California Building Code, along with all required updates.
The building code is regularly updated in accordance with Title 24 changes. The City has not made any amendments to the Building Code that might diminish the ability to accommodate persons with disabilities or other special needs groups. The City provides reasonable accommodation for persons with disabilities in the enforcement of building codes and the issuance of building permits for all new structures.
Building Code and Zoning Code enforcement activities are undertaken on a proactive and compliant basis. It is the duty of the building inspector and the City Manager to enforce the City’s Building Code and Zoning Code. The City contracts with Stanislaus County for all building inspections and plan checks. However, all plan check submittals are submitted to and permits are issued from Ceres.
The City finds that the adopted Building Code and Zoning Code and associated enforcement activities are not constraints to the development, maintenance, or preservation of housing.
On- and Off-Site Improvement Standards
On- and off-site improvement standards establish infrastructure or site requirements to support new residential development such as streets, sidewalks, water and sewer, drainage, curbs and gutters, street signs, park dedications, utility easements, and landscaping. While these improvements are necessary to ensure that new housing meets the local jurisdiction’s development goals, the cost of these requirements can represent a significant share of the cost of producing new housing.
On- and off-site improvement standards imposed by the City of Ceres include:
Dedication of land for park use or pay a park fee in-lieu of land dedication; Construction of a wall or vegetative barrier (if a multi-family project abuts a single-family neighborhood);
Provision of landscaping;
Provision of off-site improvements that are determined to have a nexus with project environmental impacts; and
Provision of off-site improvements as part of a subdivision improvement plan, which could include street, drainage, and sanitary sewer improvements.
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ITEM 16
Appendix B – Housing Constraints B-40 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 The City has a Subdivision Ordinance that in combination with the General Plan, identifies subdivision improvement requirements. Per the City's 2035 General Plan, local streets have a minimum width requirement of 46 to 60 feet. These requirements facilitate the implementation of complete streets, which incorporate bike lanes and pedestrian-friendly sidewalks, thereby enhancing overall mobility and transit options. The City's emphasis on complete streets aims to reduce reliance on automobiles and increase transportation alternatives throughout the city. As a result, the City does not believe the minimum street widths pose a constraint to development but rather set the stage for infill development by prioritizing accessibility and walkability.
The City's requirement for a wall or vegetative barrier for multi-family developments located adjacent to a single-family neighborhood may pose a potential constraint for development by increasing costs. To address this, Program 1.9 proposes an amendment to the Municipal Code to remove the requirement for a wall or vegetative barrier for multi-family projects located adjacent to single-family uses (see Chapter 2).
Special Housing Topics
This subsection discusses special housing topics that have been the subject of state legislation in recent years and provides an analysis of how the City of Ceres has responded.
SB 35 Streamlining
Government Code §65913.4, effective as of January 1, 2018, allows qualifying development projects with a specified proportion of affordable housing units to move more quickly through the local government review process and restricts the ability of local governments to reject these proposals.
The bill creates a streamlined approval process for qualifying infill developments in localities that have not made sufficient progress toward meeting their RHNA for above moderate- and lower- income levels as mandated by the State.
Jurisdictions that have made insufficient progress toward their RHNA and/or have not submitted the latest Housing Element Annual Progress Report (2021) are subject to the streamlined ministerial approval process (SB 35 (Chapter 366, Statutes of 2017) streamlining). All projects that propose at least 10 percent affordable units within Ceres are eligible for ministerial approval under SB 35 as determined by the SB 35 Statewide Determination Summary. 5 SB 9 California Housing Opportunity and More Efficiency (HOME) Act SB 9, also known as the California Housing Opportunity and More Efficiency (HOME) Act, is a state bill that requires cities to allow one additional residential unit onto parcels zoned for single- dwelling units.
5 SB 35 Statewide Determination Summary, June 2022
ATTACHMENT E
ITEM 16
Appendix B – Housing Constraints B-41 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Since the adoption of this section of the Government Code, the City has adopted regulations to permit duplexes in qualifying single-family zoning districts and is actively working to further update its Zoning Code to facilitate subdivision under SB 9. Program 1.9 addresses the need to codify SB 9 requirements (see Chapter 2).
Summary of Governmental Constraints
In general, the policies and regulations governing residential development in the City of Ceres are typical for a Central Valley city and do not pose any undue constraint on the development of affordable housing.
Currently, the biggest obstacle facing the City involves the update of its Zoning Code to achieve consistency with the newly adopted Ceres General Plan 2035. The new general plan provides a full range of housing densities—from 1 to 40 dwelling units an acre—and includes five mixed-use designations that should promote some level of redevelopment in Downtown Ceres that includes multi-family development. The update of the Zoning Code to implement the new general plan is a critical part of ensuring that local government development regulations do not pose an undue constraint on the development of affordable housing.
Once amendments to the Zoning Code are completed, the City of Ceres will have a body of local development regulations that support the development of affordable housing and that does not pose any undue constraint on the development of housing for all income groups.
B.3 Non-Governmental Constraints
In addition to governmental constraints, non-governmental factors may constrain the production of new housing. These could include economic and market related conditions such as land and construction costs, as well as environmental hazards such as fires, earthquakes, and flooding.
Although nongovernmental constraints are primarily market-driven and generally outside direct government control, localities can significantly influence and offset the negative impact of nongovernmental constraints through responsive programs and policies. Analyzing specific housing cost components — including the cost of land, construction costs, and the availability of financing — assists the locality in developing and implementing housing and land-use programs that respond to existing local or regional conditions.
Land Availability and Cost
According to Zillow, since June 2020, 21 vacant lots have been sold within Ceres ranging in price from $85,000 to $2.6M. Lot sizes sold over the same period of time range from 4,748 sq. ft. to 7.26 acres. For lots less than 1 acre, the average cost was $251,266, with an average lot size of 16,268 square-feet, accounting for an average cost of $15.45 per square-foot. In comparison, the average
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ITEM 16
Appendix B – Housing Constraints B-42 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 cost for lots greater than 1 acre was $1.1, with an average lot size of 4.29 acres, accounting for an average cost of $5.88 per square-foot. Additionally, property values may vary significantly based on location and ability to facilitate development.
Construction Costs
While construction costs vary according to the type of development, unit size and number, and quality, Building Valuation Data administered by the International Code Council (ICC)6 provides an indicator of construction costs. The ICC has developed the national model of construction codes known as the International Codes or I-Codes, which are updated in six-month intervals and provide estimates for the cost of labor and materials according to development type.
In February 2023, the ICC estimated that the average per square-foot cost for good-quality housing was approximately $155.95 for multifamily housing, $177.67 for single-family homes, and $195.82 for residential care/assisted living facilities.
7 Additionally, constructions costs are dependent upon
materials used and the City’s adopted Building Code. While construction costs are typically higher in California than elsewhere in the country, they are consistent throughout the region, thus they are not considered a major constraint to development in Ceres.
Availability of Financing
The cost of financing has a substantial effect on the affordability and availability of housing. Interest rates have a significant role in determining the feasibility of development projects, especially residential real estate. Interest rates have been at historic lows in recent years, but depending on Federal Reserve Bank actions, may rise in the coming years. Developers typically pass the cost of financing development projects on to buyers or tenants, thus affecting the affordability and availability of housing types for residents. The availability of financing for residents to purchase, refinance and improve homes is an important analysis of the private market to determine the feasibility of homeownership access.
Since 2019, interest rates for homebuyers steadily increased from a low of 2.75 percent in 2020 to a peak of 7.08 percent in November of 2022 for a fixed rate, 30-year mortgage. 8 The current
economic climate is uncertain and still affected by the COVID-19 pandemic, increasing inflation, and the supply chain disruptions.
6 https://www.iccsafe.org/
7 Estimates for construction costs are based on VA wood-frame housing. ICC Building Valuation Data February, 2023 8 Source: 30 Year Mortgage Rate (ycharts.com)
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ITEM 16
Appendix B – Housing Constraints B-43 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 In an effort to assist potential lower-income home buyers with their home purchase, the City has a First Time Home Buyer Downpayment Assistance Program.9 The City of Ceres first time home buyer program is designed for qualified very low and low-income first time homebuyers requiring assistance to purchase market rate homes. The program would assist the homebuyer by providing a larger downpayment, thereby lowering the first mortgage and the associated monthly mortgage payment. The maximum loan would be 20 percent of purchase price up to the maximum loan limit, which is currently set at $80,000 and may be modified in the future. Loans offered through the DAP will accrue at a 3 percent simple interest rate and have a 30-year term.
Requests to Develop at Densities Below Those Permitted
New State Housing Element law now requires the non-governmental constraints analysis to evaluate developer requests to build at densities below the density identified in the Housing Element sites inventory. In order to incentivize development which better implements densities planned in the Housing Element sites inventory, the Housing Element sets forth Program 1.1 (see Chapter 2) to ensure that there are adequate sites available throughout the planning period to accommodate the City’s RHNA. The City has not received requests to develop at densities below assumptions in the Sites Inventory.
Infrastructure Capacity
A significant factor that can add to the cost of residential development is the availability and adequacy of infrastructure.
Water and Wastewater
Water service within the City is provided by the City’s Public Works Department with the exception of North Ceres and Walnut Manor (approximately 1,200 people), which are served by the City of Modesto. The City’s Water Division maintains 13 active wells located throughout the City.
Groundwater is the primary source of water supply for the City, of which supply has successfully met the City’s demand to date and is expected to meet future demand. 10 According to the City’s
2020 Urban Water Management Plan, the City anticipates having a sufficient water supply to meet the projected annual water demands in both a single-dry year and a five-consecutive-year drought scenario through the year 2040.
Currently, no recycled water is being used in the City’s service area, however, wastewater discharged from the service area to Modesto and Turlock is part of a recycled water program. The primary reason for not implementing improvements to allow for recycled water use in Ceres is the high cost associated with providing recycled water. Current and past studies indicate that diverting additional flow to the Modesto and Turlock for discharge is the most economically feasible long-range plan for recycled water use.
9 Source: Manual_FTHB_012009 (ceres.ca.us)
10 City of Ceres Urban Water Management Plan, 2020
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ITEM 16
Appendix B – Housing Constraints B-44 EMC Planning Group Inc.
City of Ceres 6th Cycle Housing Element Update HCD Revised Draft January 2025 Wastewater service within the City of Ceres is provided by the City’s Wastewater System Division, which is responsible for operating and maintaining the City’s Wastewater Treatment Plant (WWTP) and the Wastewater Collection System. The Wastewater Treatment Plant has a design capacity of 2.7 million gallons of wastewater per day (mgd) and in 2007 treated an average flow of 1.5 mgd.11 Staff maintains the plant operational systems, over 190 acres of percolation-evaporation basins and grounds, 14 lift stations and 133 miles of pipeline within the collection system.
Approximately three quarters of the wastewater generated in the existing City of Ceres Sewer Service Area is conveyed to the City of Ceres WWTP. In the northwest portion of the City, the City manages the collection system, but conveys wastewater to the City of Modesto Water Quality Control Facility for treatment and disposal. Additionally, the City exports a large portion of wastewater treated at the City’s WWTP to the Turlock Regional Water Quality Control Facility. The City of Ceres 2013 Sewer System Master Plan outlines a Capital Improvement Plan for the pipeline system and improvements to the pump stations.