Escalon 2023-2031 Housing Element – Adoption Draft | p. 30 Objective Increase transparency for residential development project applicants and achieve consistency with State law.
Program 2-5: Affordable Housing Funding and Incentives
The City will continue to seek available local, state, and federal funding for affordable housing through the following actions:
▪ Action (A): Continue to actively pursue funding from state and federal programs such as CDBG, HOME, Low Income Housing Tax Credits, Multi-family Housing Program, the Joe Serna Jr. Farmworker Housing Grant Program, and CHFA on an ongoing basis for development of affordable lower income housing for seniors, families, farmworkers, and persons with disabilities, including persons with developmental disabilities. Support funding applications by developers when the proposed projects are consistent with the goals and policies of the City’s General Plan.
▪ Action (B): Establish an impact fee deferral program for residential development projects eligible under State law, to encourage the development of low and very low-income housing projects and special needs housing projects. The program will be designed to ensure the fee deferral would make the development of the housing units economically feasible in cases where they would not otherwise be feasible.
In conjunction with Program 1-3(D), ensure that all fees are made available on the City’s website.
▪ Action (C): Consider forming or participating in a joint powers authority (JPA) to house a regional housing trust fund with neighboring City, Town, County and/or Tribal agencies as provided under SB 20 of 2023.
Context Continuing program, revised to fulfill RHNA and address State law. Incorporates Former Program 4-4 (Seek Available Funding).
Action (B): California Gov. Code § 66007 – SB 937.
Action (C): California Gov. Code § 6539.1 – SB 2023.
Geography Citywide, with an emphasis on supporting affordable housing development in the City’s High and Highest Resource Areas.
Responsibility Development Services Department & Finance Department Funding Source General Fund, Grant Funding
Timeframe Action (A): Annually, and as funding opportunities arise, with a target to support at least one development every other year.
Action (B-C): December 31, 2026.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 31 Objective Secure State and Federal funding to support the development of affordable housing. Target the production of 195 lower-income households throughout the planning period, consistent with the Housing Element Quantified Objectives (Section 2.4).
Program 2-6: Farmworker Housing
The City will take an active role to ensure that farmworkers have access to adequate, safe, and affordable housing.
▪ Action (A): Continue to seek funding for farmworker housing through the Joe Serna Jr. Farmworker Housing Grant Program.
▪ Action (B): Reach out to local stakeholders including agricultural employers operating in the region, nonprofit housing providers, and regional farmworker advocacy organizations to identify site opportunities for the development of permanent housing for agricultural employees and their families, and to provide technical assistance throughout the application and entitlement process. Such assistance may include collaborative applications for funding and utilization of streamlining provisions for farmworker housing under State law. ▪ Action (C): Meet with surrounding jurisdictions and local government organizations including the San Joaquin Council of Governments (SJCOG), Housing Authority of the County of San Joaquin (HACSJ), and San Joaquin Delta College to collaborate on the implementation of actions to support farmworker housing in the San Joaquin Valley, and obtain input on and ongoing input on farmworker housing conditions within Escalon in both dedicated and non-dedicated units. ▪ Action (D): Create a multilingual fact sheet on farmworker housing made available online and at City Hall.
▪ Action (E): If the target for farmworker housing is not progressing throughout the planning period, provide incentives and other strategies beyond state density bonus law to encourage housing for farmworkers, including encouraging the setaside of housing for farmworkers within developments, supporting funding applications, prioritizing entitlements and establishing appropriate zoning and development standards.
Context Continuing program, revised to fulfill RHNA and address State law. Incorporates Former Program 4.4 (Seek Available Funding).
Geography Citywide
Responsibility Development Services Department
Action (B): Relevant stakeholders may include but are not limited to agricultural employers in greater Escalon (e.g., DeRuosi Nut), San Joaquin Farm Bureau Federation, United Farm Workers, California Rural Legal Assistance, and California Coalition for Rural Housing.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 32 Funding Source General Fund, Grant Funding
Timeframe Action (A): Ongoing, at least annually.
Action (B-C): Contact and convene regional stakeholders at least twice in the planning cycle to identify opportunities for the development or improvement of housing for farmworkers.
Action (D): December 31, 2026.
Action (E): Conditional action triggered if fewer than five (5) affordable farmworker housing units proceed through the development review process by December 31, 2027. Conduct subsequent actions by February 29, 2028 and implement by June 30, 2028.
Objective Secure State and Federal funding to support the development of affordable housing for farmworkers and their families. Target the development of 10 affordable units for farmworkers and their families throughout the planning period. Assess and identify prospective sites, partnerships, and/or funding opportunities for the development of farmworker housing at least biannually, including annual meetings with relevant stakeholders.
Program 3-1: Neighborhood Improvements
The City will continue to prioritize neighborhood improvements in areas supporting new affordable housing development through the following actions:
▪ Action (A): As part of the annual review of the Capital Improvement Program (CIP), determine priorities for capital improvement projects required to maintain the community's aging or nonexistent infrastructure (e.g., safe routes to schools, accessibility improvements, streetscapes, parks, community amenities), particularly located in neighborhoods with aging housing stock and/or infrastructure, and Moderate Resource Areas. Review of the CIP shall also include verification that areas needing improvement are scheduled for funding to address these needs at a specific time in the future. Support implementation of prioritized actions within the CIP with regular applications for State and Federal funding such as the Community Development Block Grant (CDBG), Surface Transportation Block Grant (STBG), and California Urban Greening Grant. ▪ Action (B): The City shall continue to prioritize lower-income housing development for water and sewer expansion, consistent with Government Code 65589.7 or its successor. Following adoption, the City will provide the Housing Element Update to the City’s water and sewer providers (e.g., the water and sewer division of the Public Works Department) within 60 days. Providers will retain adequate water
Escalon 2023-2031 Housing Element – Adoption Draft | p. 33 and/or sewer service capacities to serve residential developments and will prioritize those which provide affordable units.
▪ Action (C): To help ensure a balance of residential and commercial sites, consider amendments to the City’s Zoning Code to allow accessory commercial units (ACUs) in neighborhoods throughout Escalon, including allowances for selected commercial uses on corner lots in mixed-use applications. ▪ Action (D): Coordinate local and regional transportation planning efforts to support improved public transportation access to new and existing housing stock in Escalon neighborhoods west of McHenry Avenue.
Context Continuing program (includes previous programs 1-2, 2-1, 2-2).
Incorporates former program 3-1: Provision of Public Services.
Action B implements Government Code § 65589.7.
Geography Citywide, emphasizing neighborhoods with aging housing stock and infrastructure.
Responsibility Development Services Department & Public Works Department Funding Source General Fund
Timeframe Action (A): Annually, with CIP update. Submit applications for funding of capital improvements at least every other year.
Action (B): Assistance to providers is ongoing. Transmit Housing Element within 60 days of adoption.
Action (C): May 1, 2030.
Action (D): Ongoing throughout the planning period, upon updates of the Active Transportation Plan and/or Circulation Element, or countywide transportation planning initiatives, with annual actions to support implementation of local transportation plans.
Objective Support at least 1-2 capital improvement projects per year in areas of highest need and apply for CDBG and similar funds to support infrastructure needs in a manner that affirmatively furthers fair housing at least every other year throughout the planning period.
Program 3-2: Housing Rehabilitation Program
The City shall partner with the Housing Authority of the County of San Joaquin (HACSJ) on housing rehabilitation programs for low-and moderate-income households, including the following actions:
Escalon 2023-2031 Housing Element – Adoption Draft | p. 34 ▪ Action (A): Update and distribute information about HACSJ’s rehabilitation programs to individuals with disabilities, seniors and the elderly, and advocacy groups that represent these special needs groups.
▪ Action (B): Provide and maintain information on rehabilitation programs, including the HACSJ rehabilitation program, on the City’s website. ▪ Action (C): Pursue grant opportunities to create a residential rehabilitation program for lower income residents. Work with HACSJ to apply for HOME, CalHome, and CDBG funds, as well as promote Section 504 Home Repair Program loans and grants to provide housing rehabilitation loans and weatherization services for income-eligible households to improve living conditions.
Context Continuing program (Previously 1-3).
Geography Citywide, with an emphasis on the City’s older neighborhoods and Moderate Resource Areas.
Responsibility Development Services Department
Funding Source General Fund
Timeframe Ongoing at least annually, beginning by May 1, 2026.
Objective The City strives to assist at least five households through housing rehabilitation programs described above.
Program 3-3: Conservation of Affordable Units & Mobile
Homes
The City will continue to conserve the existing supply of subsidized and below-marketrate housing (including mobile homes) to ensure that affordability is preserved through an early warning system and timely application of state and federal grant funds for conservation.
▪ Action (A): Monitor the continued affordability of affordable housing projects in the City. The City will coordinate with developers, owners, and residents of the individual affordable housing projects within five years of deed-restriction expiration.
▪ Action (B): Maintain an updated inventory of mobile home parks that identifies the number of units by bedroom size and tenure.
▪ Action (C): Educate residents and park owners to facilitate resident purchase of mobile home parks with information on funding sources such as HCD’s Mobile Home Park Rehabilitation and Resident Ownership Program (MPRROP). ▪ Action (D): Prepare a Mobile Home Park Conversion Ordinance, which prohibits the conversion of a mobile home park (manufactured homes on permanent foundations) to another use unless certain findings are made including that:
Escalon 2023-2031 Housing Element – Adoption Draft | p. 35 o The conversion will not result in the displacement of lower- or moderateincome residents or of senior citizens who cannot afford rents charged in other parks within Escalon and San Joaquin County;
o The age, type, size, and style of mobile homes to be displaced will be able to be relocated into other comparable mobile home parks within the city of Escalon or San Joaquin County or that the applicant has agreed to purchase any mobile home that cannot be relocated;
o Any mobile home residents displaced as a result of the conversion shall be compensated by the applicant for all reasonable costs incurred as a result of their relocation; and that
o The relocation and purchase assistance plan mitigates the impacts of the displacement of individuals or households for a reasonable transition period and mitigates the impacts of any long-term displacement.
Context Continuing program (Previously 1-4), revised to include provisions for mobile home parks.
Geography Citywide, with focus on the eastern portion of the City and in low and moderate resource areas.
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): Ongoing.
Action (B): March 31, 2026.
Action (C-D): May 1, 2027.
Objective Preserve deed-restricted and naturally-occurring affordable housing within Escalon, including preservation of all affordable housing units within the City and outreach conducted to all mobile home parks within the City throughout the planning period in association with Actions (C)-(D), consistent with the unit objectives stated in Program 5-3 (Anti-Displacement Actions).
Program 3-4: Energy Conservation and Efficiency
Energy conservation in housing not only saves tenants and homeowners money but also contributes to a more sustainable future. To promote energy conservation in housing, the City will develop informational materials to provide to the public. The City will continue to promote ways to reduce monthly home water bills.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 36 ▪ Action (A): Continue to require new houses to utilize low-flow toilets, low-flow shower heads, and low flow faucets consistent with the requirements of the San Joaquin County Water Resources Unit. Support new water retrofitting programs undertaken by the San Joaquin County Water Resources Unit, such as providing free low-flow plumbing fixtures to existing customers in Escalon. ▪ Action (B): Continue to require the use of drought-tolerant landscaping within new developments during the entitlement review process (as specified in the State Model Water Efficient Landscape Ordinance, or MWELO).
▪ Action (C): Develop bilingual (English and Spanish) utility bill inserts that encourage the use of energy-efficiency programs and energy conservation methods.
▪ Action (D): Develop a bilingual brochure (English and Spanish) with information energy conservation programs, including programs available through the County, State, and PG&E, and make available online and at City Hall. ▪ Action (E): Evaluate the viability of participation in a regional community choice aggregation (CCA) program, and whether participation would result in increased renewable energy use and reduced electricity costs for Escalon ratepayers.
Context Continuing program (Previously 6-1).
Action (E): Policy option enabled under State law, including California Public Utilities Code § 366.2 and California Government Code § 6500 et seq.
Geography Citywide
Responsibility Development Services Department & Public Works Department Funding Source General Fund
Timeframe Action (A-B): Ongoing
Action (C): Biannually
Action (D): December 31, 2025.
Action (E): Provide presentation to Planning Commission and/or City Council detailing policy options by March 31, 2029. Upon direction, introduce ordinance by December 31, 2029.
Objective Promote energy and water conservation, with a target of reducing residential water use by 10% and increasing the use of energy conservation programs by 15% citywide. Focus efforts on households with the greatest risk of displacement and older housing stock. Make CDBG rehabilitation loans available to qualified mobile home owners as funds are available. Target proactively reaching and supporting the improved energy
Escalon 2023-2031 Housing Element – Adoption Draft | p. 37 efficiency conditions of 50 households throughout the planning period through the provision of low-flow plumbing fixtures or comparable electrical upgrades.
Program 4-1: Removal of Constraints
Continue to analyze the Zoning Ordinance, Escalon Municipal Code, and City procedures to ensure that existing policy and amendments do not constrain development through the following actions:
▪ Action (A): Monitor applicable provisions of the Housing Crisis Act (HCA), as amended, including the City’s Growth Management Ordinance. The City shall continue suspension of its GMO until such programs are again allowed under state law. Prior to resuming use of its GMO Program, the City will make the following changes to reduce the potential for constraints and to achieve better alignment with State laws:
o Exempt Accessory Dwelling Units and Junior Accessory Dwelling Units; o Exempt deed-restricted affordable units without need for the P-D designation, unless those units are not needed for the City to achieve its RHNA in the applicable income categories; and
o Extend the period for which allocations are valid (the carryover period) to ensure that allocations do not expire while there is a remaining housing need.
▪ Action (B): Conduct surveys of developers at least twice during the planning period to identify constraints to development, with consideration of any identified code changes implemented within a year from the end of the survey. ▪ Action (C): Evaluate utility connection fees for multifamily housing and revise as necessary to affirmatively further fair housing and remove constraints to development.
▪ Action (D): Revise the City’s Site and Architectural Review and Design Guidelines to remove subjective language that may pose a constraint to approval certainty for development applications.
Context Continuing program (previously 4-1), amended to address State law.
Geography Citywide
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): Prior to January 1, 2030.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 38 Action (B): At least twice in cycle, beginning by May 31, 2026.
Action (C): Complete by May 31, 2026.
Action (D): March 31, 2027.
Objective Eliminate constraints to fulfilling the City’s RHNA and quantified objectives.
Program 4-2: Housing Outreach and Stakeholder Engagement Encourage development of affordable and multifamily housing, including housing for special needs and/or extremely low, very low, and/or low-income households through the following outreach actions:
▪ Action (A): Develop and distribute a survey that seeks feedback from developers on the effectiveness of the incentives created through the Housing Element. ▪ Action (B): Invite non-profit housing providers in the Escalon housing market to meet with City staff to promote the use of incentives available and encourage projects incorporating affordable residential units. Provide information and technical assistance to property owners and developers. ▪ Action (C): Partner with housing developers to pursue funding opportunities at the regional, state, and federal levels to create housing for extremely low-income households and those with special needs.
▪ Action (D): Develop a marketing package to raise awareness of the newly formed incentives and post to the City’s website, make available to City Hall, and send to housing developers, real estate professionals, property owners, and local organizations.
▪ Action (E): Conduct outreach to religious institution stakeholders (including but not limited to churches, gurdwaras, mosques, synagogues, and temples) in the greater Escalon area to circulate SB 4 information in conjunction with Programs 1-2 and 1-3 and provide education, facilitating partnerships and assisting with entitlement processes.
Context Continuing program (previously titled “Outreach to Developers of Affordable and Special Needs Housing”).
Geography Regional, including housing developers active in San Joaquin and Stanislaus Counties.
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): Annually, beginning January 2025.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 39 Action (B): Biannually
Action (C): Annually
Action (D-E): June 30, 2026, update as needed.
Objective Monitor the effectiveness of programs, procedures, and other incentives and secure funding for housing development.
Program 4-3: Parking Standards
The City will continue to implement a program to administer parking reductions for eligible projects in consistency with State law, and in support of development on smaller sites through the following actions:
▪ Action (A): Continue density bonus provisions in consistency with State law, and amend the City’s Zoning Code to use the maximum parking requirements in Government Code Section 65915 for all multifamily projects without the need for developer request.
▪ Action (B): Amend the City’s Zoning Code to adjust the minimum parking requirements for all multifamily projects and comply with the management standards for emergency shelters pursuant to state law (AB 139). ▪ Action (C): Evaluate the Municipal Code and amend to require bike/scooter parking in eligible developments.
▪ Action (D): Evaluate the Municipal Code and amend to ensure no parking requirements beyond State law for ADUs, JADUs, remodels, and additions. ▪ Action (E): Amend the Municipal Code to allow separate rental or sale of parking spaces and residential units, also known as unbundled parking. ▪ Action (F): Present a recommended ordinance regarding shared parking between commercial and residential uses in the C-2 zone district to incentivize the active use of downtown commercial lots and retain a mix of uses in the City’s commercial areas.
Context Continuing program (previously Program 4-6) revised to address State law:
Action (A-B): California Government Code § 65915
Action (B): California Government Code § 65583, 65584.04, 65584.06, 65588 – AB 139 (2019)
Action (C): California Civil Code § 1940.41 – SB 712 (2023).
Action (D): California Government Code § 65863.3, 66314, and 66322
Action (E): California Civil Code § 1947.1 – AB 1317 (2023).
Geography Citywide
Escalon 2023-2031 Housing Element – Adoption Draft | p. 40 Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A-E): December 31, 2025.
Action (F): December 31, 2027.
Objective Encourage a mix of residential and commercial development by right-sizing parking requirements and reducing development costs and pass-through costs, with a goal of removing constraints.
Target two (2) citywide development projects utilizing unbundled parking, one (1) downtown project with a shared parking agreement or mix of uses, and all projects providing requisite space for bikes and scooters throughout the planning period.
Program 5-1: Equal Housing Opportunity
The City shall take measures to distribute information regarding fair housing rights, programs, and complaint procedures through the following actions:
▪ Action (A): Refer all complaints of housing discrimination to the San Joaquin Fair Housing Association, or other organization with commensurate purpose, for action.
The Planning Department will continue to be responsible for receiving complaints in regard to housing.
▪ Action (B): Continue to provide an informational outreach program, including handouts regarding fair housing law and tenant rights.
▪ Action (C): Establish administrative practice responding to landlord complaints that are received from tenants, including potential discrimination issues and concerns.
The City’s Building Inspector will meet on site with concerned tenants to hear the complaint and concerns, identify any issues related to building code or housing occupancy standards and those regarding landlord/tenant relations or lease agreements. The concerns/issues are directed to the appropriate authority including the Housing Authority of San Joaquin County, San Joaquin Fair Housing Association, and/or Development Services Manager for further discussion and evaluation. The City anticipates utilizing this process for 1-2 such complaints per year, or 10-12 times throughout the planning period. The intent of the program is to ensure that discrimination issues are proactively addressed to prevent displacement and that the City’s trust relationship with the community is maintained.
Context Continuing program (previously Program 5-1), revised to affirmatively further fair housing.
Geography Citywide
Escalon 2023-2031 Housing Element – Adoption Draft | p. 41 Responsibility Development Services Department, overseeing Code Enforcement Division and Building Division
Funding Source General Fund
Timeframe Action (A), (C): Ongoing
Action (B): Check counter weekly to ensure fair housing materials are available to the public and update information that is available on an annual basis upon changes to fair housing law, beginning by March 31, 2025.
Objective City involvement in every case that comes forward, ensuring that grievances are addressed, and all aspects of the law are enforced.
Program 5-2: Removal of Impediments to Fair Housing
The City will continue to connect individuals and households to resources available to them to meet the need for immediate shelter and other essential services and support. ▪ Action (A): Post information about the Housing Choice Voucher (HCV) Program on the City’s website including income eligibility, landlord resources, program fraud hotline, HCV Family Self-Sufficient Program, and a link to the HCV application hosted by the Housing Authority of the County of San Joaquin. The information will also be made available in Spanish.
▪ Action (B): Create or source a tenant and landlord rights toolkit in collaboration with housing advocacy groups and/or regional agencies. The toolkit will include information about the identification of fraud related to mortgages, lending and foreclosure, evictions, discrimination, harassment, reasonable accommodations, housing conditions and repairs, filing a complaint, legal entry, security deposits, and reporting violations. The toolkit shall be made available both on the City’s website and at City Hall in both English and Spanish. The toolkit will also be made available at the Housing Resource Fair detailed in Action (D). ▪ Action (C): Conduct outreach to educate the residential areas with Covenants, Conditions, and Restrictions (CC&Rs) on State law and ensure compliance with fair housing laws.
▪ Action (D): Participate on a regional basis in a Housing Resource Fair at least twice throughout the planning cycle to share information about affordable housing, tenant and landlord rights, first-time homebuyer education, City programs, and energy conservation. The City will invite partner organizations and service providers to attend and share information with attendees. Interpretation and translation services will be made available to ensure that all information developed and disseminated is made available to individuals with limited English proficiency.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 42 The City will, at a minimum, publicize the Housing Resource Fair one month in advance of the event via social media and the City’s website. ▪ Action (E): Require bilingual (English/Spanish) availability of rental agreements in developments constructed with City assistance.
▪ Action (F): Partner with fair housing service providers, faith-based institutions, Escalon Unified School District, community-based organizations, and local newsletters or message boards to ensure fair housing information and resources reach linguistically isolated and underserved populations. ▪ Action (G): Refer all fair housing complaints to service providers including California Rural Legal Assistance.
▪ Action (H): Partner with the Central Valley Association of REALTORS® to educate residents about first-time homebuyer assistance programs, ADU programs and opportunities, and overall education.
▪ Action (I): Continue to provide information sheets at City Hall about the 211-phone system and post a link to the City’s website that guides users to the 211 San Joaquin County website.
Context Continuing program revised to affirmatively further fair housing.
Action (H): AB 1524, AB 721.
Geography Citywide
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): June 30, 2024, update as needed.
Action (B): March 31, 2027.
Action (C-D): At least twice in cycle, beginning by May 31, 2026.
Action (E): July 1, 2026.
Action (F-I): Ongoing
Objective Educate renters, homeowners, and landlords on fair housing laws and resources available to promote increased housing stability, fair housing practices, and affirmatively further fair housing. Goal of reaching at least ten (10) landlords and tenants who access and actively engage with the City on services on an annual basis and achieving Spanish language access in 100% of rental agreements.
Program 5-3: Anti-Displacement Actions
Lower and moderate-income renters are at increased risk of displacement. The City shall take measures to reduce the risk of displacement through the City, especially in areas of increased investment and development, through the following actions:
Escalon 2023-2031 Housing Element – Adoption Draft | p. 43 ▪ Action (A): The City will require replacement housing units, pursuant to the requirements in Government Code § 65915(c)(3), when any new development occurs on a site in the Sites Inventory if that site meets any of the following conditions: 1) currently has residential uses or within the past five years has had residential uses that have been vacated or demolished; or 2) subject to a recorded covenant, ordinance, or law that restricts rents to levels affordable to persons and families of lower- or very low-income; or 3) subject to any form of rent or price control through a public entity’s valid exercise of its police power; or 4) occupied by lower- or very low-income households. The City will conduct outreach to residents of 100% of nonvacant sites within the City’s Sites Inventory that may be replaced by new construction within 90 days of permit application on any given site(s).
▪ Action (B): Post a bilingual (Spanish/English) fact sheet regarding the Tenant Relocation Assistance and any text amendments on the housing webpage of the City’s website.
▪ Action (C): Assess options upon sunset of the Tenant Protection Act for eligibility of local provisions within the purview of State law. If deemed necessary, amend the Municipal Code to add commitments for Tenant Relocation Assistance that provides enhanced relocation payments at or beyond the requirements of CA Civil Code 1946.2 to Escalon tenants earning low or moderate incomes evicted for nofault just cause. ▪ Action (D): Maintain an active rehabilitation program by applying for the use of Federal and State programs to assist lower-income homeowners and renters in the maintenance and rehabilitation of their properties.
Context New program added to affirmatively further fair housing.
Incorporates previous program Replacement of Affordable Units.
Geography Citywide, including affordable housing developments.
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): March 30, 2026. Outreach within 90 days of applicable project application submittal.
Action (B): Within 3 months of adopting ordinance of Action (A).
Action (C): January 1, 2030 – December 31, 2031.
Action (D): Ongoing
Objective Maintain and rehabilitate two single-family residences and work with HCD to maintain and rehabilitate 14 trailers of the existing housing stock found to be in need of rehabilitation, require code
Escalon 2023-2031 Housing Element – Adoption Draft | p. 44 compliance for safer rental units, prevent displacement, monitor the affordability of 42 affordable units, and ensure tenants are paid relocation payments for no-fault just cause throughout the duration of the planning cycle. Coordinate anti-displacement initiatives to conserve the naturally-occurring and deed-restricted housing stock with the actions and objectives stated in Programs 3-3 (Conservation of Affordable Units and Mobile Homes), 3-4 (Energy Conservation), 5-3 (Anti-Displacement Actions), 5-4 (Housing Choice Vouchers) and 5-6 (Code Enforcement).
Program 5-4: Housing Choice Vouchers
The Housing Choice Voucher Program (Section 8) is a federal subsidy program that helps families afford market-rate, private rental housing. Furthermore, landlords housing Section 8 tenants benefit from federally guaranteed rental income. Under State law (SB 329 and SB 222), landlords in California are legally required to accept rental applications from applicants using Section 8 and VASH vouchers and other forms of rental assistance. ▪ Action (A): The City will continue to require developers utilizing tax-exempt financing to include language in agreements with the City permitting persons and households eligible for HUD Section 8 rental assistance. The City will support opportunities for tenant-based Housing Choice Voucher holders to access marketrate units. ▪ Action (B): The City will monitor the status of the Section 8 waiting list on a quarterly basis and issue a citywide notification via the City’s mailing list upon periodic opening of the waiting list, with a goal of reaching 100% of qualifying households. ▪ Action (C): Assist the Housing Authority in holding annual informational meetings and discussions with property owners and managers of single-family and multifamily rentals to expand the number of developments that accept HCV program tenants. In these efforts, the City will assist the Housing Authority in ensuring outreach efforts reach Escalon property owners.
Context New program added to affirmatively further fair housing.
Geography Citywide
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A): Ongoing
Action (B): Quarterly, beginning March 31, 2026.
Action (C): Annually
Escalon 2023-2031 Housing Element – Adoption Draft | p. 45 Objective Increase the number of property owners/landlords that accept HCV in higher resource areas by 25% and reach 100% of
qualifying households to support housing mobility for lowerincome and special needs households.
Program 5-5: Reasonable Accommodation
Continue to ensure that reasonable accommodation is provided for persons with disabilities, including developmental disabilities, through the following actions:
▪ Action (A): Ensure that requests for reasonable accommodations are over the counter, fast, and free. Conduct a biannual (every two years) administrative review of the City’s regulations, procedures, and processes to ensure that reasonable accommodation is provided for disabled persons.
▪ Action (B): If barriers to reasonable accommodation are identified, undertake appropriate revisions to address the issue within six months, or prioritize as funding allows. If no reasonable accommodation requests are made in any given two-year period, include a statement of program availability in the City’s newsletter and proactive outreach in coordination with local disability rights stakeholders. ▪ Action (C): Amend the Reasonable Accommodations ordinance to remove the finding regarding impacts on surrounding uses.
Context New program added to affirmatively further fair housing.
Geography Citywide
Responsibility Development Services Department
Funding Source General Fund
Timeframe Action (A-B): Biannual review first conducted by April 1, 2025.
Action (C): Concurrent with or immediately following Housing Element adoption.
Objective Address all (100%) requests for reasonable accommodation and biannually review the procedure to ensure that it does not pose a constraint to housing for persons with disabilities.
Program 5-6: Limit Code Enforcement Activities
Continue to prioritize residential code enforcement activities for situations that pose an immediate threat to public health and safety, such as housing that qualifies as a substandard building under Health and Safety Code 17920.3. Such activities do not include minor alterations made to residences without benefit of permit when such
Escalon 2023-2031 Housing Element – Adoption Draft | p. 46 alterations are made to accommodate a special need or disability of the resident(s), or for interior alterations made to allow or honor the residents’ cultural needs or practices, unless those alterations pose an immediate threat to the safety of the residents or neighborhood. In instances of health and safety requiring significant repair, connect residents and property owners with rehabilitation programs and legal assistance. Ensure that code enforcement representatives receive training for cultural sensitivity and allow adequate capacity for services to be conducted.
Context New program added to affirmatively further fair housing.
Geography Citywide
Responsibility Development Services Department, Code Enforcement Division Funding Source General Fund
Timeframe Ongoing; provide code enforcement training by December 31, 2027 and within six months in the event of turnover among City code enforcement staff.
Objective Affirmatively further fair housing, with a goal of 100% of code enforcement activities ensuring consistency with fair housing law and prioritizing public health and safety. In instances where code enforcement activities identify housing rehabilitation needs, coordinate responses with Program 3-3 (Conservation of
Affordable Units and Mobile Homes), Program 3-4 (Energy Conservation), and Program 5-3 (Anti-Displacement Actions) as appropriate to prevent displacement and improve the local housing stock in need of significant repair.
SECTION 2.4: QUANTIFIED OBJECTIVES
Table 4 below summarizes Escalon’s quantified housing objectives for the 2023-2031 Housing Element planning period.
Table 4: Quantified Objectives, City of Escalon, 2023-2031 Program Types Extremely
Low-Income
Very LowIncome Low-Income ModerateIncome
AboveModerate
Income
New
Construction 50 50 95 95 250
Rehabilitation 10 10 10 10 10
Escalon 2023-2031 Housing Element – Adoption Draft | p. 47 Conservation 10 10 10 10 10
ADUs/JADUs 2 2 4 4 5
Total 72 72 119 119 275
In addition to Quantified Objectives required under State Housing Element Law pursuant to Government Code Section 65583(b), the Housing Strategy quantifies the following program-specific objectives with numeric targets to be monitored throughout the planning period in the City’s Annual Planning Report (APR):
Table 5: Housing Program Objectives, 2023-2031
Program Objective
Program 1-1: Maintain
Housing Capacity
Target development of 50% of the City’s RHNA by income
category.
Program 1-2: Maintain
Viable Sites
Alternative production actions if the City is not otherwise on track to meet at least 50% of its lower-income RHNA.
Program 2-2: Senior
Housing
Target of 50 additional affordable senior housing units and/or residential care facility beds established throughout the planning period.
Program 2-5: Affordable
Housing Funding &
Incentives
Target the production of 195 lower-income households
throughout the planning period.
Program 2-6:
Farmworker Housing
Target the development of 10 affordable units for farmworkers and their families throughout the planning period.
Program 3-1:
Neighborhood
Improvements
Support at least three capital improvement projects in areas of highest need and apply for CDBG funds to support
infrastructure needs in a manner that affirmatively furthers fair housing at least twice throughout the planning period.
Program 3-2: Housing
Rehabilitation
Assist at least five households through housing rehabilitation programs.
Program 3-3:
Conservation of
Affordable Units &
Mobile Homes
Preservation of all affordable housing units within the City and outreach conducted to all mobile home parks within the City throughout the planning period in association with Actions (C)- (D), consistent with the unit objectives stated in Program 5-3 (Anti-Displacement Actions).
Escalon 2023-2031 Housing Element – Adoption Draft | p. 48 Program 3-4: Energy
Conservation and
Efficiency
Target of reducing residential water use by 10% and
increasing the use of energy conservation programs by 15% citywide. Target proactively reaching and supporting the improved energy efficiency conditions of 50 households
throughout the planning period through the provision of lowflow plumbing fixtures or comparable electrical upgrades.
Program 4-3: Parking
Standards
Target two (2) citywide development projects utilizing
unbundled parking, one (1) downtown project with a shared parking agreement or mix of uses, and all projects providing requisite space for bikes and scooters throughout the planning period.
Program 5-2: Removal
of Impediments to Fair
Housing
Goal of reaching at least ten (10) landlords and tenants who access and actively engage with the City on services on an annual basis and achieving Spanish language access in
100% of rental agreements.
Program 5-3: AntiDisplacement Actions
Maintain and rehabilitate two single-family residences and work with HCD to maintain and rehabilitate 14 trailers of the existing housing stock found to be in need of rehabilitation, and monitor the affordability of 42 affordable units.
Program 5-4: Housing
Choice Vouchers
Increase the number of property owners/landlords that accept HCV in higher resource areas by 25% and reach 100% of
qualifying households to support housing mobility for lowerincome and special needs households.
Program 5-5:
Reasonable
Accommodation
Address all (100%) requests for reasonable accommodation and biannually review the procedure to ensure that it does not pose a constraint to housing for persons with disabilities.
Program 5-6: Limit Code
Enforcement Activities
Goal of 100% of code enforcement activities ensuring
consistency with fair housing law and prioritizing public health and safety.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 49 SECTION 3: HOUSING SITES
SECTION 3.1: CONTEXT
Under Government Code § 65583(a)(3) the City must identify suitable adequate sites with capacity to fulfill its fair share of the regional housing need, as determined by San Joaquin Council of Governments’ Regional Housing Need Allocation (RHNA). These sites can include vacant sites zoned for residential use, vacant sites that allow residential development, and underutilized sites that are capable of being redeveloped to increase the number of residential units. These sites must have the realistic potential for new residential development within the eight-year Housing Element planning period. Planned, approved, and pending residential projects may receive credit towards the City’s RHNA, along with the projected development of accessory dwelling units (ADUs) and junior accessory dwelling units (JADUs). This section will focus on the inventorying and analyzing of potential opportunity sites and the evaluation of pending, approved, and permitted projects sites to ensure the City is conforming to the Affirmatively Furthering Fair Housing (AFFH) requirements and furthering AFFH objectives.
Escalon has a total RHNA of 367 units, divided among the income categories as follows:
Table 6: Escalon Regional Housing Needs Allocation (RHNA), 2023-2031 Jurisdiction
Very Low
Income
(<50% AMI)
Low
Income (50-
80% AMI)
Moderate
Income (80-
120% AMI)
Above
Moderate
(>120%)
Total
Escalon 90 56 66 155 367
Source: San Joaquin Council of Governments Regional Housing Needs Allocation Plan
As provided for under statute, the City has determined that its Extremely Low Income (ELI) need is one-half of its Very Low Income (VLI) need, or 45 ELI units and 45 VLI units.
Escalon is meeting its RHNA through planned, approved, and pending projects projected to develop during the planning period, sites identified in the Housing Sites Inventory, and ADU development projections.
Assembly Bill 1397 and Senate Bill 166 ("No Net Loss" law), introduced stricter guidelines for the Sites Inventory in the Housing Element. To comply with these requirements, the Housing Element incorporates various strategies and programs, ensuring realistic assumptions for affordability and capacity.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 50 SECTION 3.2: DEVELOPMENT CAPACITY ASSUMPTIONS
Pursuant to Government Code § 65583.1 and 65583.2(a), the City is including planned, approved, and pending projects projected to develop during the planning period, as well as ADU development projections towards their RHNA. Overall, the City is projected to develop 100 planned, approved, and pending units, including ADUs, over the planning period. Housing sites and programs have been included to meet the City’s remaining RHNA, as well as to comply with No Net Loss requirements.
3.2.1 Accessory Dwelling Units
Accessory Dwelling Units (ADUs) and Junior Accessory Dwelling Units (JADUs) can provide affordable housing options for many smaller households including special needs populations such as, seniors, female-headed households, individuals with a disability, farmworkers, and students as well as multi-generational households. ADUs or JADUs can also house in-home health care providers, allowing seniors to continue to live in their own homes. ADUs have a few variations, including:
▪ Detached: The unit is separated from the primary structure. ▪ Attached: The unit is attached to the primary structure. ▪ Converted Existing Space: Space (e.g., master bedroom, attached garage, storage area, or similar use, or an accessory structure) that is converted into an independent living unit.
▪ JADU: A specific type of conversion of existing space that is contained entirely within an existing or proposed single-family residence.
Recent legislation has been passed to facilitate the development of ADUs as one of many efforts to address the severe housing crisis in California. ADU law establishes a statutory minimum requirement. Local governments may elect to go beyond this statutory minimum and further the creation of ADUs. Section 4 of the Housing Element contains an analysis of ADU regulations in Escalon and Section 2 contains programs to further incentivize the development of ADUs.
The projection of ADU and JADU development is based on realistic capacity and development trends of ADUs and JADUs. As shown in Table 7, the City averaged 1.25 ADUs per year between 2018 and 2025.
Although Escalon is not located in the Association of Bay Area Governments (ABAG) region, the regional analysis of ADU affordability conducted by ABAG served as a resource in the determination of assumed affordability levels in the Housing Element since a similar study has not been conducted in the San Joaquin Valley. The ABAG ADU affordability analysis indicates assumed affordability levels of 30% of ADUs to very lowincome households, 30% to low-income households, 30% to moderate-income households, and 10% to above-moderate-income households.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 51 Table 7: ADU Permits Issued or Completed by Year in Escalon Year ADU/JADUs Permitted
2018 0
2019 1
2020 2
2021 2
2022 1
2023 0
2024 1
2025 3
Total 10
Assumptions Average of 1.25 ADUs per year
10 in planning cycle
Source: Escalon Annual Progress Reports
As a next step, the following local affordability analysis was considered. Based on the 2022 AMI for San Joaquin County, low-income households of three could afford a monthly rent of $1,490, a low-income household of two could afford a monthly rent of $1,325, and a low-income household of one could afford a monthly rent of $1,159. According to the U.S. Census Bureau American Community Survey, the median gross rent in Escalon is $1,302.
Similar to the ABAG study, the City of Stockton’s ADU affordability analysis assumes 60% of its anticipated ADU production will be affordable to lower-income households, 30% will be available to moderate-income households, and 10% will be available to abovemoderate households. As depicted in Table 8, Escalon is counting a total of 131 units towards its RHNA across various income categories. After considering the projected development of ADUs and the capacity of planned, approved, and pending residential projects, there are not sufficient units to accommodate the City’s RHNA. As such, identification of viable sites to accommodate the City’s remaining RHNA is required (see Section 3.3).
As shown in Table 7, 10 ADUs are projected to be built during the planning period. The City anticipates that six (6) will be available to low-income households, three (3) will be for moderate-income households, and one (1) will be for an above-moderate income household.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 52
3.2.2 Planned, Approved, and Pending Projects
As previously discussed, state law allows jurisdictions to count planned, approved, and pending residential projects as credits towards their RHNA. As shown in Table 7, 100 housing units are planned, approved, or pending. Descriptions of these projects are included below.
Table 8: Planned, Approved, and Pending Projects for RHNA Credit Project LI MI AMI Total
Units Status Antic. Occupancy
Murphy Ranch - 7 65 72 In Hearing Late 2026
706 California
Street - 2 26 28 Planned 2027
Countrywood
Cottages 18 - - 18 Approved 2026
East California
Street Apartments 79 - 1 80 Application Submitted 2028
RHNA Credit 97 9 92 198
Murphy Ranch
Murphy Ranch is a 72-unit subdivision to be located at the southeast corner of CA-120 and Brennan Avenue. The single-family project contains 8 deed-restricted units, and is proposed for moderate- and above moderate-income households. It is located in a high resource area, as designated in Section 5, Figure 16. The project is not likely to improve or exacerbate the distribution of fair housing conditions in Escalon. The next step for development of this project is submittal of the final map and building permit applications, expected in mid-2026.
706 California St.
706 California Street is a planned 28-unit residential development to be located at the northeast corner of California Street and Irwin Avenue. The proposed project is comprised of a 14-lot subdivision to facilitate the development of 10 duplexes (20 duplex units) and four single family residences with ADUs. Two (2) units will be deed-restricted to low- or moderate-income households consistent with the City’s Affordable Housing Ordinance; moderate income units are assumed for the sites inventory. The project is located in a high resource area, as designated in Section 5, Figure 16 TCAC Opportunity Map Composite Score, City of Escalon, 2024. While the project is not proposed to be deed restricted to lower incomes, the attached units are proposed to be more affordable than larger single-family homes and are anticipated to sell in the moderate to middle income ranges. The project is therefore likely to improve the distribution of fair housing conditions in Escalon. The next step for development of this project is map approval, followed by issuance of Building Permits, Map approval is expected during 2026, with Building Permits expected in 2026 and occupancy in 2027.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 53 Countrywood Cottages
Countrywood Cottages is an 18-unit affordable multi-family residential development for seniors planned at Countrywood Lane near the intersection of Countrywood and McHenry Avenue. The development is proposed to be built on a 0.76-acre site in the C-2 zoning district at a density of 23.7 dwelling units per acre and was approved in early 2024.
Countrywood Cottages is deed restricted for lower-income households for 55 years. The project is located in a high resource area, as designated in Section 5, Figure 16 TCAC Opportunity Map Composite Score, City of Escalon, 2024. The project is therefore likely to improve the distribution of fair housing conditions in Escalon. As of January 2025, this project was fully entitled and had submitted for building permits. Occupancy is expected in 2026.
East California Street Apartments
East California Street Apartments is an 80-unit affordable multifamily residential development proposed by Bold Communities on four parcels comprised 1090 E California St, 1070 E California St, 1062 E California St, and 1034 E California St. The project applicant submitted an SB 423/SB 35 application in June 2026. The project is located in a moderate resource area, as designated in Section 5, Figure 16 TCAC Opportunity Map Composite Score, City of Escalon, 2024, therefore is unlikely to improve the distribution of fair housing conditions in Escalon. The development will be deed-restricted affordable to low-income residents with one on-site unit for property management. Occupancy is anticipated in 2028.
3.2.3 Units Credited Toward RHNA
As depicted in Table 9, Escalon is counting a total of 235 units towards its RHNA across various income categories. After considering the projected development of ADUs and the capacity of planned, approved, and pending residential projects, there are not sufficient units to accommodate the City’s RHNA. As such, identification of viable sites to accommodate the City’s remaining RHNA is required (see Section 3.3).
Table 9: RHNA Credits
Lower
Income
Moderate
Income
Above
Moderate
Income
Total
RHNA Allocation 146 66 155 367
RHNA
Credits
Pipeline 97 9 119 225
ADUs/JADUs 6 3 1 10
Total 103 12 120 235
RHNA Shortfall after Credits 43 54 35 132
Escalon 2023-2031 Housing Element – Adoption Draft | p. 54 SECTION 3.3: REALISTIC CAPACITY OF SITES ZONED FOR
HOUSING
Government Code section 65583.2(a) stipulates that a jurisdiction must identify, as part of an inventory, sites within its boundaries that could have the potential for new residential development within the housing element planning period. Sites are generally grouped by type, including vacant sites zoned for residential use, vacant sites zoned for nonresidential use that allow residential development, and non-vacant sites, including underutilized sites, that can be developed for residential use. This section describes the general characteristics of the sites included in the inventory, an analysis of site suitability, as well as the methodology used to determine the number of units that can be reasonably developed on a site.
3.3.1 Vacant Sites
A total of eight (8) vacant sites are identified in the inventory to accommodate the City’s RHNA (Table 12). The methodology used to determine the realistic capacity of the sites identified in Table 9 can be found in Section 3.3.3 and Section 3.3.4.
Table 10: Realistic Capacity of Vacant Parcels
Site
#
Site Address APN Zone General Plan Acreage Realistic
Capacity
1 1124 E California St 225-100-08 R-3
High Density
Residential 1.37 20
2 Reserved
3 Reserved
4 1112 First St 225-126-13 R-3
High Density
Residential 0.37 5
5/6 3100 S McHenry Ave
3200 S McHenry Ave
247-150-71
247-150-72 C-2 Commercial 1.98 25
7 S McHenry Ave 247-150-73 C-2 Commercial 3.15 40
8 1310 Irwin Ave 225-070-20 R-2
Medium Density
Residential 2.37 23
9 1780 Autumnwood Ct 227-650-16 R-1
Low Density
Residential 0.53 1
10 1260 Lillian Ave 225-140-25 C-2 Commercial 1.68 19
Total 128
Escalon’s vacant sites are substantially equipped and available for housing development, with some of the City’s vacant and non-vacant sites currently active on the market.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 55 One commercial site included within the inventory (Site #7) held land use approvals for commercial development that have since expired. C-2 sites allow more dwelling units per acre than the default density for sites to realistically accommodate affordable housing development and likely provide residential development opportunities comparable to or exceeding the opportunity posed by commercial development. Nonetheless, the capacity assumptions for commercial sites include a conservative 50% multiplier to account for potential non-residential development.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 56 Figure 2: Housing Opportunity Sites in Escalon
Escalon 2023-2031 Housing Element – Adoption Draft | p. 57 Sites #1-3
Three separate adjacent parcels located on East California Street comprise parcels originally included in the Housing Element as Sites #1-3. Sites #2-3 are included in the Adoption Draft Housing Element as the East California Street pipeline project, and are not calculated toward the total vacant site inventory. Site 1 is included in the Housing Element vacant inventory, and Sites #2-3 are reserved in the vacant site numbering order.
Zoning/General Plan R-3 – High Density Residential
Acreage 1.37 acres (#1)
Capacity 20 units (#1)
RHNA Level Above Moderate (Market-Rate) & Moderate
TCAC Resource Area Moderate Resource Area
Figure 3: Escalon Housing Opportunity Sites #1-3
Escalon 2023-2031 Housing Element – Adoption Draft | p. 58 Site #4
Site #4 is a 0.37-acre parcel located at 1112 First Street.
Zoning/General Plan R-3 – High Density Residential
Acreage 0.37 acres
Capacity 5 units
RHNA Level Above Moderate (Market-Rate)
TCAC Resource Area High Resource Area
Figure 4: Escalon Housing Opportunity Site #4
Escalon 2023-2031 Housing Element – Adoption Draft | p. 59 Sites #5-7
Three adjacent parcels along South McHenry Avenue make up Sites #5-7. The sites are
0.92, 1.06, and 3.15 acres in respective size.
Commercial development was previously approved on Site 7, but approvals have since expired. Several parcels are listed for sale as of December 2023.
Zoning/General Plan C-2 – Commercial
Acreage 0.92 acres (#5), 1.06 acres (#6), 3.15 acres (#7) Capacity 13 units (#5), 12 units (#6), 40 units (#7)
RHNA Level Moderate (#5-6), Lower (#7)
TCAC Resource Area Moderate Resource Area
Figure 5: Escalon Housing Opportunity Sites #5-7
Escalon 2023-2031 Housing Element – Adoption Draft | p. 60 Site #8
Site #8 is a 2.37-acre parcel located at 1310 Irwin Avenue. The site is abutted by State Highway 120 to the north, Irwin Avenue to the west, and the current terminus of Rosina Street to the south.
Zoning/General Plan R-2 – Medium-Density Residential
Acreage 2.37 acres
Capacity 23 units
RHNA Level Above Moderate (Market-Rate) & Moderate
TCAC Resource Area High Resource Area
Figure 6: Escalon Housing Opportunity Site #8
Escalon 2023-2031 Housing Element – Adoption Draft | p. 61 Site #9
Site #9 is a 0.53-acre parcel located at 1780 Autumnwood Court. The parcel is included in inventory as an opportunity site for a low-density, market-rate housing development.
Zoning/General Plan R-1 – Low-Density Residential
Acreage 0.53 acres
Capacity 1 unit
Income Level Above Moderate (Market-Rate)
TCAC Area High Resource Area
Figure 7: Escalon Housing Opportunity Site #9
Escalon 2023-2031 Housing Element – Adoption Draft | p. 62 Site #10
Site #10 is a 1.68-acre parcel located at 1260 Lillian Avenue. The parcel is included in inventory as an opportunity site for a mixed-income housing development.
Zoning/General Plan C-2 – Commercial
Acreage 1.68 acres
Capacity 19 units
Income Level Low & Moderate
TCAC Area High Resource
Figure 8: Escalon Housing Opportunity Site #10
Escalon 2023-2031 Housing Element – Adoption Draft | p. 63
3.3.2 Non-Vacant Sites
The Housing Element sites inventory does not include non-vacant sites. 1260 Lillian Avenue was included as a non-vacant site in earlier drafts of the Housing Element, but is now included in 3.3.1 (Vacant Sites) following demolition of an uninhabitable structure.
3.3.3 Religious Institution Sites
Sites #11-13 are religious institutions parcels that have realistic development potential and are suitable to count towards the City’s lower income RHNA due to the passage of Senate Bill 4 (SB 4). SB 4, also known as the Affordable Housing on Faith and Higher Education Lands Act of 2023, introduces streamlined approval processes for housing development projects on lands owned by religious institutions or higher education institutions. The bill establishes specific criteria and requirements allowing for the development of housing units for lower-income households, as defined by Section 50079.5 of the Health and Safety Code. Up to 20 percent of the total units in the development may be for moderate-income households, as defined in Section 50053 of the Health and Safety Code. Additionally, SB 4 stipulates that the development project shall be allowed by right at a density deemed appropriate to accommodate housing for lower income households identified in subparagraph (B) of paragraph (3) of subdivision (c) of Section 65583.2 and a height of one story above the maximum height otherwise applicable to the parcel. If greater residential density or building heights are allowed on an adjacent parcel, the greater density or building height shall apply.
Government Code section 65583.2, subdivision (c)(3)(B), allows local governments to utilize “default” density standards that are “deemed appropriate to accommodate housing for lower income households.” In Escalon, the default density is 20 dwelling units per acre. Additionally, SB 4 projects are eligible for a density bonus, incentives, concessions, waivers or reductions of development standards and parking ratios, pursuant to Section 65915. Although Sites #11-13 are non-vacant, the realistic development capacity was calculated using only vacant portions of the properties at the default density (developable acreage only, rather than the full parcel). Pursuant to SB 4, the development of Sites #11-13 with affordable housing does not require a conditional use permit, planned unit development permit, or other discretionary local government review; however, for the sites to be included within the City’s Site Inventory, rezoning to add the Religious Institution Overlay Zone will be required.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 64 Table 11: Realistic Capacity of Religious Institution Parcels Site# Site Address APN Zone General Plan Total
Ac
Vacant,
Developable
Ac
Realistic
Capacity
11 1511 Catherine
Way
247-
150-43 C-2 Commercial 4.33 2.95 50
12 1155 Escalon
Avenue
225-
020-18 R-2
Medium
Density
Residential
14.52 10 170
13 2149 Jackson
Ave
227-
260-27 C-2 Commercial 1.17 0.62 11
Total 231
Site #11
Site #11 is a 2.98-acre parcel located south of Catherine Way, east of McHenry Avenue.
The site is predominantly surrounded by residential uses, with one commercial development located to the west of the site. The site is currently developed with a parking lot and a church on approximately 1.38-acres of the parcel. The remaining 2.95-acre portion of the parcel can accommodate 47 lower-income and 12 moderate-income units.
The site is located on the border of a high and moderate resource area, therefore the development of affordable housing on the site would likely not improve nor exacerbate the fair housing conditions in the City of Escalon.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 65 Figure 9: Escalon Housing Opportunity Site #11
Escalon 2023-2031 Housing Element – Adoption Draft | p. 66 Site #12
Site #12 is a 14.52-acre parcel located to the west of Escalon Avenue, south of Arthur Road. The site is developed with a parking lot and a church on approximately on a 3.59- acre portion of the site, fronting Escalon Avenue. Approximately 10.93 acres are undeveloped. The developable acreage of the site rather than the entire parcel was used to calculate density due to site conditions. Ten acres of developable land have been included in the Sites Inventory of the 10.93 acres available due to site specific allowances (i.e., setbacks and egress) and can accommodate 176 lower-income and 44 moderateincome units. The site is located in a high-resource area and would likely improve the fair housing conditions in the City of Escalon if it were developed.
Figure 10: Escalon Housing Opportunity Site #12
Escalon 2023-2031 Housing Element – Adoption Draft | p. 67 Site #13
Site #13 is a 1.17-acre parcel located south of Jackson Avenue, between 4th Street and David Drive. The site is developed with a parking lot and two churches on a 0.55-acre portion of the parcel fronting Jackson Avenue. The remaining 0.62-acre portion of the site can accommodate 10 lower-income units and two (2) moderate-income units. The site is located in a high resource area and would therefore likely improve the fair housing conditions in the City of Escalon.
Figure 11: Escalon Housing Opportunity Site #13
Escalon 2023-2031 Housing Element – Adoption Draft | p. 68
3.3.4 Sites Suitability Analysis
Summary of Site Suitability
The identified sites have realistic development potential and are suitable to count towards the City’s RHNA. The City can accommodate 16% of its lower-income RHNA with pipeline projects and ADU projections. Pending projects with identified lower-income capacity are likely to develop during the planning period, as discussed in Section 3.2.2, and the lowerand moderate-income units in those projects will be made affordable to the identified income groups through a deed restriction. Additionally, six (6) ADUs are assumed to be affordable to moderate-income units based on the affordability analysis outlined in Section 3.2.1. The remaining RHNA is accommodated through vacant sites, 176 of which are located on sites designated for residential use. More than 50% of the remaining lowerincome RHNA is accommodated on vacant sites.
All identified sites have adequate infrastructure access. Sites that have been used in previous planning periods to accommodate lower income RHNA are subject to a program to allow by-right development at a minimum of 20 units per acre if 20% of the site’s units are affordable (Program 1-2), as required by State law.0F0F 1 Vacant sites, pipeline projects,
and ADU projects are anticipated to accommodate over half of the City’s lower income RHNA. The remaining lower income RHNA is accommodated by the religious institution sites and are deemed highly suitable for the development of both lower- and moderateincome housing following the legislative advancement of Senate Bill 4, bolstered by the programs described in Section 2.
Additionally, the Department of Housing and Community Development has determined that parcels intended for building units aimed at lower-income households should range between 0.5-acre and 10 acres. Parcels smaller than 0.5-acre, even if zoned for high densities, might not facilitate the necessary scale of development crucial for accessing competitive funding resources that support affordable housing projects. Conversely, financing lower-income housing developments might be challenging for projects on parcels exceeding 10 acres. The sites identified in the Sites Inventory that accommodate the City’s lower-income RHNA are larger than 0.5-acre and smaller than 10 acres with the exception of Site #12. Although Site #12 is larger than 10 acres, the developable acreage meets the criteria and has been included in the Sites Inventory.
Five sites (Site 5/6, Site 7, Sites 10-11, and Site 13) included in the Sites Inventory allow for commercial uses. Development trends indicate that parcels zoned C-2 have an 85% likelihood of residential development. Since 2019, seven projects located on parcels zoned C-2 have been proposed in Escalon. Of the seven projects, six have developed with residential units as part of the proposed project. 1 California Government Code Section 65583.2(i).
Escalon 2023-2031 Housing Element – Adoption Draft | p. 69
3.3.5 Realistic Capacity Analysis
Government Code Section 65583.2(c) requires, as part of the analysis of viable sites, that the projected residential development capacity of the sites identified in this section be calculated to demonstrate that the sites can realistically be achieved. Minimum densities were utilized to determine the realistic capacity of the sites identified to accommodate the City’s remaining RHNA after the consideration of RHNA credits and affordability levels were determined using Chapter 17.50 of the Escalon Municipal Code, which outlines the City’s inclusionary zoning requirements. The Sites Inventory includes parcels in four zoning districts that allow a variety of residential uses at the following density standards:
▪ The Low Density Residential District (R-1): minimum of two dwelling units per acre and maximum of six dwelling units per acre.
▪ The Medium Density Residential District (R-2): minimum of 10 dwelling units per acre and maximum of 15 dwelling units per acre.
▪ The Multiple-Family Residential District (R-3): minimum of 15 dwelling units per acre and maximum of 29 dwelling units per acre.
▪ The Community Commercial District (C-2): standards in the R-3 zone apply (minimum of 15 dwelling units per acre and maximum of 29 dwelling units per acre).
Additionally, as described in Section 3.3.2, the realistic capacity for the nonvacant religious institution sites was calculated using only vacant and underutilized portions of the properties at default density of 20 dwelling units per acre.
Table 12: RHNA and Adequate Sites
Lower
Income
Moderate
Income
Above
Moderate
Income
Total
RHNA 146 66 155 367
Pipeline Projects 97 7 76 180
ADU Projections 6 3 1 10
Vacant Sites 100 29 4 133
Religious Institutions 241 0 - 241
Total Units in Sites Inventory 450 39 80 569
RHNA Surplus 304 -27 -75 202
Escalon 2023-2031 Housing Element – Adoption Draft | p. 70 Table 13: Summary Table of Housing Element Sites
Capacity of Sites Allowing Residential Development
Site
#
Used
Prior? Site Type Site Address APN Existing Use Zoning Allowed Density Acres TCAC
Resource
Area
Total
Units
Low Mod AMI
1 4th/5th Nonvacant
Residential 1124 E California St 225-100-08
Vacant
Structure
(15+ years)
R-3 29u/a 1.37 Moderate 20 20 0 0
2 Reserved
3 Reserved
4 5th
only
Vacant
Residential 1112 First Street 225-126-13 None R-3 29u/a 0.37 High 5 0 5 0 5&6 No
Vacant
Commerci
al*
3100/3200 S
McHenry Ave
247-150-71
247-150-72 None C-2 29u/a 1.98 Moderate 25 25 0 0
7 5th
only
Vacant
Commerci
al*
S McHenry Ave 247-150-73 None C-2 29u/a 3.15 Moderate 40 40 0 0 8 5th
only
Vacant
Residential 1310 Irwin Ave 225-070-20 None R-2 15u/a 2.37 High 23 0 20 3 9 5th
only
Vacant
Residential
1780 Autumnwood
Ct 227-650-16 None R-1 6u/a 0.53 High 1 0 0 1
10 5th
Vacant
Commerci
al*
1260 Lillian Ave 225-140-25
Vacant
(Demolishe
d Structure)
C-2 29u/a 1.68 High 19 15 4 0
Subtotal 133 100 29 4
Religious Institution Sites
11 No RI 1511 Catherine
Way 247-150-43
Church &
Parking on
portion
C-2 20u/a 2.95** Moderate 59
Escalon 2023-2031 Housing Element – Adoption Draft | p. 71 12 No RI 1155 Escalon Ave 225-020-18
Church &
Parking on
portion
R-2 20u/a 14.52** High 170
13 No RI 2149 Jackson Ave 227-260-27
Church &
Parking on
portion
C-2 20u/a 0.62** High 12
Subtotal 241
Pipeline Projects
1*** No Agricultura
l
18106 Brennan Rd
(Murphy Ranch) 225-040-29 Yes AU20***
Max
6u/a 25.34 High 72
2 5th
only
Vacant
Residential 706 California St 225-070-32 No R-2
Max
15u/a 1.28 High 28
3 No
Vacant
Commerci
al*
1462 Countrywood
Ln (Countrywood
Cottages)
227-320-32 No C-2
Max
29u/a 1.17 High 18
4 Yes Vacant
Residential
1090, 1070, 1062,
1034 E California St
225-100-10
225-100-11
225-100-12
225 100 16
No R-3
Max
29 u/a 2.74 Moderate 80
Subtotal 180
Total 569
* C2 allows residential development up to 29 u/a. These parcels are under common ownership and are adjacent, together forming a single site.
** Acreage reflects the VACANT portion of site only; housing uses are assumed to be additive and not to replace existing church and parking uses.
*** Parcel is located outside of city limits in the unincorporated County; annexation is currently pending with LAFCO.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 72 SECTION 3.4: PROGRAMS TO ENSURE ADEQUATE SITES
3.4.1 Summary of Programs to Ensure Adequate Sites
Escalon’s five Housing Goals contain a suite of policies and programs to ensure that the City can fulfill and maintain its RHNA over the eight-year planning period.
Specific program actions to support residential uses include:
▪ Program 1-2: Maintain Viable Sites
▪ Program 1-3: Accessible, Transparent Development Application Information and Standards
▪ Program 2-1: Zoning for a Variety of Housing Types
▪ Program 2-5: Affordable Housing Funding and Incentives ▪ Program 3-1: Neighborhood Improvements
▪ Program 4-3: Parking Standards
Escalon 2023-2031 Housing Element – Adoption Draft | p. 73 SECTION 3.5: FAIR HOUSING CONSIDERATIONS
3.5.1 Relationship of Sites to Fair Housing Analysis
Housing sites identified to meet Escalon’s RHNA are distributed throughout the community in a manner that affirmatively furthers fair housing. A full analysis of inventory sites compared to components of the Fair Housing Assessment is included in Section 5.
Figure 12: Distribution of Housing Sites in Escalon
Escalon 2023-2031 Housing Element – Adoption Draft | p. 74 Figure 13: Location of Planned, Approved, and Pending Projects Segregation is the separation of different demographic groups into different geographic locations or communities, meaning that groups are unevenly distributed across geographic space. Integration in the equal distribution of demographic groups within a geographic location or community. The Fair Housing Assessment (Section 5) analyzes the extent of racial and income segregation and integration both on the neighborhood level and vis-à-vis the region.
Segregation is partly a result of historical exclusionary zoning practices, which is the use of zoning ordinances to exclude certain types of land uses and/or races and ethnicities from a given community. Exclusionary zoning was introduced in the early 1900s, typically to prevent racial and ethnic minorities from moving into middle- and upper-class neighborhoods. In the United States, exclusionary zoning is standard in almost all communities and is used to limit the supply of available housing units, such as prohibiting multifamily residential dwelling and minimum lot size requirements.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 75 The federal practice of redlining was implemented beginning in the 1930s. In the northern San Joaquin Valley, the practice of redlining was implemented in the counties of Sacramento, San Joaquin, Fresno, and Kern. Stockton was the only municipality in San Joaquin County with redlined neighborhoods, and the post-WWII development boom paved the path of drastically expanded housing in San Joaquin County through predominantly single-family patterns of development (see Figure 14). San Joaquin County’s largest postwar expansion of population on a percentage basis occurred in the 1940s (49.6%), but Escalon only substantially developed following incorporation in 1957 added the most residents in the 1990s (34.4%). Escalon experienced a slowdown in housing production and population growth over the post-Recession 2010s with a 4.8% growth in total residents, the only single-digit percentage growth on record.
Figure 14: HOLC Redlining Map for City of Stockton
Despite the absence of the practice of redlining, the City of Escalon has a high proportion of R-1 single-family zoning relative to other zones. Single-family zoning commonly contributes to segregation on the basis of race, income, and other characteristics. This type of zoning is inherently exclusionary given that it prevents the occurrence of other,
Escalon 2023-2031 Housing Element – Adoption Draft | p. 76 more affordable types of residential uses. Implementation actions to incentivize missing middle housing (e.g. townhomes and multiplexes) are included in Program 2-3: Missing Middle Housing through implementation of SB 684, SB 1123, and SB 9. This action was included to comply with new State laws and respond to support for missing middle housing types such as accessory dwelling units (ADUs) identified by the public in the Housing Needs & Opportunities Survey.
3.5.2 Improved and Exacerbated Conditions
The identified housing sites are spread throughout the City and sites with capacity for lower-income housing are not concentrated in areas with a high concentration of existing affordable housing. Escalon’s sites are primarily located within High and Highest Resource Areas, higher than the most neighboring jurisdictions in San Joaquin and Stanislaus Counties. In the case that unlawful and discriminatory covenants, conditions, and restrictions exist on a property that limit the ability to develop low-income housing, programs exist for owners to remove such covenants from deeds.
Fair housing conditions are not exacerbated by the housing development anticipated within the 2023 Housing Element.
SECTION 3.6: INFRASTRUCTURE CONSIDERATIONS
Escalon has adequate water, sewer, and dry utilities infrastructure to accommodate the development of its RHNA. The capacity of infrastructure is summarized below and the sources of information can be found in Section 1.
3.6.1 Water
The City of Escalon serves as the water utility provider for all residents. The City is exploring a surface water project with South San Joaquin Irrigation District (SSJID) through the South County Water Supply Project (SCWSP) and has four groundwater wells to supply potable water to its residents. The City has developed a scheduled improvement program that prompts necessary improvements to ensure water supply and system capacity are in alignment with future buildout. There is sufficient total water capacity (existing and planned) to accommodate the RHNA. Sites in inventory have utilities, including water, available in the street frontage.
3.6.2 Sewer
The City owns and operates two wastewater treatment and disposal systems. The City uses a secondary oxidation system (aerated lagoons) to treat wastewater. The sewer service area encompasses approximately 1130 acres of land with the majority (42%) of the land use in the low to high density residential area. When a new development triggers the expansion of the sewer systems, the new development must extend the sewer system and "oversize" the facility to accommodate future flows within or beyond the development.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 77
3.6.3 Storm Drainage
The City of Escalon’s storm drainage system depends on SSJID’s existing system of irrigation laterals to transport storm drain runoff from the City. Escalon’s stormwater mostly discharges to lateral B, which goes to Lone Tree Creek, French Camp Slough, and the San Joaquin River. There are ten storm drainage sheds throughout the City, each containing a storm drain system that collects runoff from within the drainage shed and transports the flows to a City-maintained storm drain basin. Runoff is temporarily stored in the basins and then pumped into the SSJID laterals at the reduced flow rate. Escalon follows the Post-Construction Plan and Best Management Practices that was established to guide project proponents and plan checkers on how to meet the State Water Board's requirements for mitigating the negative impact of increases in storm water runoff caused by new development and redevelopment.
3.6.4 Other Utilities
Electricity and natural gas are provided by Pacific Gas and Electric Company (PG&E).
SSJID has been actively working to replace PG&E electrical service. SSJID continues to invest in updated financial feasibility studies to ensure that they are able to deliver reliable electric service and at lower rates.
The City’s solid waste is serviced by Gilton Solid Waste Management, a private company providing services to the City since 1974. Services include curbside waste and compost.
AT&T, Spectrum, Ayera, and EZwave Internet are top contenders among internet service providers, offering affordable internet plans and providing services to most residents.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 78 SECTION 3.7: ENVIRONMENTAL CONSIDERATIONS
The following section evaluates environmental conditions in the City of Escalon that could act as barriers to development. None of the environmental conditions evaluated preclude development.
3.7.1 Fire
There are no historic records of wildfire events near Escalon since the 1980’s. A minor wildfire risk is projected over the next 30 years. This is based on the level of risk the properties face rather than the proportion of properties with risk. The City of Escalon is already investing in wildfire control projects to minimize the wildfire risks.
3.7.2 Earthquake
Escalon is located within the Central Valley and the San Joaquin fault zone is the closest to the City. The fault is made up of numerous buried faults extending along the western margin of the Great Valley. As is common throughout the State of California, Escalon has a high earthquake risk. According to the USGS database, there is a 66% chance of a major earthquake within 50km of Escalon within the next 50 years.
Figure 15: Earthquake Shaking Probability Map
Source: University of Southern California (USC), The Great California Shakeout
3.7.3 Flood
The greatest external risk to flooding is the Stanislaus River but the distance from the river and the topography (sloping toward the River) benefits the City and decreases major
Escalon 2023-2031 Housing Element – Adoption Draft | p. 79 flooding problems. According to FEMA flood maps, the City is not situated in the 100- or even 200-year flood zone. Escalon has a moderate flooding risk over the next 30 years.
This is based on the level of risk the properties face rather than the proportion of properties with risk.
Development consistent with the City’s Building Code and adopted Storm Drainage Master Plan will minimize risks associated with geological and flooding hazards and allow development of property consistent with uses and densities allowed in the Zoning Code.
Figure 16: Escalon Flooding Risk Factor Map
Source: National Flood Hazard Layer – Federal Emergency Management Agency
3.7.4 Landslides
Escalon is essentially flat, with a maximum elevation change of 33 feet and an average elevation above sea level of 115 feet. Within ten miles of the City limits, the land is also flat. There are no landslide events recorded to date in the City and neighboring cities. It is much less likely that the City will be impacted by landslide hazard due to its flat topography.
Escalon 2023-2031 Housing Element – Adoption Draft | p. 80
CONCLUSION
Section 3 concludes the policy document of the Housing Element. The core of the Housing Element includes Section 1 (Introduction), Section 2 (Housing Strategy), and Section 3 (Housing Sites).
The supplemental sections of the Housing Element address technical research requirements to support the Housing Element policy document:
▪ Section 4 (Technical Background Report) analyzes Housing Needs, Resources, and Constraints.
▪ Section 5 (Fair Housing Assessment) analyzes fair housing conditions and Affirmatively Furthering Fair Housing (AFFH).
▪ Appendices provide background context on sites, community engagement, and program implementation.
The City of Escalon is well positioned to successfully implement the policies, programs, and actions of this Housing Element. The 2023 Housing Element serves the housing needs of the next eight years for current and future residents and fulfills the statutory requirements of the State of California.
The Housing Element demonstrates that the City has the housing sites and planned projects needed to address and surpass its Regional Housing Needs Allocation.
Moreover, the selected sites are integrated throughout the City in consideration of existing and enhanced fair housing requirements. Programs have been identified to mitigate constraints to the production of housing, and to ensure that Escalon can continue to be an affordable and vibrant community for a wide variety of residents in the years to come.
Adoption Draft
Technical Background Report
August 2026
Attachment 3
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 1 SECTION 4: TECHNICAL BACKGROUND REPORT
Table of Contents
SECTION 4.1: INTRODUCTION..................................................................................... 4 SECTION 4.2: HOUSING NEEDS ANALYSIS ................................................................ 4
4.2.1 Population Characteristics and Housing Data..................................................... 4 Population Trends .................................................................................................... 4 Housing Cost and Affordability ................................................................................. 6 Employment Characteristics .................................................................................... 8 Housing Stock Conditions ........................................................................................ 9 At-Risk Assisted Affordable Housing...................................................................... 12
4.2.2 Special Housing Needs Analysis ...................................................................... 12 Extremely Low-Income Households....................................................................... 12 Senior Households................................................................................................. 15 Persons with Disabilities ........................................................................................ 16 Large Households.................................................................................................. 18 Farmworker Households ........................................................................................ 19 Female-Headed Households ................................................................................. 21 Homelessness........................................................................................................ 22 SECTION 4.3: HOUSING RESOURCES...................................................................... 23
4.3.1 Housing Assistance Programs.......................................................................... 23
4.3.2 Zoning for a Variety of Housing Types .............................................................. 26 Single-Family Housing ........................................................................................... 26 Multi-Family Housing.............................................................................................. 26 Housing for Agricultural Employees ....................................................................... 26 Emergency Shelters and Low Barrier Navigation Centers ..................................... 26 Transitional Housing............................................................................................... 27 Supportive Housing................................................................................................ 27 Residential Care Facilities...................................................................................... 27 Manufactured Housing........................................................................................... 28 Mobile Home Parks................................................................................................ 28
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 2 Accessory Dwelling Units....................................................................................... 28 Missing Middle Housing ......................................................................................... 28
4.3.3 Opportunities for Energy Conservation in Residential Development ................ 28 Existing Residential Energy Use in Escalon........................................................... 29 General Plan Policies............................................................................................. 29 Subsidies and Incentives ....................................................................................... 29 Energy Conservation in New Residential Developments ....................................... 30 SECTION 4.4: HOUSING CONSTRAINTS................................................................... 31
4.4.1 Nongovernmental Constraints .......................................................................... 31 Land Costs............................................................................................................. 31 Availability of Financing.......................................................................................... 32 Environmental Conditions ...................................................................................... 33 Availability of Infrastructure .................................................................................... 36 Construction Costs................................................................................................. 38
4.4.2 Governmental Constraints ................................................................................ 39 Land Use Controls ................................................................................................. 39 Requests to Develop Below Minimum Densities.................................................... 44 Local Processing and Permit Procedures .............................................................. 44 Project Processing for Conforming Housing Projects............................................. 45 Fees and Other Exactions...................................................................................... 48 Building Codes and Enforcement........................................................................... 50 Housing for Individuals with Disabilities ................................................................. 50 Affordable Housing (Inclusionary) Program............................................................ 52 Growth Management Ordinance ............................................................................ 54 TABLES
Table 1: Population Trends, 1970-2021........................................................................... 4 Table 2: Population by Age in Escalon, 2000-2021 ......................................................... 4 Table 3: Population by Race/Ethnicity 2010-2021 ........................................................... 5 Table 4: Households by Tenure ....................................................................................... 6 Table 5: Median Home Value and Gross Rent, 2010-2021 ............................................. 6 Table 6: Cost Burden by Tenure ...................................................................................... 7
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 3 Table 7: Median Market Rental Costs.............................................................................. 7 Table 8: Median Home Sale Price, June-August 2024 .................................................... 7 Table 9: Home Values of Owner-Occupied Units............................................................. 8 Table 10: Employment by Industry .................................................................................. 8 Table 11: Year Built of Housing Units............................................................................... 9 Table 12: Vacancy by Type............................................................................................ 11 Table 13: Inventory of Assisted Affordable Housing....................................................... 12 Table 14: Median Hourly Wage by Occupation.............................................................. 13 Table 15: Escalon Household Income Level by Tenure................................................. 13 Table 16: Cost Burden and Housing Problems by Tenure, Escalon, 2018 .................... 14 Table 17: Senior Households by Tenure........................................................................ 15 Table 18: Disability Status by Age Group ...................................................................... 17 Table 19: Persons with Developmental Disabilities by Age ........................................... 17 Table 20: Household Size by Tenure............................................................................. 18 Table 21: Number of Bedrooms by Tenure .................................................................... 18 Table 22: San Joaquin County Farms and Farmworkers............................................... 19 Table 23: Female-Headed Households in Escalon, 2021.............................................. 21 Table 24: Persons Experiencing Homelessness by Shelter Status, 2019-2024 ............ 22 Table 25: Land Costs in Escalon ................................................................................... 31 Table 26: Permitted Residential Uses............................................................................ 39 Table 27: Development Standards by Zoning District.................................................... 41 Table 28: Parking Requirements ................................................................................... 42 Table 29: Timelines for Permit Procedures and Decision-Making Authority................... 44 Table 30: Permitting and Processing Fees.................................................................... 48 Table 31: City of Escalon Development Impact Fees .................................................... 49 Table 32: City of Ripon Development Impact Fees ....................................................... 50 Table 33: GMO Allocation Adequate to Accommodate 6th Cycle RHNA........................ 57 Table 34: Growth Management Allocation Program 15 Year Trends ............................. 57
FIGURES
Figure 1: Housing Units by Type ................................................................................... 11 Figure 2: Nationwide Annual Average Mortgage Rates................................................. 32 Figure 3: Seismic and Geological Hazard Zones .......................................................... 33 Figure 4: Flood Hazard Zones North of Escalon ........................................................... 34 Figure 5: Flood Hazard Zones South of Escalon........................................................... 35 Figure 6: Fire Severity Zones ........................................................................................ 36
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 4 SECTION 4.1: INTRODUCTION
Within the Housing Element, Section 4 contains the required quantification and analysis of needs, resources, and constraints. Pursuant to Government Code §65583(a)(1) and (2), this Technical Background Report (TBR) includes information and data including, but not limited to, housing needs, housing resources, and constraints to housing development. The TBR supplements the Housing Strategy & Sites Inventory and prefaces the Fair Housing Assessment.
SECTION 4.2: HOUSING NEEDS ANALYSIS
4.2.1 Population Characteristics and Housing Data
This Section describes the population characteristics in Escalon. This information helps provide an understanding of the demographic makeup and shifts of the population which is used to provide direction for the goals, policies, and programs contained in the Housing Element.
Population Trends
From 1970 to 2000, Escalon underwent significant population growth, averaging 30 percent per decade. Subsequently, in the next two decades, the pace of population growth decelerated. There was an increase of approximately 18 percent from 2000 to 2010, followed by a more modest growth of 5.72 percent from 2010 to 2021 (Table 1).
Table 1: Population Trends, 1970-2021
Year 1970 1980 1990 2000 2010 2021
Population 2,366 3,127 4,370 5,963 7,054 7,458
Source: U.S. Census Bureau, American Community Survey, 2010, 2021; Population Estimates for California Counties and Cities, 1970-2000
As of 2021, Escalon had an estimated population of 7,458. Approximately 44 percent of the population was under the age of 35 (Table 2). The age distribution in Escalon has undergone several shifts since 2000, with the percentage of residents aged 25 to 34 years seeing the sharpest increase from 2000 to 2010, followed by a decline by 2021.
Contrasting trends are exhibited in the 10 to 14 age range, where the percentages consistently decreased over the years.
Table 2: Population by Age in Escalon, 2000-2021
Age Category 2000 2010 2021
Under 5 years 6.30% 11.6% 7.9%
5 to 9 years 8.60% 4.3% 7.2%
10 to 14 years 9.90% 7.1% 6.9%
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 5 15 to 19 years 9.50% 4.6% 5.2%
20 to 24 years 5.40% 1.7% 4.9%
25 to 34 years 9.40% 22.5% 11.9%
35 to 44 years 17.50% 8.8% 14.3%
45 to 54 years 13.30% 7.9% 17.1%
55 to 59 years 3.10% 6.1% 6.6%
60 to 64 years 4.10% 8.8% 4.6%
65 to 74 years 7.10% 6.8% 6.9%
75 to 84 years 4.50% 6.7% 5.6%
85 years and over 1.40% 3.1% 0.9%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates, 2010, 2021; Decennial Census Profile of General Demographic Characteristics, 2000 The data in Table 3 shows changes in the racial and ethnic makeup of the population of Escalon between 2010 and 2021. In this time, the Hispanic/Latino, Black, Native American, and Asian populations decreased, and the White (Non-Hispanic) and Native Hawaiian/Pacific Islander alone populations increased. Additionally, the population of the Two or More Races category increased by nearly 2,500 percent. The sharp increase in the Two or More Races population category may be attributed to a growing societal acceptance of mixed-race identities and the rise of multigenerational mixed-race families, all of which have contributed to more accurate reporting and recognition of complex racial backgrounds.
Table 3: Population by Race/Ethnicity 2010-2021
Racial or Ethnic Group 2010 2021
Hispanic or Latino 1,792 1,429
White (Non-Hispanic) alone 4,953 5,355
Black or African American alone 61 22
Native American alone 111 0
Asian alone 117 107
Native Hawaiian or Other Pacific Islander alone 0 30
Some other race alone 0 0
Two or More Races 20 515
Source: U.S. Census Bureau, American Community 5-Year Estimates, 2010 and 2021 Since 2000, the majority of households in Escalon have been homeowners. However, between 2010 and 2021, homeowner households have decreased while renter households have increased both numerically and in proportion (Table 4).
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 6 Table 4: Households by Tenure
2000 2010 2021
Tenure Number Percent Number Percent Number Percent
Owner 1,539 74.9% 2,067 77.7% 2,048 71.4%
Renter 514 25% 590 22.2% 818 28.5%
Total 2,053 100% 2,657 100% 2,866 100%
Source: U.S. Census Bureau, Decennial Census Table H007, 2000; American Community Survey 5-Year Estimates Table B25003, 2010, 2021
Residential overcrowding is determined by the number of persons per room, with thresholds for overcrowded (1.01 to 1.5 persons per room) and severely overcrowded (more than 1.51 persons per room) households. Overcrowding is influenced by demographic and socioeconomic factors such as race and housing tenure. Certain groups, such as older-adults, immigrants, low-income families, and renter-occupied households, are more likely to experience overcrowding. The full analysis of overcrowding is included in Section 5.
Housing Cost and Affordability
According to the U.S. Census Bureau American Community Survey, the median household income in Escalon is $67,176 as of 2021, lower than that of both San Joaquin ($74,962) and Stanislaus ($68,368) County. In 2010, however, the median household income in Escalon was over $10,000 higher than that of both counties. The median home value and median gross rent in Escalon have outpaced the increase in median household income. While the median household income in Escalon has increased by 2.62 percent in the last decade, the median home value and median gross rent have increased by 36 percent and 83.6 percent, respectively. By comparison, there was a 22% increase in the median value of a home and a 37% increase in median gross rent in California, as well as a 21% increase in the median value of a home and a 34% increase in San Joaquin County during the same time period.
Although the median household income in Escalon has experienced only a minor rise in the last decade, it continues to be above the annual income needed to not become cost burdened by the median gross rent. To cover the median gross rent of $1,302 per month and ensure that rent does not account for greater than 30 percent of one's income, an annual household income of approximately $52,080 would be necessary.
Table 5: Median Home Value and Gross Rent, 2010-2021
2010 2021 2010-2021 Percent Change
Median Home Value $306,900 $418,500 +36%
Median Gross Rent $709 $1,302 +83.6%
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 7 Source: U.S. Census Bureau American Community Survey 5-Year Estimates Tables B25077 and B25058, 2010, 2021
Cost burden is the ratio of housing costs to household income. The U.S. Department of Housing and Urban Development (HUD) defines cost-burdened households as those whose monthly housing costs exceed 30 percent of monthly income, while severely cost-burdened households are those whose monthly housing costs exceed 50 percent of monthly income. As of 2019, approximately 22 percent of ownership households and 71 percent of renter households have experienced some level of cost burden (Table 6) 1.
Table 6: Cost Burden by Tenure
Owner Renter Total
Not Cost Burdened 1,465 505 1,970
Cost Burdened (30 – 50% of income) 190 205 395
Severely Cost Burdened (Over 50% of
income) 135 155 290
Cost Burden Not Available 10 15 25
Source: HUD, CHAS 5-Year Estimates
The market rental cost in Escalon and the surrounding jurisdictions of similar size is shown in Table 7. The median rents are higher in Escalon than in Oakdale, and lower than in Riverbank. Median home sales prices are provided in Table 8.
Table 7: Median Market Rental Costs
Income Group Median Market Rents
Escalon $2,150
Oakdale $2,000
Riverbank $2,350
Source: Zillow Median Rents, accessed 08/23/2023
Table 8: Median Home Sale Price, June-August 2024
Sale Date Sale Price Price per Square
Foot Size (sqft)
8/8/24 $550,000 $343/sqft 1,605
7/31/24 $625,000 $251/sqft 2,486
7/26/24 $559,000 $333/sqft 1,679
7/25/24 $670,000 $276/sqft 1,780
7/25/24 $565,000 $245/sqft 2,307
1 Excluding households whose cost burden data is not available.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 8 7/23/24 $635,000 $226/sqft 2,810
7/18/24 $572,000 $266/sqft 2,150
7/2/24 $540,000 $389/sqft 1,388
6/4/24 $585,000 $294/sqft 1,987
6/3/24 $600,000 $269/sqft 2,230
Source: Homes.com, accessed 08/16/2024
According to U.S. Census Bureau data, approximately 80 percent of the owneroccupied homes in Escalon are valued under $499,000, compared to 45 percent in San Joaquin County and 84.3 percent in Stanislaus County (Table 9). Additionally, the median value of owner-occupied units in Escalon is $418,500 according to US Census data, higher than that of both San Joaquin and Stanislaus County. Zillow data suggests that the median value of an owner-occupied unit as of April 2024 is $570,925, down
42.3 percent over the past year.
Table 9: Home Values of Owner-Occupied Units
Escalon San Joaquin
County
Stanislaus
County
Home Value Number Percent Number Percent Number Percent Less than $50,000 32 1.6 4,834 2.1 4,314 4.1
$50,000 to $99,999 0 0.0 2,731 1.4 2,062 2.0
$100,000 to $149,999 0 0.0 2,579 0.6 2,599 2.5
$150,000 to $199,999 61 3.0 5,382 1.9 4,487 4.3
$200,000 to $299,999 277 13.5 22,571 4.5 26,421 25.4
$300,000 to $499,999 1,270 62.0 62,102 34.5 47,955 46.0 $500,000 to $999,999 339 16.6 34,815 49.0 13,851 13.3
$1,000,000 or Higher 69 3.4 3,721 6.0 2,531 2.4
Median ($) $418,500 $391,500 $338,300
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates DP04, 2021 Employment Characteristics
Employment trends indicate that “Education, Health, and Social Services” is the top industry in Escalon, followed by “Retail Trade,” “Manufacturing,” and “Construction” (Table 10). Escalon has a high number of workers commuting into and out of the City, with a large proportion of residents traveling outside of the City for employment. This trend is accompanied by a low proportion of residents who are employed within the City itself. 2 Table 10: Employment by Industry
2 U.S. Census Bureau, OnTheMap, 2019; Additional discussion can be found in Section 5.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 9 Industry Type Number Percent
Agriculture, forestry, fishing and hunting, and mining 103 3.18% Education, health, and social services 689 21.3%
Retail trade 613 18.9%
Manufacturing 402 12.4%
Arts, entertainment, recreation, and services 179 5.5%
Construction 381 11.7%
Public administration 277 8.5%
Finance, insurance, real estate, rental and leasing 102 3.1% Professional, scientific, management, administration 119 3.6% Wholesale trade 58 1.7%
Other services 128 3.9%
Transportation, warehousing, and utilities 170 5.2%
Total 3,234 100%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table DP03, 2021 Housing Stock Conditions
The majority of the housing stock in Escalon was built between 1980 and 2009 (Table 11) 3. The rate at which housing units have been built has decreased since 1989.
Table 11: Year Built of Housing Units
Year Built
Escalon San Joaquin
County Stanislaus County
Number %
Change Number %Change Number %Change
Built after 2020 5 -96.0 5,709 -72.6 61 -98.8
Built 2010
through 2019 125 -77.7 20,853 -54.2 5,013 -83.5
Built 2000
through 2009 560 -9.5 45,489 +34.5 30,317 +17.0
Built 1990
through 1999 619 -15.1 33,818 -8.4 25,918 -17.8
Built 1980
through 1989 729 +158.5 36,938 -9.0 31,516 -13.0
Built 1970
through 1979 282 +72.0 40,593 +76.7 36,223 +105.4
3 The year structure built refers to when the building was first constructed, not when it was remodeled, added to, or converted.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 10 Built 1960
through 1969 164 -13.7 22,984 -6.3 17,659 +13.2
Built 1950
through 1959 190 +153.3 24,526 +102.0 15,605 +76.7
Built 1940
through 1949 75 -54.3 12,160 -26.0 8,829 -23.0
Built 1939 or
earlier 164 - 16,422 - 11,465 -
Total 2,913 - 259,492 - 182,606 -
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table B25034, 2021; City of Escalon HE APR 2021, 2022
The housing stock in Escalon is predominantly made up of single-family homes (Figure 1). Since 2010, there has been an increase in the total number of housing units. The dominance of single-family homes affects affordability because they are either more expensive rentals or they are for purchase, and a preponderance of one type of housing in a community affects choices and affordability. Without programs to support low-income homebuyers, purchasing a house can be unattainable for low-income residents.
Additionally, a lack of “missing middle” housing, such as townhouses, smaller singlefamily homes, or cottages, which are naturally more affordable, limits access to homeownership. U.S. Census data indicates that there has been a decrease of 160 mobile homes, however, this is due to a change in ownership of a mobile home park in the City. Paddack’s Mobile Manor, located in southeast Escalon, is now called Almond Grove Mobile Home Park and continues to operate as a 55+ community. The Park operator has recently taken action to add up to seven (7) units.
The majority of Escalon’s housing stock is in good condition, and was built in the 1980s, 1990s, and 2000s. Some older homes may be in need of minor rehabilitation. One house located in northwest Escalon has been red-tagged and is in need of demolition and replacement based on a windshield survey; this home is located in a TCAC High Resource Area and has been included in the Housing Element Sites Inventory. Local staff and stakeholders have confirmed that complaints about housing issues are more prevalent in the City’s older residential areas; however, those older areas are located across the City and are not concentrated in any one area (see Figure 29 “Age of Structures” in Section 5.5.3, Substandard Housing). There does not appear to be a concentration of homes in need of demolition or replacement in the City.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 11 Figure 1: Housing Units by Type
Source: U.S. Census Bureau, Decennial Census Table H030, 2000; American Community Survey 5-Year Estimates Table B25024, 2010, 2021
Approximately 98.5 percent of housing units in Escalon are occupied, with 1.5 percent being vacant. All 42 of the housing units that are vacant are rental units that are not occupied (Table 12).
Table 12: Vacancy by Type
Number Percent
Occupied 2,866 98.5%
Vacant 42 1.5%
For rent 0 0%
Rented, not occupied 42 1.5%
For sale only 0 0%
Sold, not occupied 0 0%
For seasonal, recreational, or occasional use 0 0%
For migrant workers 0 0%
Other vacant 0 0%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Tables B25002 and B25004, 2021
0 500
1000
1500
2000
2500
3000
2010 2021
Single Family 2 Units 3 to 4 Units 5+ Units Mobile home
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 12 At-Risk Assisted Affordable Housing
Assisted affordable housing that is at risk refers to existing multi-family rental housing developments that receive funding through public programs and are in danger of being converted from low-income housing to market-rate housing within ten years of the start of the housing planning period. These conversions can occur due to factors such as the discontinuation or opting out of programs such as rental subsidies, mortgage repayment, or expiration of usage restrictions. Escalon has one assisted housing development.
Escalon Heritage House has a total of 12 studio and 30 one-bedroom units that are financed under a Section 202/811 contract. The overall expiration date of the contract is May 31, 2039 (HUD Multifamily Assistance & Section 8 Database, 2019). Escalon does not have affordable housing developments at-risk of conversion to market rate prices within the next ten years (Table 13).
Table 13: Inventory of Assisted Affordable Housing
Name Address Affordable
Units
Total
Units
Active
Program(s)
Estimated
Affordability
End Year
Risk
Level
Escalon
Heritage
House
1100
Escalon
Avenue
42 very low
income 42 Section 202/811
May 31,
2039 -
Total 42 42
4.2.2 Special Housing Needs Analysis
In compliance with Housing Element law, an analysis of the housing needs of special needs populations has been completed. Within the Housing Element, the term "special needs" refers to specific demographic or occupational groups that may need targeted programs. These groups often grapple with allocating a disproportionate portion of their income to secure safe and decent housing. The scope of this analysis encompasses an array of special needs groups, including extremely low-income households, seniors, individuals with disabilities, large households comprising five or more people, farmworkers, female-headed households, and individuals experiencing homelessness.
Extremely Low-Income Households
Existing and Projected Needs
Extremely low-income (ELI) is defined as household income (AMI) at or below 30 percent of the area median income, adjusted for household size. According to the HCD 2022 State Income Limits, the AMI for San Joaquin County is $59,500 for a one-person household
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 13 and $85,000 for a four-person household. One-person households with an income of $17,400 or less for a one-person household and $27,750 or less for a four-person household is considered as ELI. A four-person household with one person working fulltime with an hourly wage of $13.34 per hour or less. Many ELI households may be employed in low-wage jobs (Table 14), unable to work full-time or are on fixed incomes from sources such as disability benefits and social security.
Table 14: Median Hourly Wage by Occupation
Occupation Median Hourly Wage
Waiters and Waitresses 14.64
Hosts and Hostesses, Restaurant,
Lounge, and Coffee Shop 14.95
Manicurists and Pedicurists 14.52
Cashiers 15.29
Healthcare Support Occupations 15.33
Cooks, Fast Food 15.35
Source: U.S. Bureau of Labor Statistics, Quarterly Census of Employment and Wages (QCEW), Stockton-Lodi MPO, 2022 Q1 employment
As of 2019, approximately 11 percent of households in Escalon are considered ELI. Fifty percent of the regional housing need allocation (RHNA) for very low-income households are presumed to qualify as ELI households. Of the 310 ELI households, 58 percent are renters and 42 percent are homeowners. By comparison, 28.5 percent of households in Escalon rent their homes.
Table 15: Escalon Household Income Level by Tenure
Income Level Owner-Occupied Renter-Occupied Total
0-30% of AMI 130 180 310
31-50% of AMI 125 95 220
51-80% of AMI 310 155 465
81-100% of AMI 65 105 170
Greater than 100% AMI 1,155 340 1,495
Total 1,795 875 2,665
Source: HUD, CHAS ACS Tabulation, 2015-2019 release
Households classified as ELI may face a higher likelihood of experiencing at least one housing problem such as incomplete kitchen facilities, incomplete plumbing facilities, overcrowding or cost burden greater than 30 percent. Among ELI renters in Escalon, 64.5 percent experience housing problems, 64.5 percent are cost burdened, and 50 percent
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 14 are extremely cost burdened. ELI households in Escalon experience cost burden at a lower rate than average in San Joaquin County. According to CHAS data, approximately 81% of ELI households within the unincorporated county are cost burdened.
Table 16: Cost Burden and Housing Problems by Tenure, Escalon, 2018 Renters Owners Households
0-30% of AMI 180 130 310
Any housing problem 90 110 200
Cost burden > 30% to ≤ 50% 90 110 200
Cost burden > 50% 90 65 155
31-50% of AMI 95 125 220
Any housing problem 95 60 155
Cost burden > 30% to ≤ 50% 95 60 155
Cost burden > 50% 65 60 125
51-80% of AMI 155 310 465
Any housing problem 65 125 190
Cost burden > 30% to ≤ 50% 65 130 195
Cost burden > 50% 0 10 10
80-100% of AMI 105 65 170
Any housing problem 25 20 45
Cost burden > 30% to ≤ 50% 20 10 30
Cost burden > 50% 0 0 0
Greater than 100% AMI 340 1155 1495
Any housing problem 30 150 180
Cost burden > 30% to ≤ 50% 20 95 115
Cost burden > 50% 0 10 10
Source: HUD CHAS, 2015-2019, Table 10: Cost Burden by Income and Tenure As of 2023, approximately 995 lower-income households resided in the City, representing approximately 37.4 percent of the total households. Of the 995 households, 430 or 43.2 percent households are renters – a proportion that far exceeds the rate of all households.
Further, lower-income households also disproportionately overpay for housing. For moderate and above moderate-income households, approximately 9.3 percent of overpay for housing. For lower-income households, 84.4 percent overpay for housing – well exceeding the rate of all households and representing a significant disproportionate housing need. In addition to overpayment, lower-income households also face other difficult housing situations such as overcrowding or substandard housing conditions.
Programs and Resources
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 15 ELI households may participate in programs made available by the Housing Authority of the County of San Joaquin (HACSJ) such as the Housing Choice Voucher (HCV) program. The HCV program, formerly known as the Section 8 Program, assists participants in affording decent, safe, and sanitary housing in the private market.
The City of Escalon offers two local programs that ELI households can benefit from, the GAP Loan Program and the Property Rehabilitation Program. The Escalon GAP Loan Program provides households with deferred down payment assistance loans. The purpose of this program is to help bridge the "GAP” between the cost of a home and what a low-income household can afford. The Escalon Property Rehabilitation Program also offers financial assistance to ELI households. The program provides creative financing programs, including deferred loans and emergency grants, to assist low-income property owners in making residential building improvements. This program aids households in maintaining safe, decent housing. It also offers a range of free services to make the improvement of residential properties as easy as possible. In an effort to incentivize the use of the program, a brochure with program details is made available at City Hall, as well as on the City’s website.
Other programs and resources available to support very low-income households in meeting their basic needs include the Home Energy Assistance Program (HEAP), which offers income-eligible residents a credit toward their utility bill; Supplemental Nutrition Assistance Program (SNAP), which provides funds for groceries; and Medicaid (known as Medi-Cal in California), offering low-cost healthcare coverage. Temporary Assistance for Needy Families (TANF) offers financial aid and support services, with a focus on selfsufficiency, and the Women, Infants, and Children (WIC) Program provides nutrition assistance to pregnant women and young children. Additionally, free school meals are available to eligible students enrolled in Escalon Unified schools, and local charities like the C.A.R.E. Program food distribution programs to help local residents in time of need.
Senior Households
Existing and Projected Needs
As of 2021, seniors comprise 11.8 percent of the population in Escalon. As shown in Table 17, seniors are more likely to be homeowners than renters.
Table 17: Senior Households by Tenure
Householder Age Owners Renters Total
65-74 years 265 20 285
75+ years 516 81 597
Total 781 101 882
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table B25007, 2021
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 16 Programs and Resources
There are two senior housing developments in Escalon, Golden Acres Home and Care and Heritage House. Golden Acres Home and Care is an assisted living community comprised of 26 units that provides a comprehensive array of care and medical services.
Escalon Heritage House is a subsidized housing community for seniors over the age of 62 and the mobility/sensory impaired. Heritage House provides 42 units of affordable apartment units for seniors and disabled persons in an independent living environment.
Additionally, Almond Grove Mobile Home Park is an age-restricted community that seniors ages 55 and above can benefit from.
Seniors can benefit from the City’s transit service, Dial A Ride. This service stops at the rider’s door and takes residents along a route throughout the city to the grocery store, department stores, local restaurants, and other locations. Transit service in Escalon is offered free of charge.
The Human Services Agency of San Joaquin County administers services to seniors through the Department of Aging and Community Services. The Department offers services to seniors, adults with disabilities, family caregivers, and residents in long-term care facilities. Programs and services offered include Ombudsman Program, Family Caregiver Support Program, Case Management Program, emergency intervention to dependent adults and seniors, nutrition services and senior lunch program at the Escalon Community Center, as well as outreach and education to the community regarding the resources and services available to seniors.
Seniors also benefit from services offered by a new non-profit, Escalon Strong, which offers assistance to seniors. As part of the organization’s first initiative, a community work day at Almond Grove Mobile Home Park was held that brought local carpenters, plumbers, painters, landscapers, and others to lend a hand in helping seniors fix issues in their homes so that they may age in place.
Persons with Disabilities
Existing and Projected Needs
People with disabilities disproportionately experience poverty and homelessness, and are more likely to be rent-burdened, unable to afford housing, and face housing discrimination. Approximately 7.8 percent of the Escalon population has a disability. Of the 578 persons with a disability, 433 (75 percent) are over the age of 35 (Table 18). The age group with the highest percentage of individuals with a disability is the 65 to 74 are group, with 23.35% of these individuals having a disability.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 17 Table 18: Disability Status by Age Group
Age Group Total
Population
With a
Disability
No
Disability
Percent with
a Disability
Total Population 7,458 578 6,880 7.8%
Under 5 years: 867 0 867 0.0%
5 to 17 years: 1,044 27 1,017 2.6%
18 to 34 years: 1,951 118 1,833 6.0%
35 to 64 years: 2,356 168 2,188 7.1%
65 to 74 years: 506 118 388 23.3%
75 years and over: 734 147 587 20.0%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table S1810, 2021
Within Escalon and the surrounding areas, 82 individuals have a developmental disability, 54 percent of whom are under the age of 18.
Table 19: Persons with Developmental Disabilities by Age Zip Code 0 to 17 years 18+ years Total
95320* 44 38 82
*Note: Escalon comprises only a portion of the 95320-zip code.
Source: California Department of Developmental Services, Consumer Count by California ZIP Code and Residence Type, 2022
Cognitive and independent living difficulties are the two most prevalent types of disability in Escalon. 4 Housing needs for individuals with these types of disabilities may include universally designed housing, supportive living facilities, and in-home care arrangements.
Programs and Resources
Escalon residents with a disability can benefit from a regional community care facility dedicated to serving individuals with developmental disabilities. The Valley Mountain Regional Center (VMRC), located in Stockton, provides in-home care services to clients who reside with their families or in an independent living arrangement. Additionally, the California Department of Developmental Services provides Supported Living Services (SLS) that assist adults with developmental disabilities. SLS supports individuals in pursuing personal goals in relationships and the community, with flexibility to adapt to changing needs over time. Funding for SLS can come from regional centers and/or In 4 U.S. Census Bureau, American Community Survey 5-Year Estimates, 2021. See Section 5 for a more detailed discussion.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 18 Home Support Services, and individuals may oversee the services themselves.
Individuals who receive SLS are eligible for HUD’s HCV Program. Living expenses may be paid through Supplemental Security Income or other benefits/income. SLS services also include assistance with selecting and moving into a home, choosing housemates, acquiring household furniture, participating in daily living activities, preparing for emergencies, engaging in community life, and managing personal financial affairs.
Additionally, individuals with a disability may benefit from Heritage House. As previously discussed, Heritage House provides 42 units of affordable apartment units for seniors and disabled persons in an independent living environment.
Large Households
Existing and Projected Needs
Large households consist of over five persons residing together. There are varying reasons for this, such as multiple generations of a family, multiple families, or other nonrelated household members residing in the same housing unit. In Escalon, there are 240 large households, 92.5 percent of which are renters (Table 20).
Table 20: Household Size by Tenure
Household Size Owner-Occupied Renter-Occupied All Households 1-person 609 85 694
2-person 598 203 801
3-person 456 258 714
4-person 367 50 417
5 or more-person 18 222 240
Total 2,048 818 2,866
Source: U.S. Census Bureau, ACS 5-Year Estimates, Table B25009 As shown in Table 21, there are 1,845 three-bedroom, 597 four-bedroom, and 39 five (or more) bedroom units. These numbers exceed the City’s 240 large households. Although there are 222 five or more-person households and only 134 four-bedroom units, there are no reported renter households in Escalon that experience overcrowding.
Table 21: Number of Bedrooms by Tenure
Tenure 3 Bedrooms 4 Bedrooms 5+ Bedrooms
Owner-Occupied 1,402 463 39
Renter-Occupied 443 134 0
Total 1,845 597 39
Source: U.S. Census Bureau, ACS 5-Year Estimates, Table B25042
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 19 Programs and Resources
In addition to living in housing units with sufficient bedrooms to meet their needs, large households may participate in HACSJ programs and services that aid those with lower and moderate incomes. The HCV Program can provide help specifically to larger households experiencing challenges related to overcrowding and cost burdens. The City has also updated its zoning code to be inclusive of Accessory Dwelling Units (ADUs).
ADUs can alleviate housing needs for large households by providing additional living space within existing properties, allowing multiple generations to live together.
Farmworker Households
Existing and Projected Needs
San Joaquin County is California’s 7th-largest producer of agriculture. As of 2021, 3.18 percent of the workforce in Escalon was employed in the agriculture, forestry, fishing and hunting, and mining industry. A breakdown of the agriculture, forestry, fishing and hunting, and mining industry is not available through the U.S. Census, however, the Census of Agriculture provides a more detailed assessment of farmworker employment.
According to a recent study by the Community and Labor Study at the University of California at Merced titled “Farmworker Health in California”, the San Joaquin Valley is home to between 42 and 61 percent of California’s state farmworker population. The National Agricultural Statistics Service Census of Agriculture is a comprehensive and periodic survey conducted by the United States Department of Agriculture (USDA) to collect detailed information about the agricultural sector within the United States. The primary purpose of the Census of Agriculture is to provide a complete and accurate account of all agricultural activities across the United States. Data from the census is available for San Joaquin County, but not for the City of Escalon. As shown in Table 22,
59.5 percent of farmworkers in the County are seasonal farmworkers (less than 150 days) and 74.4 percent work on a farm with at least 10 employees.
Table 22: San Joaquin County Farms and Farmworkers
Type Number of
Farms
Permanent
Farmworkers
(150 days or
more)
Seasonal
Farmworkers
(less than 150
days)
Total
Farmworkers
Farm operations
with less than 10
employees
1,249 2,460 2,599 5,059
Farm operations
with 10 (or more)
employees
458 5,543 9,139 14,682
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 20 Total 1,707 8,003 11,738 19,741
Source: USDA, National Agricultural Statistics Service, Census of Agriculture, 2017 Farmworkers’ special housing needs typically arise from their limited income and the unstable, seasonal nature of their employment, according to the California Institute for Rural Studies. Because of these factors, farmworker households have limited housing choices and are often forced to double up to afford rents. Over 90 percent of farmworkers surveyed in the Merced study were renters, over half rented single family homes, and almost none received housing support from their employer. Additionally, the housing occupied by studied farmworkers was considered largely substandard, generally crowded with poor ventilation and the need for significant repairs. This is due to the fact that farmworker income tends to be very low relative to the cost of living, creating a need for extremely low-income and very low-income housing.
The families of migrant farmworkers are also present in the County’s communities, including their children. According to data from the California Department of Education, San Joaquin County is home to approximately 990 migrant worker students compared to the City of Escalon which reported 9 in the 2022-2023 school year. This figure may underrepresent the number of migrant worker students in the school system, but generally, the City of Escalon appears to have a smaller number than other cities in San Joaquin County.
Programs and Resources
In Escalon, there are several programs and resources available to support the farmworker population. The HASJC plays a crucial role in managing migrant family farm labor housing developments within the area. Additionally, the State of California, in collaboration with the Department of Labor, established the Office of Migrant Services (OMS). The OMS aims to provide migrant farmworker families with safe, affordable seasonal rental housing and essential support services during the peak growing and harvest season, which typically runs from April to November.
There is no farm labor housing in Escalon. However, the City does permit employee housing for six or fewer employees, subject to the same standards and permit requirements as a single family residence. Program 2-6 of the Housing Element states that the City will take an active role to ensure that farmworkers have access to adequate, safe, and affordable housing by continuing to seek funding through the Joe Serna Jr.
Farmworker Housing Grant Program, supporting agricultural employers through the application and entitlement processes for employee housing, providing education on farmworker housing, and collaborating with other jurisdictions and organization in the San Joaquin Valley to support farmworker housing.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 21 Female-Headed Households
Existing and Projected Needs
Female-headed (FH) households often rely on one income, resulting in an increased likelihood of experiencing cost burden. High living and childcare costs, paired with a lack of resources for FH households may increase the risk of housing insecurity.
Approximately 9.4 percent of households within Escalon are FH households (Table 23).
In 2021, the median income for FH householder with no spouse present was $28,571,
57.54 percent less than the overall median income in Escalon. 5 Of the 270 FH households, 141 are under the poverty level. Low-income FH households may benefit from alternative multifamily housing models such as cooperative housing projects with on-site daycare and communal facilities or missing middle housing.
Table 23: Female-Headed Households in Escalon, 2021
Household Type Number Percent of Total
Households
Total Escalon Households 2,866 100%
Nonfamily Female Householder 538 18.8%
Female-Headed Family Households 270 9.4%
FH Households with Children Under
18 (No Spouse) 105 3.7%
FH Family Households Under the
Poverty Level (No Spouse) 141 4.9%
No Child(ren) 109 3.8%
1 or 2 Children 32 1.1%
3 or 4 Children 0 0.0%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Tables B17012, S1903, 2021
Programs and Resources
Low-income FH households may be eligible for a range of housing resources and assistance programs designed to provide them with stable and affordable housing options. These programs often include government-sponsored initiatives such as the HCV, which help subsidize rent payments, and public housing units managed by local 5 U.S. Census Bureau, American Community Survey 5-Year Estimates, 2021, Table S1903
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 22 housing authorities. Additionally, the San Joaquin County Human Services Agency provides programs and services to assist eligible residents of San Joaquin County to meet their basic needs. Programs include temporary cash assistance, general assistance, Medi-Cal, CalFresh, and CalWORKS.
Nonprofit organizations and community-based agencies often offer supportive services and programs specifically tailored to the needs of FH households facing financial hardship. These resources aim to alleviate the burden of housing costs, reduce the risk of homelessness, and provide a safe and stable environment for women and their families, ultimately contributing to their overall well-being and economic security. Access to these housing resources can make a significant difference in the lives of low-income female-headed households, offering them the opportunity to break the cycle of poverty and build a brighter future for themselves and their children.
Homelessness
Existing and Projected Needs
Individuals experiencing homeless, whether sheltered or unsheltered, have one of the most immediate housing needs of any group. The term "sheltered homeless" refers to individuals who are homeless and currently residing in emergency or temporary shelters.
These individuals lack permanent housing and fall under the classification of homelessness. This category encompasses those living in emergency shelters or benefiting from programs that offer transitional housing for the homeless. Additionally, the definition of "sheltered homeless" includes individuals temporarily housed in motels or similar lodgings, facilitated by vouchers from community-based organizations or local government units. HUD's definitions of homelessness exclude certain scenarios. These exclusions involve individuals who frequently change their living arrangements ("couchsurfing"), incarcerated individuals, individuals with housing supported by rental assistance like Housing Choice Vouchers, or those whose housing is provided through San Joaquin County's General Assistance program.
The San Joaquin Continuum of Care (SJCoC) Point-In-Time (PIT) Count data reported four persons experiencing homelessness in Escalon in 2019 (Table 24). A PIT Count was not conducted in 2022; however, the 2024 indicates that only one unsheltered person was identified within the City.
Table 24: Persons Experiencing Homelessness by Shelter Status, 2019-2024 Shelter
Status
Escalon San Joaquin County
2019 2022* 2024 2019 2022 2024
Unsheltered 4 0 1 1,558 1,355 3,469
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 23 Sheltered 0 0 0 1,071 964 1,263
Total 4 0 1 2,629 2,319 4,732
*No count was conducted in Escalon in 2022.
Source: San Joaquin Continuum of Care Point in Time Count Local Report Programs and Resources
The San Joaquin County Neighborhood Preservation Division serves as the administrative entity for various federal and state grant programs aimed at assisting homeless individuals and families. These programs encompass the Continuum of Care (CoC), Emergency Solutions Grant (ESG) both at the federal and state levels, California Emergency Solutions and Housing (CESH), and the Homeless Emergency Aid Program (HEAP). CoC provides permanent supportive housing and transitional housing through rent assistance and support services. ESG funds focus on rapid rehousing, shelter operations, and outreach through several subrecipients. CESH offers flexible funds for various homelessness-related activities. HEAP provides block grant funds for addressing immediate homelessness challenges, supporting emergency housing vouchers, rapid rehousing, shelter construction, and more, distributed through multiple subrecipients. For additional resources, individuals can visit the San Joaquin CoC website or call 2-1-1 for assistance.
The City of Escalon does not have a constant population of homeless, but rather an occasional influx of homeless persons as they pass through the City. The City of Escalon has taken action to address homelessness by working with the City’s regional partners to direct individuals experiencing homelessness to resources within San Joaquin and Stanislaus County. Additionally, emergency shelters are permitted in the Limited Manufacturing (M-1) and General Manufacturing (M-2) zoning districts and permitted in the Multiple-Family Residential (R-3) and Commercial-Industrial (C-M) zoning districts with the issuance of a conditional use permit.
SECTION 4.3: HOUSING RESOURCES
4.3.1 Housing Assistance Programs
The following section details the federal, state, and local housing assistance programs that are utilized by the City and those that may be locally available to Escalon residents.
These programs provide funding for the construction, rehabilitation, or rental assistance for very low-, low-, and moderate-income households.
Federal Assistance Programs
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 24 Housing Choice Vouchers (Section 8)
The HASJC administers the Housing Choice Voucher program, a federal program designed to assist low-income individuals and families by subsidizing their rental costs in the private housing market. Participants in the program receive vouchers that can be used to secure housing of their choice, allowing them to select a safe and suitable place to live.
The HACSJ collaborates with landlords to ensure that the housing units meet quality standards and are affordable for voucher recipients. This program not only helps individuals achieve stable housing but also promotes community integration and economic self-sufficiency by freeing up financial resources for other essential needs.
Community Development Block Grant (CDBG)
CDBG funds are available for a variety of housing and community development activities.
Activities eligible for CDBG funding include acquisition, rehabilitation, economic development and public services. CDBG funds are awarded to entitlement communities on a formula basis for housing activities. Escalon receives CDBG funds, typically in the $75,000 range through the San Joaquin Urban County and HOME Consortium. These funds can be utilized for the replacement of substandard housing, rehabilitation of lower income owner-occupied and rental-occupied housing units, and other programs that assist households with incomes at or below 80 percent of median income. The funds can also be used to offset infrastructure costs in support of affordable housing development.
Home Investment Partnership Program (HOME)
HOME funds are granted on a competitive basis from HUD to increase the supply of decent, safe, sanitary, and affordable housing to lower income households. Eligible activities include new construction, acquisition, rental assistance, and rehabilitation. The City participates in the San Joaquin County program, which administers HOME funds to projects in participating jurisdictions.
The City receives HOME funds, typically in the $15,000 range each year, through the San Joaquin Urban County and HOME Consortium. Funds may be used for rehabilitation, acquisition and/or new construction of affordable housing.
Section 202/811 Program (Supportive Housing for Persons with Disabilities/Elderly) Under the Section 202 program, non-profit organizations and consumer cooperatives have the opportunity to obtain no-interest capital advances from HUD. These funds are intended for the construction of rental housing for seniors and individuals with disabilities who fall under the Very-Low Income category. In addition to the Section 202 program, these capital advances can also be utilized in conjunction with Section 811. Section 811 supports the development of various housing options, including group homes, independent living facilities, and immediate care facilities. Eligible activities encompass
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 25 acquisition, rehabilitation, new construction, and rental assistance. The Escalon Heritage House housing development is financed through a Section 202/811 contract.
State Assistance Programs
Low Income Housing Tax Credits (LIHTC)
The California Tax Credit Allocation Committee (CTCAC) oversees both federal and state LIHTC Programs, encouraging private investment in affordable rental housing for eligible households. These programs grant housing tax credits to developers of qualified projects with specific allocations. To qualify for these credits, rental housing developments must designate units for affordable rents to households at or below 46% of the area median income, with a commitment to maintain affordability for 55 years. Developers sell these tax benefits to investors for immediate capital to fund the hard and soft costs (excluding land costs) of the acquisition, rehabilitation, or new construction of rental housing.
Joe Serna, Jr., Farmworker Housing Grant Program
The Serna program helps fund new construction, rehabilitation, and acquisition of ownerand renter-occupied units for agricultural workers, prioritizing households that are lowerincome. Funds may be used for land acquisition, site development, construction, rehabilitation, design services, operating and replacement reserves, repayment of predevelopment loans, provision of access for the elderly or disabled, relocation, homeowner counseling, and other reasonable and necessary costs.
Permanent Local Housing Allocation (PLHA)
The PLHA program provides a permanent source of funding for all local governments in California to help cities and counties implement plans to increase the affordable housing stock. The goal of the funding is to increase the supply of housing for households at or below 60% of the AMI, increase assistance to affordable owner-occupied workforce housing, assist persons experiencing or at risk of homelessness, facilitate housing affordability, particularly for lower- and moderate-income households, promote projects and programs to meet the local government’s unmet share of regional housing needs allocation, and ensure geographic equity in the distribution of the funds.
Local Assistance Programs
GAP Loan Program
The GAP Loans provides deferred downpayment assistance loans, 20% of the sales price up to $15,000 (whichever is the lesser), to low income, first-time homebuyers for the purchase of homes in the City of Escalon to help bridge the gap between the cost of a home and what a low-income household can afford.
Property Rehabilitation Program
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 26 The Property Rehabilitation Program offers creative financing programs, including deferred loans and emergency grants, to assist low-income property owners in making residential building improvements, especially to fix health & safety issues. It also offers a range of free services to make the improvement of residential property as easy as possible.
4.3.2 Zoning for a Variety of Housing Types
Pursuant to Government Code Sections 65583(a)(4), (c)(1), and 65583.2(c), this section provides an analysis of zoning and availability of sites for a variety of housing types.
Single-Family Housing
Single-family housing is primary permitted in the Estate Residential (R-E), Low Density Residential (R-1), Medium Density Residential (R-2), and Multiple-Family Residential (R3) zoning districts. Single-family housing is also permitted in the Neighborhood Commercial (C-1), Community Commercial (C-2), and Commercial-Industrial (C-M) zoning districts, subject to specified limitations.
Multi-Family Housing
Multi-family units are permitted in the R-3 and C-2 zoning districts and are permitted upon issuance of a Conditional Use Permit (CUP) in the C-1 and C-M zoning districts. Other forms of multi-family housing such as two-family dwelling units are permitted in the R-2, R-3, C-1, C-2, and C-M zoning districts. Two-family dwelling units on corner lots where entrances front on opposite streets are permitted in the R-E, R-1, R-2, and R-3 zoning districts.
Housing for Agricultural Employees
Agricultural workers in Escalon have the option of residing in various housing options, including single-family and multi-family dwellings. Additionally, Escalon allows employee housing, specifically designed to accommodate six or fewer employees. Employee housing is treated as a single-family home and is permitted in all zones that allow singlefamily residences, subject to the same standards and permit requirements as a singlefamily residence.
Emergency Shelters and Low Barrier Navigation Centers
Emergency shelters do not require a discretionary permit in the Limited Manufacturing (M-1) and General Manufacturing (M-2) zoning districts. Emergency shelters are also permitted in the R-3 and C-M zoning districts upon issuance of a CUP. In accordance with Government Code Section 65583(a)(4)(A), the City will amend its zoning code to ensure that emergency shelters are allowed as a permitted use without a conditional use or other discretionary permit in the R-3 residential zone district, as detailed in Program 2-1.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 27 Transitional Housing
The City of Escalon considers transitional housing as a residential use. It is subject only to the restrictions and standards that apply to other residential dwellings of the same type (e.g., single-family residence(s) or multifamily development) in the same zone. The EMC defines transitional housing as “buildings configured as rental housing developments, but operated under program requirements that require the termination of assistance and recirculating of the assisted unit to another eligible program recipient at a predetermined future point in time that shall be no less than six months from the beginning of the assistance.”
Supportive Housing
Supportive housing is also considered a residential use in the City of Escalon. The EMC defines supportive housing as “housing with no limit on length of stay, that is occupied by the target population, and that is linked to on-site or off-site services that assist the supportive housing resident in retaining the housing, improving his or her health status, and maximizing his or her ability to live and, when possible, work in the community.” Supportive housing may be developed as a variety of housing types, including a singlefamily unit, multifamily development, or community care facility, and is subject to the same regulations as that housing type. For example, a supportive housing project of one singlefamily unit would be subject to the same standards as a single-family home. Program 2- 1 has been included in the Housing Element to establish a formalized streamlined ministerial approval process for eligible supportive housing projects.
Residential Care Facilities
Residential Care Facilities are broken down into two subtypes in the EMC, Small and Large. A Residential Care Facility, Large, is defined in the EMC as “a ‘large group home’ serves seven or more people and consists of a family home, group care facility, or similar facility as determined by the Director of the State Department of Social Services, for 24- hour nonmedical care of persons in need of personal services, supervision or assistance essential for sustaining the activities of daily living or for the protection of the individual, as defined in Article 1 of Chapter 3 of the California Health and Safety Code, Section 1500 et seq.” Residential Care Facilities, Large, are conditionally permitted in the R-E, R-2, R2, C-2, C-M, M-1, and M-2 zoning districts. They are also permitted by right in the R-3 zoning district.
A Residential Care Facility, Small, is defined as “a ‘small residential facility’ serves six or fewer people and consists of a family home, group care facility, or similar facility as determined by the Director of the State Department of Social Services, for 24-hour nonmedical care of persons in need of personal services, supervision or assistance essential for sustaining the activities of daily living or for the protection of the individual, as defined in Article 1 of Chapter 3 of the California Health and Safety Code, Section 1500
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 28 et seq. A residential facility serving six or fewer persons shall be considered a family dwelling for all zoning purposes and shall be subject to the same standards and permit requirements as a single-family residence.” Residential Care Facilities, Small, are permitted in the R-E, R-1, R-2, R-3, C-1, C-2, and C-M zoning districts.
Manufactured Housing
Manufactured housing is permitted with specific limitations in the R-E, R-1, R-2, R-3, C1, and C-2 zoning districts. The EMC defines manufactured housing as a “residential unit constructed off-site and delivered and installed on a lot”. Manufactured homes must be certified under the National Manufactured Housing Construction and Safety Standards Act of 1974 (42 USC 5401 et seq.) on a permanent foundation.
Mobile Home Parks
The EMC defines residential, mobile homes as “a trailer coach that is used as a dwelling all the year round, has water faucets and shower or other bathing facilities that may be connected to a water distribution system, and has facilities for washing and a water closet or other similar facility that may be connected to a sewerage system.” Mobile homes parks are conditionally permitted in the R-3 and C-1 zoning districts.
Accessory Dwelling Units
The City of Escalon updated its zoning ordinance in compliance with California Government Code Sections 65852.2 and 65852.22. Accessory dwelling units (ADUs) are permitted in the R-E, R-1, R-2, R-3, C-1, C-2, and C-M zoning districts.
Missing Middle Housing
Missing middle housing refers to a range of housing types that bridge the gap between single-family homes and large apartment complexes, such as duplexes, townhouses, and small apartment buildings. The EMC permits two-family dwelling units in the R-2, R-3, C1, C-2, and C-M zoning districts. Two-family dwelling units that are located on corner lots and have entrances on opposite streets are also permitted in the R-E, R-1, R-2, and R-3 zoning districts. Additionally, California Senate Bill 9 (SB 9) allows property owners to split a single-family lot into two smaller lots and construct two separate units, effectively promoting the creation of duplexes or other missing middle housing types.
4.3.3 Opportunities for Energy Conservation in Residential Development
The following section was prepared in accordance with Government Code §65583(a)(8), which requires that housing elements include an analysis of energy conservation opportunities in residential development.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 29 Existing Residential Energy Use in Escalon
The heating, cooling, and water usage of residential uses contribute to the overall energy consumption and greenhouse gas emissions nationwide. House heating fuel provides information on energy supply and consumption. According to the U.S. Census Bureau American Community Survey 5-Year Estimates, Escalon’s energy supply and consumption trends are similar to that of the rest of the state. The primary house heating fuel in Escalon is utility gas (76.8%), followed by electricity (21.6%).
General Plan Policies
The Escalon General Plan includes goals, policies, objectives, and implementation strategies related to energy conservation throughout the Safety, Air Quality, Circulation, and Housing Elements. The following themes related to energy conservation emerge:
• Reviewing development project applications for their potential impact on climate change. The City aims to identify projects that may contribute to or increase climate change impacts and requires them to incorporate measures to mitigate these effects. These measures include the integration of bicycle- and pedestrian-friendly amenities where appropriate, the incorporation of energy-efficient components and design, and the implementation of water conservation strategies, all of which are designed to reduce climate impacts to the greatest extent feasible. • Promoting energy-efficient building designs and transportation systems. The General Plan stipulates that area and stationary source projects with significant air quality impacts, either individually or cumulatively, must include adequate air quality mitigation in their design. This mitigation includes the use of the best available and economically feasible control technology for stationary industrial sources, EPA-certified wood stoves in new residential units, clean fuel-compatible fuel storage tanks at refueling stations, and energy-efficient designs that maximize natural heating and cooling and passive cooling through landscaping. • Encouraging new buildings and developments to prioritize energy efficiency. This is to be achieved by requiring new developments to incorporate energy-efficient passive design concepts and construction methods. The General Plan also encourages the use of solar and alternative energy systems and supports projects that voluntarily adopt measures to reduce energy usage and greenhouse gas emissions.
Subsidies and Incentives
The U.S. Department of Energy's Low Income Home Energy Assistance Program (LIHEAP) is a federal initiative aimed at assisting low-income households that pay a high portion of their income to meet their energy need. LIHEAP offers one-time financial support to help eligible households manage their utility bills, steps in during emergencies,
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 30 such as imminent utility disconnection or potentially life-threatening energy crises, enhances energy efficiency for low-income homes through weatherization, provides education on energy conservation practices, and provides energy budget counseling.
Pacific Gas and Electric Company (PG&E) has developed a suite of initiatives to promote energy conservation and assist qualified customers in reducing their energy consumption and associated costs. The Energy Savings Assistance Program offers eligible customers energy-saving improvements at no charge. These improvements can include the repair or replacement of key appliances such as refrigerators, furnaces, and water heaters, along with insulation installation, weatherproofing, energy-efficient lighting, caulking, and low-flow showerhead installation. PG&E also encourages energy efficiency through its Rebate Programs, which provide financial incentives for the purchase of eligible appliances like clothes washers and various water heaters, whether gas, electric, or solar.
Other PG&E programs include the Home Upgrade Program, which conducts energy assessments performed by participating providers and offers up to $6,500 in home upgrades (i.e., air conditioning systems, furnaces, water heaters, insulation, windows, and wall heaters) based on the assessment results. For residents of San Joaquin County, PG&E partners with the San Joaquin County Weatherization Program administered through the Human Services Agency (HSA). This initiative delivers a range of weatherization services for single-family homes and duplexes.
Energy Conservation in New Residential Developments
The EMC lays out energy conservation regulations for new residential developments in Section 16.02.300. Pursuant to the EMC, subdivisions that requires a tentative parcel or subdivision map, are required to incorporate, to the fullest extent possible, provisions for future passive or natural heating or cooling opportunities within the subdivision. Design possibilities include but are not limited to lot size and orientation in a manner that allows structures to be built with an east-west direction for optimal southern exposure and harnessing shade or prevailing breezes. In addition to the requirements of the EMC, all residential structures must comply with Title 24 energy conservation requirements.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 31 SECTION 4.4: HOUSING CONSTRAINTS
4.4.1 Nongovernmental Constraints
Pursuant to Government Code Section 65583(a)(6), this section includes an analysis of the potential and actual nongovernmental constraints, including the availability of financing, the price of land, the cost of construction, environmental conditions, among others.
Land Costs
The cost of land can pose a significant constraint to development. Land price is influenced by a variety of factors such as market conditions and land availability. Based on a survey of listings for lots for sale in the Escalon area on Zillow.com in August 2023, the average price per acre was approximately $49,000 (Table 25).
Table 25: Land Costs in Escalon
Location Status Price Acres Price Per Acre
Address Sold or For Sale $ # $
27164 Vine Ave,
Escalon, CA 95320 For Sale $475,000 9.16 $51,855
23201 S Santa Fe Rd,
Escalon, CA 95320 For Sale $400,000 10 $40,000
8665 La Castella Ln,
Escalon, CA 95320 Sold $370,000 10.01 $36,963
12189 S Escalon
Bellota Rd, Escalon, CA
95320
For Sale $450,000 9.73 $46,248
26592 Magnolia Rd,
Escalon, CA 95320 For Sale $699,000 10 $69,900
Average Price Per Acre $48,993
Source: Zillow.com, Accessed 08/25/2023
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 32 Availability of Financing
Housing affordability is significantly influenced by mortgage interest rates. When interest rates are higher, they result in increased monthly mortgage payments, which in turn limits the range of affordable housing options for potential buyers. Conversely, lower interest rates lead to lower monthly payments, thereby boosting the purchasing power of homebuyers. It is important to note that the housing market's response to changes in interest rates is not always immediate. This was evident during the COVID-19 pandemic, where there was a lag in the market's reaction to decreased interest rates. As of September 2023, the interest rate for a 30-year fixed-rate mortgage is 7.12% (Figure 2).
According to the U.S. Census Bureau 2017-2021 American Community Survey, the median value of an owner-occupied unit in the City of Escalon is $418,500, $391,500 in San Joaquin County, and $573,200 in California. Assuming a down payment of 20% and an interest rate of 7.12%, an annual household income of approximately $115,000 would be required to purchase a home that is of median value in Escalon.
Figure 2: Nationwide Annual Average Mortgage Rates
Source: Freddie Mac Primary Mortgage Market Survey (2013-2023)
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 33 Environmental Conditions
The following analysis of existing environmental hazards that may constrain housing development within Escalon has been completed in accordance with Government Code Section 65583.2(b)(4). None of the environmental conditions evaluated would preclude development on sites identified for housing.
Seismic and Geological Hazards
The City of Escalon is not located within a seismically active area. Fault zones, Landslide and Liquefaction Zones present are more closely located to the west of the City. The nearest Landslide and Liquefaction Zone is located approximately 30 miles to the west.
The nearest fault line is the Greenville Fault located approximately 39.5 miles from Escalon. None of the inventoried sites are located within a fault zone or landslide and liquefaction zone.
Figure 3: Seismic and Geological Hazard Zones
Source: California Department of Conservation
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 34 Flooding
Escalon is not directly located within any flood hazard zones according to FEMA’s National Flood Hazard Layer (NFHL) Viewer. The City’s northern boundary is approximately 1.02 miles from a 1% Annual Chance Flood Hazard Zone (Figure 4). None of the inventoried sites are located within a flood hazard zone.
Figure 4: Flood Hazard Zones North of Escalon
Source: FEMA National Flood Hazard Layer Database
The nearest flood hazard zone is located to the south of Escalon, as depicted in Figure
5. The 1% Annual Chance Flood Hazard Flood Zone is located 0.84 miles from the City’s southern boundary.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 35 Figure 5: Flood Hazard Zones South of Escalon
Source: FEMA National Flood Hazard Layer Database
Fire Hazards
Fire Hazard Severity Zones (FHSZ) are categorized as Moderate, High, or Very High.
The City of Escalon is not located within a FHSZ. The nearest FHSZ is located northwest of Escalon (Figure 6). None of the inventoried sites are located within a High or Very High FHSZ.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 36 Figure 6: Fire Severity Zones
Source: CAL FIRE Fire Hazard Zones Database
Important Farmland and the Williamson Act
According to the California Department of Conservation’s California Important Farmland Finder, the City of Escalon primarily contains urban and built-up land and rural residential land. No project sites are proposed on surrounding land that is categorized as prime farmland or farmland of statewide importance. Additionally, none of the sites identified in the Housing Element are on land covered by active Williamson Act contracts.
Hazardous Materials
There are no issues associated with contamination from Superfund sites, leaking underground storage tanks, or other sources of hazardous materials on sites identified in the Housing Element. All cleanup cases within the City are closed.
Other Conditions or Constraints
There are no known barriers on the sites identified in the Housing Element related to shape, access, easements, property conditions, conservation easements, or environmental overlays.
Availability of Infrastructure
Water
The City of Escalon delivers water for 2,238 residential and 168 commercial customers.
Water supply for domestic service and fire flow is currently supplied from three active
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 37 wells (Wells 3A, 9, and 10) that provide day-to-day domestic water and fire flow supply.
The combined capacity of the system is 3,500 gallons per minute (gpm). Due to Well 1’s current inactivity, Well 1A will be its replacement to increase water capacity. Well 1A construction began in November 2023 and will be completed in February 2026.
The City is also a participant in the South San Joaquin Irrigation District (SSJID) South County Water Supply Program. In 2020, Escalon replaced its 1995 Initial Agreement with SSJID with a new Water Supply Agreement, allowing the city to receive treated water from SSJID through existing and Phase II Project facilities. In 2021, the City Council directed staff to propose Configuration C to SSJID for connection to the Water Treatment Plant, involving an 18,000-foot transmission pipeline and associated facilities. The estimated cost for this connection is $14,877,600, funded by ongoing contributions from water users. Initially, SSJID water will be used seasonally, eventually becoming a reliable domestic water source for Escalon's growing population. The City and SSJID have completed initial surveys and alignment, with design slated for completion by the end of 2023, funding in 2024, and construction in 2025. There is not a need for the supplemental SSJID water to meet projected demands based on the market projections at least through 2030. The City’s water supply will meet Escalon’s long-term water needs including accommodation of its RHNA.
Wastewater
The City of Escalon manages two sewer systems: one for domestic use and another for stormwater/industrial purposes. Wastewater from these systems is transported to treatment facilities near McHenry Avenue. The domestic sewer system serves both residential (94%) and commercial/industrial (6%) customers.
The existing sewer system handles an average daily flow of 0.53 to 0.60 million gallons and can reach 1.12 million gallons per day (MGD) during wet weather. Projections suggest that influent flows could rise to 2.8 MGD with development within the 2035 growth boundary, ultimately reaching 6.78 MGD at buildout. To address this, the City identified four phases of sewer system improvements, with the Phase 1 and 2 Improvements focusing on immediate needs, including upgrading the McHenry Lift Station and related pipelines. Construction of a new Lift Station to replace the existing McHenry Lift Station is complete. While smaller projects are funded through connection fees, larger-scale improvements require long-term debt. The sewer system capacity accommodates the City’s RHNA.
Dry Utilities
Electricity and natural gas are provided by Pacific Gas and Electric Company (PG&E).
South San Joaquin Irrigation District (SSJID) has been actively working for many years to replace these utility companies. SSJID continues to invest in updated financial
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 38 feasibility studies to ensure that they are able to deliver reliable electric service and at lower rates.
AT&T, Spectrum, Velociter, and Viasat Internet are top contenders among internet service providers, offering affordable internet plans and providing services to most residents Construction Costs
The cost of construction is made up by two types of costs. Hard costs include the cost of materials and labor. Soft costs include architectural services, engineering, permit fees and services, construction financing, and insurance. According to research by the Terner Center, hard construction costs account for over 60 percent of the project’s total cost for new residential development. Market conditions, such as housing demand, inflationinduced wages, availability of contractors, and prevailing wages can also influence the cost of labor and overall construction costs. These costs also depend on the type of unit being built and the quality of materials being used.
According to local stakeholders in the development community, labor, materials and land costs are highly prohibitive and pose the largest constraint to the development of housing.
Local developers estimate that hard costs of construction alone are at least $185,000 per unit for multi-family development. Ongoing volatility in material prices and increasing labor costs further constrain housing development. From January to August 2023, the start of housing construction decreased 13 percent compared to 2022 due to interest rates and inflation, which continue into 2024.
The construction cost of housing affects the affordability of new housing and is a significant non-governmental constraint to housing across California, including in Escalon. While local governments have little control over the market factors that influence construction costs, Program 4-1, Removal of Constraints, helps support the mitigation of this constraint, as discussed in Section 2.3, Housing Programs.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 39
4.4.2 Governmental Constraints
Government regulations may inadvertently lead to higher development costs, consequently increasing housing expenses. These governmental restrictions encompass various aspects like land use controls, policies, standards, codes, development fees, procedural requirements, and additional demands placed on developers.
Land Use Controls
Use Regulations
The zoning regulations within the Escalon Municipal Code (EMC) are the primary planning tools used to guide development. The zoning code establishes rules, including permitted uses within specified zoning districts, development standards, design criteria, permits types, local processing and permit procedures within the jurisdiction. Table 26 provides details on the zoning districts in Escalon that permit residential development types.
• "P" designates permitted uses (other planning approvals may be required). • "C" designates uses that are permitted after review and approval of a Conditional Use Permit.
• "(#)" numbers in parentheses refer to specific limitations listed at the end of the table.
• "N" designates uses that are not permitted.
Table 26: Permitted Residential Uses
Residential Uses R-E R-1 R-2 R-3 C-1 C-2 C-M M-1 M-2 O PF Accessory buildings
and uses P P P P N N N N N N N
Boardinghouse N N N C C C N N N N N
Manufactured
structure (residential) P1 P1 P1 P6 P2 P2 P2 N N N N
Mobile home park N N N C C N N N N N N
Multiple-family
dwellings N N N P C2,4 P5 C2,4 N N N N
Residential
condominium N N P P C2,4 P5 C2,4 N N N N
Accessory dwelling
unit P P P P P P P N N N N
Single-family
dwellings on existing
lots less than 6,000
square feet
N P P P N N N N N N N
Single-family dwelling P P P P6 P2 P2 P2 N N N N
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 40 Two-family dwellings N N P P P2 P2 P2 N N N N
Two-family dwelling
on corner lot where
entrances front on
opposite streets
P P P P N N N N N N N
Emergency shelters N N N C N N C P7 P7 N N
Employee housing P P P P6 P2 P2 P2 N N N N
Residential care
facility, large
C C C P N C C C C N N
Residential care
facility, small
P P P P P2 P2 P2 N N N N
Supportive housing
Permitted subject to the same requirements and standards as residential uses of the same type (e.g., single-family dwelling, multiplefamily dwellings, etc.).
Transitional Housing
Permitted subject to the same requirements and standards as residential uses of the same type (e.g., single-family dwelling, multiplefamily dwellings, etc.).
1. Manufactured homes must be certified under the National Manufactured Housing Construction and Safety Standards Act of 1974 (42 USC 5401 et seq.) on a permanent foundation.
2. Residences in Non-R District. Residential uses in any commercial zoning district shall comply with the development regulations applicable in the R-3 district; no residential use is allowed on the ground floor of any commercial building in any non-R district unless the project is approved under the planned development zoning district process.
3. Small family day care homes must meet requirements of the Health and Safety Code Section 1597.45; large family day care homes must meet requirements of Health and Safety Code Section 1597.46.
4. Condominium and townhouse developments can be approved only under the planned development zoning district process in the C-1 and C-M zones.
5. Multifamily residential allowed as a permitted use with a preliminary development plan.
6. Single-family units in the R-3 zoning district are limited to a single-family unit that is: (a) replacing an existing single-family unit on a one-for-one basis; (b) on an existing lot of 6,000 square feet or less; or (c) part of a housing development with the majority of units affordable to extremely low-, very low-, and/or low-income households.
7. Emergency shelters are a permitted use subject to the standards established under Chapter
17.50A EMC.
Source: Escalon Municipal Code (EMC)
Development Standards
Zoning regulations aim to safeguard and enhance the well-being, safety, and overall quality of life for community members. They also strive to maintain the unique identity and essence of neighborhoods while ensuring fairness and inclusivity for all. The development standards set forth in the EMC are outlined in Table 27 and are further analyzed below.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 41 Table 27: Development Standards by Zoning District
Zoning
Distric
t
Min. Lot
Size
(Sq. Ft)
Min.
Lot
Width
(Feet)
Min.
Lot
Depth
(Feet)
Max.
Density
(du/ac)
Max.
FAR
Max.
Height
(Feet)
Min.
Front
Yard
Setback
(Feet)
Min. Side Yard
Setback
(Feet)
Min.
Rear
Yard
Setback
(Feet)
Max. Lot
Coverage
(Percent)
Min.
Open
Space Interior Corner
R-E 25,000 100 120 35 25 101 20 20 35
R-1 6,0002 60 90 63 35 154 55 15 206 65
R-2 6,5007 608 15 35 154 59 15 206 65 200sf/unit
R-3 7,50010 608 29 35 154 5 5 206 200sf/unit
C-1 5,000 50 0.5 1511 011 011 011
C-2 75 011 011 011 011
C-M 6,500 75 1511 011 011, 12 011
M-1 8,000 608 50 1511 011 011, 13 011
M-2 50,000 1008 75 10 10 2014
O 5,000 75 20 0 012 0
PF 6,500 75 20 0 012 0
1. 10 feet on one side and 20 feet on the other side.
2. 6,000 square feet for an interior lot and 7,000 for a corner lot, except as provided for in EMC 17.12.060
3. Maximum of six dwelling units per net acre. In a PD, maximum of 10 units.
4. 15 feet when a front porch is provided; 20 feet when no porch is provided; 25 feet from the front property line when the garage door is facing the street.
5. If the side yard not abutting a street is to be used for driveway purposes, the minimum width shall be 12 feet.
6. On corner lots, the rear yard for any building shall be not less than 10 feet in depth.
7. For the first two dwelling units, 3,000 square feet for each additional dwelling unit, 7,000 for corner lot, except as provided in EMC 17.12.060.
8. At a distance of 20 feet from the front lot line.
9. Five feet per story and 10’ if the side yard not abutting a street is to be used for driveway purposes.
10. For the first two dwelling units, 1,500 square feet for each additional dwelling unit.
11. Minimum of 20’ front, 10’ side abutting street, and 20’ side/rear setback on a lot which abut or are across the street or alley from a lot in a residential zone.
12. Side abutting street 15’.
13. Side abutting street 10’.
14. When abutting a residential district
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 42 Overall, Escalon’s development standards are typical for communities of its size and do not pose an undue constraint to development. Standards for setbacks, lot coverage, and open space are consistent with others in the area and allow the permitted densities to be reached. The City has not received any requests to develop at lesser densities.
The 35’ height limit in the R3 multifamily zone could allow either 2 or 3 stories, and was not identified by developers as a constraint. Program 4-1 will survey developers to identify and remove any unnecessary constraints posed by development standards.
Parking Standards
Excessive parking standards can hinder housing development by increasing development costs and limiting the land that could otherwise be utilized for amenities or residential units. The parking standards established by the EMC are shown in Table 28 and are similar to those of surrounding jurisdictions. Residential parking requirements can pose a constraint if imposed on a per-unit basis without regard to unit size, or if separate guest parking spaces are required. Escalon’s current multifamily parking requirement, at
1.5 spaces plus an additional .5 guest parking space per unit, poses a constraint on development. Program 4-3, Parking Standards would alleviate restrictive parking requirements to facilitate the development of housing.
Table 28: Parking Requirements
Type of Unit Required Parking Required Guest Parking
Single-Family 2 covered spaces -
Two-Family 2 covered spaces -
Senior Housing
(Deed restricted) 1/unit 1/every four units
Multi-Family 1.5 space/living unit 0.5 spaces/unit
Mobile Home
Parks 2 spaces/mobile home space 1 space/every six spaces On and Off-Site Improvements
The EMC outlines requirements for both on- and off-site improvements for residential developments and subdivisions. On-site improvements refer to enhancements made directly to a property or location, such as street frontage improvements and landscaping.
Off-site improvements, on the other hand, typically involve changes or upgrades in the surrounding area, such as infrastructure development or street improvements. Projects that do not require a subdivision map are not required to make off-site improvements but are required to connect to utilities and may be required to provide street improvements, such as curb, gutter, sidewalk and drainage facilities on the project property. If deemed appropriate for large subdivision projects, deferred street improvement agreements may be executed by the City Council.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 43 The development improvements required for projects that require a subdivision map are as follows:
• Grade and fill to a grade acceptable to the city engineer and construct all necessary grade crossings, culverts, bridges and other related works; • Construct and install all drains, drainage facilities, channel improvements and other drainage works required to provide adequate drainage for the subdivision and to protect all lots and adjacent land from flood or overflow by storm or flood waters in accordance with the accepted plans for drains and drainage works; • Construct and install concrete curbs, gutters and sidewalks on both sides of every street and on the proximate side of each existing or dedicated street bordering the subdivision. If a street is an extension of a turnaround or temporary turnaround, the bulbed portion shall be removed and required improvements installed; • Install or provide for the installation of water mains, sanitary sewer, storm drains, necessary appurtenances and all laterals required to serve each lot; • Relocate or provide for the relocation of any underground or overhead utility, including irrigation lines and traffic signal lines, the relocation of which is necessitated by development of the subdivision;
• All underground utilities, sanitary sewers, storm drains and other facilities installed in streets or alleys shall be constructed prior to the paving of such street or alley.
Service connections for all underground utilities and sanitary sewers shall be laid at such lengths to avoid disturbing the street or alley improvements when service connections thereto are made;
• Install street pavement;
• Install sidewalks, alleys, pedestrian ways and bikeways; • Provide for the planting of residential street trees; • Install or provide for the installation of street lighting facilities; and • Construct of fencing, walls, or sound reduction barriers, where necessary.
Requirements for on- and off-site improvements can add significant cost to a subdivision project, which are typically passed on to the purchaser through higher sales prices.
Projects that do not require maps, including most multi-family projects, are not subject to the requirements for off-site improvements and do not have the same cost impacts.
Escalon’s requirements for subdivision improvements are not excessive and are consistent with Subdivision Map Act requirements. The overall cost per mile for complete off-site infrastructure (streets, gutters, sidewalks, storm drains, sewer, and water) for a typical residential subdivision in the San Joaquin Valley is approximately $2 million to $5 million. The estimated cost per unit for these improvements typically ranges from $25,000 to over $50,000. Key cost drivers are site conditions (soil quality, terrain, need for grading and environmental mitigation) and the distance to existing utility connections. In general,
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 44 the denser the development (units per acre), the lower the improvement costs per unit.
They do not pose an undue constraint to development.
Requests to Develop Below Minimum Densities
Development below identified densities as prescribed by zoning regulations reduces residential capacity in a region and may lead to further housing insecurity. Government Code 65583(h)(6) requires that the City report all requests to develop housing opportunity sites with capacity for lower income housing at densities lower than reported in the Housing Element. During the previous planning period, the City did not receive requests to develop housing sites below the minimum density.
Local Processing and Permit Procedures
Processing times in Escalon do not pose a constraint to development. Entitlements are typically processed much faster in Escalon than in surrounding jurisdictions. For example, the typical processing time for a variance application in Escalon is 30 days, whereas it is 60 days in Modesto and four to six weeks in Stockton. Typical processing times for permits submitted for review in Escalon are shown in Table 29. Local processing times do not pose a constraint.
Table 29: Timelines for Permit Procedures and Decision-Making Authority Permit Type Typical
Processing Time
Approval
Authority Appeal Authority
Site Plan Permit 30 Days Planning
Commission City Council
Conditional Use
Permit 60 Days Planning Commission City Council
General Plan
Amendment 120 Days City Council Final
Tentative Map 60-90 Days City Council Final
Parcel Map 60 Days City Council Final
Annexations 9 months City Council Final
Variance 30 Days Planning
Commission City Council
Environmental
Impact Report 9 months
Planning
Commission or City
Council
City Council
Once land use entitlements are in place, the typical time period until Building Permit issuance ranges from immediate (0 months) to 19 months depending on the applicant.
Further, the length of time between final entitlement and submittal of an application for
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 45 building permits is dependent on market factors and project financing; a typical project ranges from immediate (0 months) to 6 months depending on the applicant.
Project Processing for Conforming Housing Projects
The following section describes the City’s processing procedures and findings for approval for two different housing development projects that are located within City limits and that conform to General Plan and Zoning:
Parcel Map (Subdivision of Four or Less Parcels)
A parcel map for subdivision of four or fewer parcels includes the following actions:
• Preapplication meeting with the developer and City staff to discuss the subdivision layout (provided at no cost to the developer for the first two hours) • Application submittal and CEQA checklist to be deemed complete by City Staff • Notice of a public hearing on the map shall be given no less than 10 days before the scheduled hearing date with the Planning Commission notices shall be sent to the newspaper, real property owners within 1200’ of the subject parcel, to the subdivider and property owner, and local utility agencies. • Findings for Approval:
o That the proposed map is consistent with the general plan and/or any applicable specific plans.
o That the design or improvement of the proposed subdivision is consistent with the general plan and/or any applicable specific plans. o That the site is physically suitable for the type of development. o That the site is physically suitable for the proposed density of development.
o That the designs of the subdivision or the proposed improvements are not likely to cause substantial environmental damage or substantially and avoidably injure fish or wildlife or their habitat. o That the design of the subdivision or the type of improvements is not likely to cause serious public health problems.
o That the design of the subdivision or the type of improvements will not conflict with easements, acquired by the public at large, for access through or use of property within the proposed subdivision. In this connection, the planning commission may approve or conditionally approve a map if it finds that alternate easements, for access or for use, will be provided and that these will be substantially equivalent to ones previously acquired by the public. This subsection shall apply only to easements of record or to easements established by judgment of a court of competent jurisdiction.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 46 The decision of the Planning Commission is final unless appealed. If appealed, the City Council would be the final review body. Parcel maps can be reviewed and approved by the Planning Commission in one public meeting. However, if the decision is appealed, at least one additional public hearing will be held by the City Council to review the basis of the appeal.
Major Subdivision Map (More Than 4 Parcels)
A major subdivision follows the same process as above, except that with a major subdivision both a tentative map and a final map will be required. The difference between the two is that for major subdivision maps, the final approval authority is the City Council.
Major Subdivision maps require two public hearings, one by the Planning Commission with a recommendation and the final action by City Council.
A licensed Engineer or Land Surveyor prepares the Final Map and submits it to the City Engineer for review. If the map aligns with the approved tentative map and regulations, the City Engineer certifies it and forwards it to the City Clerk; otherwise, the subdivider is notified of changes and may appeal to the City Council within 15 days. For maps involving both city and county land, responsibilities are shared per an agreement with the county surveyor.
The City Council reviews the map, subdivision plan, and any dedication offers, approves the map if compliant, or disapproves it with stated reasons as outlined in the findings above. If improvements are incomplete, a subdivision improvement agreement may be required.
After approval, the City Clerk ensures all signatures, seals, and fees are in place and sends the map to the County Recorder for official recordation. The map becomes effective, and any property dedications valid, only upon recordation.
Multifamily Project on R3 Zoned Parcel
In accordance with Table 26 above, Multifamily Residential projects are permitted by right use on parcels zoned R2 or R3. Site and Architectural review is required but can be completed by the City Planner. Design Guidelines are set forth below. As noted in Table 29, the typical processing time for a Subdivision Map ranges from 60-90 days for a final decision and the processing time for a residential development on a single lot of record ranges from 30 to 45 days.
Design Guidelines
In 2022, the Escalon City Council adopted Multi-Family & Senior Residential Design Guidelines. The primary purpose of these guidelines is to provide developers, architects,
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 47 property owners, and designers with a clear and user-friendly set of design policies.
These guidelines are used by City staff to evaluate proposed multi-family and senior residential housing projects. The overarching goal is to streamline the planning review process by setting clear expectations for quality design in these types of developments, with a strong focus on safety, livability, and long-term viability. The guidelines are applied with consideration for specific project contexts to strike a balance between creative design and compatibility with existing neighborhoods. The guidelines primarily address building design and site design elements. Other codes and regulations such as the City’s Zoning Code, Standard Specifications, applicable building codes, and the Escalon General Plan continue to apply. The Multi-Family & Senior Residential Design Guidelines adopted in 2022 are separate from the City’s Site and Architectural Approval (Escalon Zoning Code Chapter 17.54) for single-family and commercial developments, and ensure consistency with requirements for objective design and development standards set forth by the Housing Crisis Act of 2019 (SB 330).
The Site and Architecture Approval findings in Chapter 17.54 of the City of Escalon contain several standards that can appear subjective because they may rely on discretionary judgment rather than measurable criteria.
In the decade from 2015-2025, the City did not have any residential projects at any income level submitted for development approval that were denied or significantly altered or conditioned due to site and architecture findings. However, potential projects may have hypothetically been discouraged by subjective criteria in the Site and Architectural Approval findings and not come forward for an application. To clarify potential constraints to development, the findings in Chapter 17.54 will be amended as follows, with text in strikethrough to be removed and italicized text added:
• D1. Site plan elements, e.g., buildings, circulation and open spaces, are arranged on the site so that activities are integrated and harmonious with the neighborhood and surrounding area through integrated street design and multimodal access and are arranged to produce an attractive, efficient and cohesive development of sustained desirability with durable, long-lasting materials such as brick, metal, and stucco to reduce ongoing operational costs and prevent blight;
• D4. The project is designed to maximize the opportunity for privacy by the residents of the project and adjacent residential development (e.g., lighting and security standards such as motion-sensor security lighting and treatments that do not spill onto adjacent development, walls, windows for added surveillance, and locks on access points to buildings contribute to the overall safety of the development);
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 48 • D6. Driveway and parking systems provide smooth, safe, and convenient accessible movement of vehicles consistent with the City’s Circulation Element and active transportation planning standards, both on and off the site; • D7. Contribute to the overall aesthetic quality of the site; • D11. The pedestrian circulation system is designed to assure that so pedestrians can move safely and easily both on the site and between properties and activities within the neighborhood, including through the promotion of complete streets principles and the City’s required development standards (e.g., ADA compliant streetscapes, continuous sidewalks, midblock crossings for blocks longer than 500 feet, and bicycle infrastructure); • D12. Incorporates design features to enhance convenience and pedestrian safety across parking lots and driveways, by ensuring that multimodal egress (e.g. crossings, access ways) are not located behind dedicated car parking, and are accessible to persons of all ages and abilities.
Senate Bill 35
Senate Bill 35 (SB 35), codified under Government Code §65913.4 requires cities and counties who have not made sufficient progress towards their RHNA to streamline review and approval of eligible affordable housing projects by providing a ministerial approval process, exempting such projects from environmental review under the California Environmental Quality Act. As indicated in HCD’s SB 35 Statewide Determination Summary, Escalon is subject to SB 35 streamlining provisions when qualifying projects include at least 10% affordability. As of October 2023, the City has not received an SB 35 application. If the City were to receive an SB 35 application, it would follow state law procedure. Program 1-3 has been included in this Housing Element to create and implement a formalized procedure for qualifying projects under SB 35.
Fees and Other Exactions
Table 30 depicts the permitting and processing fees related to housing development in Escalon. The purpose of these fees is to offset the expenses incurred during the processing and evaluation of development applications, and enforcement of relevant regulations. In compliance with Government Code Section 66020, the City is required to set permit and development fees at levels that do not surpass the actual expenses associated with providing the corresponding services.
Table 30: Permitting and Processing Fees
Fee Category FY 2022-2023
Annexation $11,082
Variance $913
Conditional Use Permit $913
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 49 General Plan Amendment $5,480
Rezone $7,658
Site Plan Review (6,000 sf or less) $4,027
Site Plan Review (Greater than 6,000 sf) $9,205
Pre-application/Development Review $1,584
Planned Development $7,550
Subdivisions
Certificate of Compliance $913
Lot Line Adjustment $1,218
Tentative Parcel Map or Final Map (0-5
lots) $5,178
Tentative Tract Map or Final Map (5+
lots) $11,506
Environmental
Categorical Exemption $134
Initial Environmental Study $1,024
Environmental Impact Report $10,000
Negative Declaration $7,806
Mitigated Negative Declaration $8,689
Source: City of Escalon FY 22-23 Schedule of Fees
In accordance with California Government Code sections 66000- 66025 (the “Mitigation Fee Act”), the City also collects development impact fees. Impact fees are a one-time charge for new development to mitigate impacts resulting from the project. Common examples of impact fees include parks fees and utility connection fees. The impact fees that are collected in Escalon range from $24,853 to $32,742 as depicted in Table 31 below.
Table 31: City of Escalon Development Impact Fees
Type Single-Family (per unit) Multi-Family (per unit)
Transportation mitigation $1,328 $770
Police $2,433 $1,946
City Hall $1,078 $863
Parks & Recreation $7,851 $6,281
Public Works $1,150 $920
Library $148 $118
Admin Fee $655 $515
Water Connection Fee $11,045 $7,562
Sewer Connection Fee $7,054 $5,878
Total $32,742 $24,853
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 50 Impact fees can add significantly to the cost of residential development but are necessary to provide the services needed to serve that development. A comparison of fees in similar nearby jurisdictions is helpful in determining whether residential impact fees are excessive and pose an undue constraint. In Riverbank, a city of similar size to Escalon and located approximately four miles to the southeast of city limits, the total development impact fees for residential uses vary from $19,873 to $46,3096. Table 32: City of Ripon Development Impact Fees, below, shows the fees in nearby Ripon, where they range from $31,898+ to $55,343 per unit. In all three communities, including Escalon, fees for multi-family units are less than for single-family units. Development Impact fees do not pose an undue constraint to development.
Table 32: City of Ripon Development Impact Fees
Type Single-Family (per unit) Multi-Family (per unit)
Library $646 $403
Parks $19,778 $12,362
Police $745 $467
City Hall $1,587 $992
Refuse $1,015 Based on usage
Storm Drain $3,469 $794
Transportation $8,503 $4,055
Wastewater $5,814 $3,634
Water $13,786 $9,192
Total $55,343 $31,898*
*Does not include refuse fee due to fee being based on usage.
Building Codes and Enforcement
Escalon regulates construction and development through the Development Services Department. As part of the permit process, plans are reviewed to ensure compliance with adopted codes. The 2022 California Building Standards Code (Cal. Code Regs., Title 24) went into effect on January 1, 2023, with no local amendments. Enforcing this code does not impose unnecessary restrictions on housing development. Building permit applications may be submitted in-person, by mail, or email.
Housing for Individuals with Disabilities
The Americans with Disabilities Act (ADA) plays a pivotal role in ensuring equal housing opportunities for individuals with disabilities. One of its significant provisions mandates 6 City of Riverbank System Development Fees, Resolution No. 2023-032
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 51 that a specific percentage of units in new multi-family developments must be fully accessible to those with physical disabilities. This requirement is not subject to discretionary decisions by cities. Under the ADA, cities are also obligated to reasonably modify their policies when necessary to prevent discrimination against individuals with disabilities. While local agencies still possess the authority to regulate land use, they are legally required to accommodate individuals with disabilities. The City upholds ADA requirements for new housing development projects during the review of entitlements and building permit applications.
Additionally, Chapter 17.53 of the City of Escalon's Municipal Code establishes the procedure for requesting reasonable accommodation. This adopted procedure helps to ensure that households have a streamlined process to request improvements and modifications to accommodate a disability. It outlines clear, objective findings for approval and processing is fast (within 30 days) and done at the administrative level.
Requests for reasonable accommodation must include the applicant’s name, address, and telephone number; the address of the property for which the request is being made and its current use; the basis for the claim that the individual is considered disabled under the Acts; the code, land use provision, or other regulation or policy from which reasonable accommodation is being requested; and a description of why the reasonable accommodation is necessary to make the specific property accessible to the individual.
The request is reviewed by the Development Services Manager or their designee, and a decision is rendered within 30 days. Requests submitted for concurrent review with another discretionary land use application are reviewed by the authority reviewing the discretionary land use application.
The written decision to grant or deny a request for reasonable accommodation must be consistent with the Acts and the following findings must be made: The housing which is the subject of the request will be used by an individual with a disability protected under the Acts; the request for reasonable accommodation is necessary to make the housing available to an individual with a disability under the Acts; the requested reasonable accommodation will not impose an undue financial or administrative burden on the city; the requested reasonable accommodation will not require a fundamental alteration in the nature of a city program or law, including but not limited to land use and zoning; and that the granting of the reasonable accommodation will not pose an undue impact on surrounding properties or structures. In granting the request for reasonable accommodation, the reviewing authority may impose only those conditions of approval deemed reasonable and necessary to ensure that the reasonable accommodation would comply with the above findings. Program 5-5 will amend the reasonable accommodations code to remove the finding related not posing an undue impact on surrounding properties or structures. With this Program, the process will not pose a constraint to housing for persons with disabilities.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 52 Emergency Shelters (AB 2339 Analysis)
Adequacy of Sites
Using the AB 2339 standard of 200 square feet per individual and the 2019 PIT Count, the City needs at least 800 square feet of available land to accommodate its emergency shelter need. While the 2024 PIT Count identified only one unsheltered individual, it is unlikely that a shelter would be established for a single individual and thus this analysis uses the slightly larger 2019 count of four unsheltered persons. This is a very small land area and should not serve as a constraint to compliance with AB 2339.
Suitability of Zoning Districts
Escalon’s Zoning Code allows emergency shelters by-right within the Limited Manufacturing (M-1) and General Manufacturing (M-2) zones. Neither of these zones currently allow residential uses, so they do not meet the requirements. The Zoning Code also allows Emergency Shelters within the Commercial-Industrial (C-M) and Multi-family Residential (R-3) zones, subject to the granting of a use permit. Because Emergency Shelters are not permitted by-right without discretionary review, these zones do not meet the new requirements.
Conclusion. Escalon’s Zoning Code will need to be amended. Consistency with AB 2339 will be achieved by changing the permitting level for Emergency Shelters in the R-3 from conditionally permitted to permitted by right.
R3 Analysis
There are 42 parcels zoned R-3 within Escalon city limits. Six of the 42 parcels are vacant and range in size from 0.523 to 2.24 acres. Given the AB 2339 standard of 200 square feet per person and the highest PIT count of 4 persons, Escalon has more than adequate capacity for emergency shelters within its R-3 zone.
Emergency Shelter Standards
Escalon has specific standards within their Zoning Code that outline the minimum requirements for emergency shelters. Some of the standards may serve as constraints or lack objectivity, and may need to be modified to meet the requirements of AB 2339. See Program 2-1 (J).
Affordable Housing (Inclusionary) Program
The City of Escalon's Affordable Housing Program was adopted in 2017 in response to the escalating need for affordable housing within the City. The City acknowledges the necessity for the construction and maintenance of affordable housing to safeguard the public welfare. Much like other areas of the state, Escalon has seen increases in housing prices and rents, making it challenging for low- and moderate-income households to
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 53 secure suitable and affordable housing. Limited federal and state funds for affordable housing construction further compound this issue. According to the August 27, 2023 EPS Report Inclusionary Housing in the San Joaquin Valley, Escalon is one of only four jurisdictions within this large region that have an active inclusionary housing program. Of those four jurisdictions (Escalon, McFarland, Ripon, and Patterson), Escalon’s program has the lowest applicability threshold (5 units) but also has one of the lowest percentages of units required to be affordable (10-15%).
To help the City meet its housing needs, all new residential developments of 5 or more units must participate in the Affordable Housing Program. Rental housing projects may pay the established fees in lieu of providing the affordable units on site. Developers may also comply with the Affordable Housing Program requirements through the dedication of land, or by filing for and receiving a determination of infeasibility. Residential projects that do not require a subdivision map may simply pay the in-lieu fee at building permit issuance and are not required to enter into an Inclusionary Housing Agreement. For projects requiring a map, the developer is required to enter into an Inclusionary Housing Agreement and either dedicate land of similar or higher value than payment of the in-lieu fee; or provide 10-15% of project units on site at levels affordable to very-low through moderate-income households; or provide some combination thereof. Affordable units are deed restricted for a period of not less than 50 years. The required percentage of units and level of affordability ranges from 10% (if all lower-income units are provided) to 15% (if all moderate-income units are provided). The approval process for the Program runs concurrent with the land use entitlement process, with application being made at the time of initial planning application and approval being granted by either the Planning Director (for projects that do not involve a subdivision map), or by the City Council (for projects that include a map). Because the City Council is already the approval authority for subdivisions and the processes run concurrently, the Affordable Housing Program does not extend the time frame for project approval and does not pose a constraint to development in terms of delayed processing times and those associated costs.
Alternate Means of Compliance
In-Lieu Fees. Escalon’s Affordable Housing In-lieu fees are payable by developers of multi-family units, ownership developments of 10 or fewer units (if requested by developer), and for any fractional unit requirements.
Land Dedication. As noted above, Escalon allows land dedication as an alternate means of compliance, subject to City Manager or City Council approval. The value of the land must be at least as high as the total value that would have been collected through in-lieu fees. The land may be dedicated to the City or to a non-profit developer.
Infeasibility. As noted above, a developer may have their inclusionary requirement waived or reduce upon a finding of infeasibility, determined by the City Manager subject to the
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 54 review of the City Council. A reduction or waiver of the affordable housing requirement may be granted if the project applicant can demonstrate that: (a) the requirement presents an undue hardship that would render the project financially infeasible; (b) the project applicant can demonstrate the absence between the specific impact of the development on the City’s housing needs and the affordable housing requirement; or (c) the project applicant can demonstrate that the project would provide units affordable to entry-level households earning up to 120 percent of the median income and that the requirement would raise the cost of the units to price levels that will not be affordable to entry-level households.
Density Bonus and Other Incentives
Escalon’s Affordable Housing Program is fully integrated with State density bonus law (GC 65915) and the bonus is granted to any project meeting the affordable or senior unit requirements set forth in the state density bonus law. Any development project meeting the requirements of state density bonus law will already have met the Affordable Housing Program Requirements. Additionally, Escalon allows for a density bonus even if projects do not meet the state density bonus thresholds: a developer may request a density bonus of either one additional market rate unit for each two inclusionary units constructed, or one additional market rate unit for every 10 units of in-lieu fees collected. Additional incentives beyond density bonuses are also available, including fee waivers and deferrals, waiver of development standards, and financial assistance (i.e., either direct financial assistance from the City or assistance in procuring funds from state or federal sources).
Because the City allows multiple means of compliance with its Affordable Housing (Inclusionary) Program, allows a waiver or reduction of program requirements upon a showing of non-feasibility, and offers generous density bonuses and other incentives to offset the potential increase in development costs, the Program does not pose an undue constraint to the development of housing in Escalon.
Growth Management Ordinance
Escalon’s Municipal Code includes a Growth Management Ordinance, which is currently subject to the provisions within the Housing Accountability Act until January 1, 2030. An analysis of the Growth Management program and its potential constraints on the development of housing is required under State Housing Element law.
The Growth Management Ordinance (GMO), adopted and approved in 2003, is located at Chapter 15.04 of the Municipal Code. The GMO provides for an annual allocation of building permits, which ensures that the City’s limited municipal services and utilities are equitably distributed. The GMO is intended to reduce the potential for wasteful construction of public facilities on a crisis basis; overburdening of municipal services and
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 55 utilities; increases in tax costs in excess of tax gains; premature and inefficient commitment of prime agricultural land to urbanization; and environmentally detrimental development patterns. The specified intent of the GMO is to control the rate and location of growth while still meeting the City’s housing needs, as determined by the Housing Element.
Following adoption of the City’s 2010 Housing Element, the GMO was updated consistent with Housing Element Program 2-6 to ensure that adequate allocations were provided to accommodate the City’s fair share of housing needs through 1) providing allocations for extremely low, very low, and low income units on a 2 for 1 basis, 2) increasing the number of allocations available, and 3) requiring annual monitoring of the ordinance to ensure that it does not constrain the development of housing.
The GMO allows a maximum of 75 new building permits to be issued annually for the construction of new single-family dwelling units. The City Council may allow up to 100 building permits to be issued in a year, including permit allocations rolled over from the preceding year, as long as non-rollover permits do not exceed 75. Rollover requests receive priority and are issued first. Applicants requesting allocations for subdivisions and multifamily developments are encouraged to determine and plan for their project allocations early in the entitlement process. Since the issuance of growth allocations occurs following or concurrent with the necessary entitlements (final map or site plan approval), the City works with the applicant during the processing of their map to ensure understanding of the allocation process, exemptions, timing and incentives in order to streamline the development.
The GMO encourages development of affordable housing (extremely low, very low, and low-income units), multi-family, and mobile home units by counting each two affordable, multi-family, or mobile home units as a single allocation. The GMO also allows the City Council to set aside allocations for a multi-family project at any point throughout the year as part of the approval process for the multi-family project; the allotment the following year would then be reduced by one single family unit for each two multiple dwelling units or two mobile homes. For example, an 88-unit multifamily project may be approved during 2024; as part of the approval, the City Council may set aside 44 allocations (one single family allocation for each 2 multifamily units) from the following year’s allocation. In 2025, the maximum allocations would be reduced by 44 allocations. This approach provides certainty for the multi-family developer by allocating their units as part of the project approval process. Mobile homes and affordable senior housing units qualify for this same treatment.
In addition to the provisions to accommodate affordable housing, multifamily housing, mobile homes, and senior units, the Growth Management Ordinance exempts:
• Single lots of record as of December 31, 2000;
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 56 • Rehabilitation or remodeling of an existing dwelling, or conversion of apartments to condominiums, so long as no additional dwelling units are created; and • Residential units on parcels zoned Planned Development (PD) which are deed restricted for affordability by low- and very low-income households for a period of at least 50 years.
The Growth Management Ordinance includes provisions to accommodate development of multifamily housing, mobile home parks, and affordable senior units by increasing the allotment for these units in any given year and allowing these types of projects to be guaranteed a specific allocation without competing in the allocation process. The Growth Management Ordinance exempts very low- and low-income units that are zoned PD and deed restricted for affordability for at least 50 years. These provisions accommodate development of affordable and higher-density housing and ensure that affordable units are either provided priority or exempted from the GMO process.
If more applications are received in any year than there are allocations available, the Code requires that at least three (3) staff persons rank the applications according to the following criteria:
• Architectural design/landscaping (25 percent).
• Mitigation of public service impacts (25 percent).
• Enhancement of nonmotor vehicle forms of transportation (20 percent). • Quality of infrastructure improvements (20 percent).
• Provision of public safety enhancements (10 percent).
Allocations would then be adjusted proportionately based on the average ranking of all the projects. Projects that provide open space beyond the minimum required, as well as mixed-use projects featuring residential units along with tax-generating commercial uses, can also be assigned “bonus” points for the purpose of determining project rankings. The Code does not specify how much the bonus could be.
As shown in Table 34 below, the City has not reached its annual limit of allocations and does not receive enough applications to trigger the above City review or ranking.
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 57 GMO Allocations Adequate to Accommodate RHNA
The City’s Regional Housing Needs Allocation for the 2024-2032 period is 45 extremely low, 45 very low income units, 56 low income units, 66 moderate income units, and 155 above moderate income units, for a total of 367 units. Under the City’s current GMO, these units would require a maximum of 294 GMO allocations. Table 33 demonstrates that for the 2024 through 2032 RHNA period, the City’s GMO would allow at least 600 single-family allocations which are more than enough to accommodate the City’s RHNA.
Of course, the City cannot compel developers to obtain allocations or build during the RHNA period and in some years there are no applications and no allocations. When not needed or requested, allocations expire at the end of the following year.
Table 33: GMO Allocation Adequate to Accommodate 6th Cycle RHNA Extremely-Low, Very-Low, and Low Income Moderate & Above Totals Allocations Available: 600,
not including rollover units
RHNA: 146 RHNA: 221 RHNA: 367
Maximum allocations required: 73
(each 2 affordable, senior, MH or MF units = 1
allocation)
Maximum
allocations
required: 221
Maximum allocations: 294
Determination: Adequate Adequate Adequate
In Escalon’s experience, allocations requested and approved in all years have been significantly less than the available allocations in any year. As shown in Table 34 below, the City’s GMO has consistently allowed adequate allocations to accommodate the RHNA in each year of the last two Housing Element cycles. While there were a minimum of 1,050 GMO allocations that became available during this period, only 344 total allocations (212 new and 132 rollover) were requested and all 344 were approved with adequate allocations remaining each year.
Table 34: Growth Management Allocation Program 15 Year Trends Fiscal Year New
Allocations
Requested
Rollover
Allocations
Requested
Allocations
Approved
New/Rollover
Annual Allocations Available
2007/08 28 26 28/26 75 new – up to 100 total
2008/09 21 0 21/0 75 new – up to 100 total
2009/10 0 0 0 75 new – up to 100 total
2010/11 50 0 50/0 75 new – up to 100 total
2011/12 0 50 0/50 75 new – up to 100 total
2012/13 50 0 50/0 75 new – up to 100 total
2013/14 0 45 0/45 75 new – up to 100 total
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 58 2014/15 0 0 0 75 new – up to 100 total
2015/16 0 0 0 75 new – up to 100 total
2016/17 6 0 6/0 75 new – up to 100 total
2017/18 24 0 24/0 75 new – up to 100 total
2018/19 23 0 23/0 75 new – up to 100 total
2019/20 3 11 3/11 75 new – up to 100 total
2020/21* 7 0 7/0 75 new – up to 100 total
2021/22* 0 0 0 0
2022/23* 0 0 0 0
2023/24* 0 0 0 0
Totals 212 132 212/132 1,050 – 1,400
*Escalon’s GMO is subject to the provisions within the Housing Accountability Act until January 1, 2030 Given current and past development trends, Escalon has more than enough GMO allocations to serve likely residential development and to meet its RHNA. The GMO incentivizes affordable housing units, multi-family and senior housing units, and mobile homes by allowing two such units per allocation. The City does not consider Accessory Dwelling Units and Junior Accessory Dwelling Units in its density definition and therefore does not require the issuance of allocations for their development. The minimum available number of allocations for an 8-year planning cycle (at least 600) exceeds the RHNA for the planning period (367 total RHNA units, which would require a GMO allocation of 294).
In other words, there are more than twice as many allocations available as would be needed to meet the City’s RHNA.
While it would be theoretically possible for multiple large non-exempt housing developments to be approved within a single year for subsequent years, triggering an allocation limit and the need to prioritize allocations, this situation has never occurred and is not likely to occur given Escalon’s development history and market trends. If such a situation were to occur, the City Council has the authority to grant allocations for an upcoming year. As well, a developer of affordable housing can choose to apply the PD designation to a particular project as a part of their entitlement process, rendering the deed-restricted affordable units within the project exempt from the GMO altogether regardless of their timing of development.
SB 330
Signed into law in 2019 with an effective date of January 1, 2020, SB 330 prohibits a jurisdiction from reducing residential zoning, enforcing new subjective design standards, imposing a moratorium on residential development, or limiting the number of residential approvals/permits that can be issued. Regarding the restrictions on limits to the number of approvals or permits issued, the bill provides a limited 2-part exception as follows:
Escalon 2023-2031 Housing Element Adoption Draft | Section 4 | p. 59 “An affected county or affected city may enforce a limit on the number of approvals or permits or a cap on the number of housing units that can be approved or constructed if the provision of law imposing the limit was approved by voters prior to January 1, 2005, and the affected county or affected city is located in a predominantly agricultural county.
For the purposes of this subparagraph, “predominantly agricultural county” means a county that meets both of the following, as determined by the most recent California Farmland Conversion Report produced by the Department of Conservation:
(i) Has more than 550,000 acres of agricultural land.
(ii) At least one-half of the county area is agricultural land.” The most recent California Farmland Conversion Report determined that, of the 912,600 total acres in San Joaquin County, agricultural land accounts for 747,944 acres, or approximately 82 percent of the county. This part of the 2-part exception is met.
The GMO was approved and adopted in 2003 but was not passed by the voters. This part of the 2-part exception is not met, and the City of Escalon is not exempt from SB 330’s restriction on growth management programs. Per the applicable statute (Government Code Section 66300(b)(1)(D) the City will remain in conformance with SB 330 until its restrictions are lifted.
Prior to resuming use of its GMO Program, the City will make the following changes to reduce the potential for constraints (Program 4-1(A)):
• Exempt Accessory Dwelling Units and Junior Accessory Dwelling Units; • Exempt deed-restricted affordable units without need for the PD designation, unless those units are not needed for the City to achieve its RHNA in the applicable income categories; and
• Extend the period for which allocations are valid (the carryover period) to ensure that allocations do not expire while there is a remaining housing need.
The City will continue to track the ongoing permitting and production of housing through the Annual Progress Report (APR) due each year on April 1, as detailed in Program 1- 1(B) of the Housing Strategy. As a result, the GMO will not constrain housing supply, increase housing costs, or impact the certainty of approvals. The City will further ensure consistency with non-GMO provisions of SB 330 by providing an available pre-application form on the City’s website under Program 1-3 (C), and ensuring no more than five (5) public hearings on housing projects that meet objective zoning standards, as made permanent by the passage of AB 130 (2025).
Adoption Draft
Fair Housing Assessment
August 2026
Attachment 4
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 1 SECTION 5: FAIR HOUSING ASSESSMENT
Table of Contents
SECTION 5.1 BACKGROUND ....................................................................................... 5
5.1.1. Housing Element Requirements....................................................................................... 5 SECTION 5.2 FAIR HOUSING ENFORCEMENT AND OUTREACH CAPACITY.......... 5
5.2.1 Compliance with Existing Fair Housing Laws and Regulations ................................... 6
5.2.2 Fair Housing Services, Outreach, and Enforcement at a Local Level ...............................10
5.2.3 Complaints, Findings, Lawsuits, Enforcement Actions, Settlements or Judgements Related to Fair Housing and Civil Rights...................................................................................12
5.2.4 Housing Enforcement and Outreach Capacity: Fair Housing Issues & Contributing Factors .................................................................................................................................................12 SECTION 5.3 PATTERNS OF INTEGRATION AND SEGREGATION.......................... 13
5.3.1 Escalon Neighborhood Profiles by Block Group ...............................................................13
5.3.2 Land Use & Zoning ..........................................................................................................14
5.3.3 Race & Ethnicity...............................................................................................................15
5.3.4 Persons with Disabilities...................................................................................................20
5.3.5 Familial Status .................................................................................................................23
5.3.6 Income .............................................................................................................................24
5.3.7 Poverty.............................................................................................................................28
5.3.8 Racially & Ethnically Concentrated Areas of Poverty & Affluence .....................................29 SECTION 5.4 DISPARITIES IN ACCESS TO OPPORTUNITY.................................... 32
5.4.1 Resource Areas................................................................................................................32
5.4.2 Education.........................................................................................................................33
5.4.3 Access to Healthy Environment........................................................................................35
5.4.4 Transportation ..................................................................................................................38
5.4.5 Economic Development & Job Access .............................................................................40
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 2
5.4.6 Housing the Workforce.....................................................................................................42 SECTION 5.5 DISPROPORTIONATE HOUSING NEEDS & DISPLACEMENT........... 43
5.5.1 Cost Burden & Severe Cost Burden.................................................................................43
5.5.2 Overcrowding...................................................................................................................46
5.5.3 Substandard Housing.......................................................................................................50
5.5.4 Displacement ...................................................................................................................54
5.5.5 Homelessness .................................................................................................................60 SECTION 5.6 CONTRIBUTING FACTORS & HOUSING PROGRAMS....................... 61
5.6.1 Ranking of Contributing Factors .......................................................................................61
5.6.2 Contributing Factors & Program Actions...........................................................................62
5.6.3 Housing Programs & AFFH Considerations......................................................................64
5.6.4 Local Data & Knowledge ..................................................................................................66 SECTION 5.7 FAIR HOUSING & HOUSING SITES..................................................... 83
5.7.1 Segregation & Integration.................................................................................................83
5.7.2 Racially & Ethnically Concentrated Areas of Poverty........................................................85
5.7.3 Disproportionate Housing Needs Including Displacement ................................................85
5.7.4 Disparities in Access to Opportunity .................................................................................87
5.7.5 Improved and Exacerbated Conditions.............................................................................87
5.7.6 Sites by Access to Healthy Environment ..........................................................................88
5.7.7 Sites by Access to Transportation ....................................................................................88
5.7.8 Sites by Access to Educational Opportunities...................................................................91
5.7.9 Sites by Access to Recreational Opportunities .................................................................92 Table 1: Compliance with Fair Housing Laws............................................................................. 7 Table 2: Escalon Neighborhood Profiles by Census Block Group .............................................14 Table 3: Population by Race, Escalon and the Region, 2010-2021...........................................16 Table 4: Racial Dissimilarity Trends for San Joaquin County ....................................................20 Table 5: Population by Type of Disability in Escalon .................................................................20 Table 6: Disability Status by Race and Ethnicity in Escalon ......................................................21
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 3 Table 7: Households by Household Income Level, 2019...........................................................25 Table 8: Student Demographics in the Escalon Unified School District, 2022 ...........................34 Table 9: English & Math Proficiency, Escalon Unified School District, 2021-2022.....................35 Table 10: FDIC-Regulated Bank Branches, San Joaquin County, 2022....................................41 Table 11: Projected Change in Jobs and Population in Escalon, 2015-2050.............................42 Table 12: Median Gross Rent, 2017-2021.................................................................................45 Table 13: Occupants Per Room for Households by Race and Ethnicity in Escalon, 2021 .........46 Table 14: Overcrowding for Households by Tenure in Escalon, 2021 .......................................47 Table 15: Substandard Housing Issues in Escalon & San Joaquin County, 2021......................50 Table 16: Fair Housing Issues, Contributing Factors, and Program Actions ..............................62 Table 17: Housing Program Metrics to Affirmatively Further Fair Housing.................................64 Table 18: Local Data and Knowledge of Fair Housing Issues in Escalon ..................................66 Table 19: Distribution of RHNA Capacity by Census Tract/Block Group & AFFH Indicators......84 Table 20: Summary of Local Data and Knowledge....................................................................85 Table 21: Walk & Bike Scores, Escalon Housing Sites Inventory, 2023-2031 ...........................90 Figure 1: City of Escalon Map ...................................................................................................15 Figure 2: Racial Demographics of Escalon, San Joaquin County & California, 2010-21............17 Figure 3: Predominant Population, Census Tracts ....................................................................17 Figure 4: Racial Demographics of Escalon by Block Group, 2020.............................................18 Figure 5: Racial Demographics of Escalon by Block Group, 2020.............................................19 Figure 6: Population with a Disability in the Area.......................................................................22 Figure 7: Percent of Children in Single Female-Headed Households ........................................23 Figure 8: Percent of Single Adult Householders........................................................................24 Figure 9: Households by Income Group, Escalon and the Region, 2019...................................25 Figure 10: Median Income by Census Tract, Escalon ...............................................................26 Figure 11: Low to Moderate Income Population by Block Group, Escalon.................................27 Figure 12: Map of Existing Affordable Housing Projects............................................................28 Figure 13: Population by Poverty Status in Escalon ..................................................................29 Figure 14: Racially Concentrated Areas of Affluence, 2019 ......................................................30 Figure 15: TCAC/HCD Opportunity Map: High Segregation and Poverty ..................................31 Figure 16: TCAC Opportunity Map Composite Score, City of Escalon, 2024.............................32 Figure 17: TCAC Opportunity Map Composite Score, Escalon and Surrounding Area, 2024 ....33 Figure 18: CalEnviroScreen 4.0 by Census Tract, San Joaquin Valley Area, 2021 ...................36 Figure 19: Healthy Places Index, 2021......................................................................................37 Figure 20: eTrans Transit Service Area Map, 2023 ...................................................................39 Figure 21: TCAC Opportunity Map Economic Scores by Census Tract, 2023 ...........................40 Figure 22: Inflow and Outflow of Workers in Escalon ................................................................43 Figure 23: Overpayment by Renters, 2019................................................................................44 Figure 24: Overpayment by Homeowners, 2019 .......................................................................45 Figure 25: Overcrowded Households by Census Tract .............................................................48 Figure 26: Severely Overcrowded Households by Census Tract...............................................49 Figure 27: Regional Housing Units Lacking Complete Plumbing...............................................51 Figure 28: Regional Housing Units Lacking Complete Kitchen..................................................52
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 4 Figure 29: Age of Structures .....................................................................................................53 Figure 30: Displacement Risk for All Households, 2022............................................................55 Figure 31: Displacement Risk for Low-Income Households, 2022.............................................56 Figure 32: Displacement Risk for Very Low-Income Households, 2022.....................................57 Figure 33: Special Flood Hazard Areas Near Escalon, 2022.....................................................58 Figure 34: Special Flood Hazard Areas in the San Joaquin Valley Area, 2022..........................59 Figure 35: Emergency Shelter Housing, 2021...........................................................................61 Figure 36: Housing Sites and Resource Areas..........................................................................83 Figure 37: Transit Stop Areas, Caltrans, 2023 ..........................................................................89 Figure 38: Escalon Parks, Schools and Housing Sites..............................................................92
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 5 Section 5.1 Background
The obligation to affirmatively further fair housing (AFFH) stems from the Fair Housing Act of 1968, a key piece of legislation that aimed to eliminate discriminatory practices that were preventing certain groups of people, particularly racial and ethnic minorities, from accessing housing opportunities based on their protected characteristics. Additionally, the Act sought to promote fair housing practices and equal housing opportunities for all, and to create a more inclusive and just housing market. In line with this, 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 actions to address significant disparities in housing needs and access to opportunity related to race, national origin, color, ancestry, sex, marital status, disability, religion, or other protected characteristics. These measures are intended to address disproportionate housing needs of the City’s most vulnerable residents, including renters and cost-burdened households.
5.1.1. Housing Element Requirements
All Housing Elements due on or after January 1, 2021 must contain a Fair Housing Assessment that addresses the requirements outlined in Assembly Bill 686. Under current Housing Element law, the Fair Housing Assessment must identify factors that contribute to local fair housing challenges and include meaningful actions within the Housing Element Programs to address those factors. The findings must also be integrated into the Sites Inventory. Lastly, the process of updating the Housing Element must actively engage the public and conduct outreach initiatives that actively promote the advancement of fair housing objectives.
Per the guidance of the Department of Housing and Community Development (HCD), the Fair Housing Assessment addresses enforcement and outreach capacity, segregation and integration, disparities in access to opportunity, disproportionate housing needs including displacement, and concentrated areas of poverty and affluence across racial/ethnic groups.
Section 5.2 Fair Housing Enforcement and Outreach Capacity Fair housing enforcement and outreach capacity pertains to the City and local fair housing entities’ ability to disseminate information related to fair housing and provide outreach and education to ensure community members possess a comprehensive understanding of fair housing regulations and their rights. Additionally, enforcement and outreach capacity include the ability to address compliance with fair housing laws, such as investigating grievances and obtaining remedies.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 6
5.2.1 Compliance with Existing Fair Housing Laws and Regulations Laws at both the Federal and State levels prohibit intentional housing discrimination and prohibit any actions or policies that may have a discriminatory effect based on a person’s protected class, including race, color, religion, sex, national origin, familial status, and disability. In California, additional laws such as the Fair Employment and Housing Act (FEHA) and the Unruh Civil Rights Act prohibit discrimination based on marital status, ancestry, sexual orientation, source of income, or any other arbitrary forms of discrimination. Examples of policies or practices that have discriminatory effects include exclusionary zoning and land use, predatory lending practices, and residential rules that may inhibit religious or cultural expression.
Both the Federal and State governments have systems in place to handle and investigate fair housing complaints. In California, the Department of Fair Employment and Housing (DFEH) maintains the authority to investigate complaints of discrimination related to employment, housing, public accommodations and hate violence. The agency processes complaints online, over the phone, and by mail, and they provide protection and monetary relief to those who have been victims of housing discrimination. At the national level, the U.S. Department of Housing and Urban Development (HUD) also investigates and acts on complaints that violate the Federal Fair Housing Act.
Additional protections provided by the State include:
• The Ralph Civil Rights Act (California Civil Code Section 51.7) prohibits acts of violence or threats of violence based on factors such as race, color, religion, ancestry, national origin, age, disability, sex, sexual orientation, political affiliation, or involvement in a labor dispute.
• The Bane Civil Rights Act (California Civil Code Section 52.1) offers an extra layer of safeguarding fair housing choices by protecting all Californians from the use of force or threat of force to interfere with an individual's constitutional or legal rights, including the right to equal access to housing.
• California Civil Code Section 1940.3 bars landlords from asking potential tenants about their immigration or citizenship status. This law also prohibits local governments from passing regulations that direct landlords to inquire about a person’s citizenship or immigration status.
• The California Tenant Protection Act (AB 1482; California Civil Code 1946.2, 1947.12, and 1946.13) prevents tenants from being evicted without "just cause." This means that tenants living in multi-family units for a minimum of one year can only be evicted for specific reasons, such as non-payment of rent, criminal behavior, or violation of a significant term in the lease. The law also limits rent increases to a maximum of 5% plus inflation, with a total cap of 10%.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 7 • California Government Code Sections 11135, 65008, and 65580-65589.8 prohibit discrimination in State-funded programs and in land use decisions.
Local laws in Escalon and San Joaquin County do not extend the protected classes or housing covered under FEHA. The definitions of protected classes and housing coverage under FEHA are also not expanded by the Housing Authority of the County of San Joaquin or the Stanislaus County Housing Authority. It is important to note that they must adhere to supplementary housing regulations as directed by HUD.
In the realm of the City’s Municipal Code, efforts to promote affordable housing development and advance fair housing have been demonstrated through the implementation of local ordinances. Specifically, the Escalon Municipal Code (EMC) encompasses the following sections to promote the development of affordable housing and further fair housing:
• Reasonable Accommodation for Persons with Disabilities (EMC Chapter 17.53) • Density Bonus Ordinance (EMC Chapter 17.48)
• Affordable Housing Ordinance (EMC Chapter 17.50)
As of April 2026, the City has not received any fair housing lawsuits.
Table 1: Compliance with Fair Housing Laws
Title Statute Description Compliance Efforts
No Net Loss Government
Code Section
65863
The City has identified
sites available to meet
the Regional Housing
Needs Allocation.
Program 1-2 will ensure
that adequate sites with
appropriate zoning
remain available to meet
the City’s RHNA during
the planning period.
The City will need to rezone to
ensure adequate sites and
intends to complete the
rezones concurrent with
Housing Element adoption.
Emergency
Shelters
Government
Code 65583
The City currently allows
emergency shelters byright in the M-1 and M-2
zones, and with a use
permit in the R-3 and CM zones.
Per state law, the City will
amend the zoning code to
allow Emergency Shelters as
a permitted use in the R-3
Zone, and update the City’s
Emergency Shelter Standards
to ensure that they are
objective and do not serve as
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 8 unnecessary constraints as
detailed in Program 2-1.
State Density
Bonus
Government
Code Section
65915
The City does have a
Density Bonus section
within their Zoning Code
but it is not currently up
to date with State Law
The City will need to amend
the Code to be compliant with
State Law. See Program 2-1
(H).
Housing
Accountability
Act
Government
Code Section
65589.5
The City does not
condition the approval of
housing development
projects for very low-,
low-, or moderateincome households, or
emergency shelters
unless specific written
findings are made. The
City does allow
emergency shelters byright within the 2
industrial zones, but
does not allow them byright within a zone that
allows residential uses. A
use permit is currently
required for a homeless
shelter in other zones.
The City has an adopted
GMO that restricts
building permits on an
annual basis, but its use
has been suspended
under the
HAA.Employee Housing:
The City permits
employee housing for six
or fewer employees,
subject to the same
standards and permit
Emergency shelters are
allowed by-right in Industrial
Zoned parcels. Per state law,
the City will amend the Zoning
Code to allow emergency
shelters by-right in the high
density residential zone, as
set forth in Program 2-1 (B) .
Further, the City will continue
suspension of its GMO and
will make certain changes
prior to reinstating it after
2030, as set forth in Program
4-1 (A). With these Programs,
the City will be in compliance
with the HAA.
Farmworker Housing: Through
Program 2-5 and 2-6, the City
will ensure that farmworkers
have access to adequate,
safe, and affordable housing
by continuing to seek funding
through the Joe Serna Jr.
Farmworker Housing Grant
Program, supporting
agricultural employers through
the application and entitlement
processes for employee
housing, providing education
on farmworker housing, and
collaborating with other
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 9 requirements as a
single-family residence.
jurisdictions and organization
in the San Joaquin Valley to
support farmworker housing.
Supportive Housing: Through
Program 2-1, the city will allow
Permanent Supportive
Housing, as defined in
Government Code Section
65650, to be a by-right use in
all zones where multifamily
and mixed-uses are permitted.
Senate Bill 35 Government
Code Section
65913.4
The City has not yet
established a written
policy/procedure, or
other guidance to
streamline the approval
process and adopt
objective standards for
eligible projects.
Program 1-3 will bring the City
into compliance.
Senate Bill 330 Government
Code Section
65589.5
The City relies on
regulations set forth in
state law for processing
preliminary applications
for housing development
projects, conducting no
more than five hearings
for housing projects that
comply with objective
general plan and
development standards,
and making a decision
on a residential project
within 90 days after
certification of an
environmental impact
report or 60 days after
adoption of a mitigated
negative declaration or
The City does not currently
have a formal preliminary
application procedure for SB
330 applications. Program 1-3
will ensure that the City
remains in compliance.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 10 an environmental report
for an affordable housing
project.
California Fair
Employment and
Housing Act and
Federal Fair
Housing Act
Government
Code
Sections
12900 –
12996 Title
VIII of the
Federal Civil
Rights Act
The City provides
protections to residents
via referrals to legal
assistance
organizations, through
the San Joaquin Fair
Housing Association.
The City is in compliance.
AntiDiscrimination in
Zoning and Land
Use
Government
Code Section
65008
The City reviews
affordable development
projects in the same
manner as market-rate
developments, with
additional incentives for
affordable housing
development included in
the Housing Strategy.
The City in in compliance.
Applications for affordable
housing developments are
reviewed appropriately, per
Government Code Section
65008.
Assembly Bill
686
Government
Code Section
8899.50
The City has completed
this Assessment of Fair
Housing and has
proposed programs to
address identified fair
housing issues.
This fair housing analysis
satisfies the statutory
requirement. Program
implementation intends to
continue and clarify the City’s
actions to affirmatively further
fair housing (AFFH).
5.2.2 Fair Housing Services, Outreach, and Enforcement at a Local Level
The City is actively engaged in supporting fair housing law and enforcement through various channels. The City collaborates with San Joaquin Fair Housing, an organization dedicated to promoting fair housing practices. This partnership involves initiatives aimed at ensuring fair and accessible housing for those in need within the community. The City allocates Community Development Block Grant (CDBG) funds to the organization to
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 11 support these endeavors. Additionally, residents seeking information on housing resources can access details via the City's website or acquire a pamphlet or at City Hall.
Escalon benefits from local and regional organizations that provide fair housing services, outreach, and legal aid. Some of these organizations include:
• San Joaquin Fair Housing - Established in 1983, SJFH provides an assortment of fair housing services to the broader San Joaquin County community. Based out of their offices in downtown Stockton, the association offers education, outreach, training, and referral services, as well as tenant-landlord mediation services. SJFH staff also work to facilitate the fair housing complaint submittal and investigation process.
• Pioneering Restoration and Elevating Voices of Advocacy, Idealism, and Leadership - PREVAIL serves the San Joaquin County Community. The organization provides emergency shelter and ongoing supportive services to women, men and their children who are homeless as a result of recent domestic violence and sexual violence. PREVAIL also provides up to 21 months of shelter and supportive services to youth ages 18 to 21, and emancipated youth ages 16- 17, who are at risk or experiencing homelessness to prepare them for independent living. They also provide 30 days of emergency shelter to youth ages 22-25. • Housing Authority of the County of San Joaquin – HACSJ is a governmental organization dedicated to enhancing housing opportunities for residents within San Joaquin County, California. Through various housing programs and initiatives, it strives to provide affordable and accessible housing solutions while promoting community development and improving the quality of life for individuals and families.
• San Joaquin County Department of Aging and Community Services - The Department of Aging and Community Services supports older adults, adults with disabilities, family caregivers, and residents in long-term care facilities. The Department’s services help older adults find employment; support older and disabled individuals to live as independently as possible in the community; promote healthy aging and community involvement; and assist family members in their vital care giving role.
• Escalon Strong - Escalon Strong is a community resilience and support initiative in the City of Escalon that emerged to coordinate local resources, volunteers, and communication during times of need, including during the COVID-19 pandemic.
The program is centered on fostering community connections and ensuring that
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 12 residents, particularly vulnerable populations such as seniors and low-income households, have access to essential services.
5.2.3 Complaints, Findings, Lawsuits, Enforcement Actions, Settlements or Judgements Related to Fair Housing and Civil Rights Complaints alleging housing discrimination can be filed at either the state or federal level.
Federal housing discrimination complaints are filed with the HUD Office of Fair Housing and Equal Employment Opportunity (FHEO). The FHEO administers the Fair Housing Assistance Program (FHAP), which awards and manages the program grants and works with lawmakers to develop and refine fair housing legislation. Formal complaints can be filed either with the central HUD office, or at any of the field offices. FHEO data from January 2013 to November 2022 shows there were no FHEO cases or inquiries in Escalon.
5.2.4 Housing Enforcement and Outreach Capacity: Fair Housing Issues & Contributing Factors
Escalon remains fully committed to upholding all relevant State and Federal fair housing laws. As previously mentioned, the City disseminates information regarding housing resources on its website, however, the City will play a more proactive role in disseminating information and guiding residents, landlords, and other stakeholders towards local fair housing and housing legal assistance organizations. Empowering residents and landlords with the knowledge of fair housing laws not only promotes awareness but also serves to bolster accountability in the community. When individuals are informed about their rights and responsibilities, it paves the way for increased adherence and enforcement of these crucial regulations. Under Program 5-1, the City will continue disseminating handouts on fair housing law and tenants' rights through its informational outreach program.
As part of Program 5-2, the City will distribute information to areas with Covenants, Conditions, and Restrictions (CC&R). CC&Rs are contractual agreements that define the use, development, and maintenance of properties within a specific development. In Escalon, there are seven areas with CC&Rs. CC&Rs can inadvertently perpetuate housing inequalities. To ensure CC&Rs do not violate the fair housing law or impede the development of housing allowed under State law, several legislative measures have been passed, such as Assembly Bill (AB) 721 and AB 1584. AB 721 prohibits CC&Rs from restricting 100 percent Below Market Rate residential projects. By doing so, AB 721 aligns with fair housing practices, ensuring that restrictive covenants allow the development of affordable housing and remove barriers that might otherwise impede the creation of housing options for marginalized or economically disadvantaged populations. AB 1584 operates similarly to AB 721 concerning CC&Rs. It renders unenforceable any CC&R
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 13 contained within property deeds, contracts, or other legal instruments that prohibits or restricts the construction or use of an ADU on a single-family zoned lot.
Under Program 5-2, the City will conduct outreach to educate the residential areas with CC&Rs on State law and ensure compliance with fair housing laws.
Section 5.3 Patterns of Integration and Segregation
Segregation refers to the uneven geographic distribution of different demographic groups across communities, while integration signifies the equal distribution of these groups within geographic areas. This section of the Fair Housing Assessment evaluates the extent of racial and income-based segregation and integration at both the local and regional level. Historical exclusionary zoning practices, which aimed to exclude specific races and land uses from certain communities, have contributed to this segregation.
Although contemporary laws prohibit racially discriminatory zoning, many communities, including Escalon, still exhibit housing patterns influenced by past practices, limiting housing availability. Currently, most of the land in Escalon is zoned for residential, lowdensity use.
5.3.1 Escalon Neighborhood Profiles by Block Group
Site distribution and neighborhood conditions are a foundational comparative relationship in Housing Element analysis of fair housing conditions, providing context for how identified housing sites relate to existing community conditions and demographic patterns. Beyond demonstrating adequate capacity, site distribution helps illustrate whether housing opportunities are geographically balanced throughout Escalon and aligned with access to services, infrastructure, and neighborhood amenities. Evaluating sites in relation to Census block group characteristics allows jurisdictions to understand how planned housing growth intersects with variations in income, housing cost burden, tenure, and other socioeconomic indicators. Further site-specific analysis concludes the Fair Housing Assessment in Section 5.7 (Fair Housing & Housing Sites).
The following table summarizes key Census block group profiles in Escalon,1 offering a standardized framework to compare neighborhood conditions and to inform place-based strategies to support housing opportunity, infrastructure planning, and equitable growth patterns across the community. Quadrants identified are roughly framed by the major arterials McHenry Avenue (north-south thoroughfare) and Highway 120 (west-east), and all include portions of unincorporated San Joaquin County outside City limits. 1 The City also includes small portions of the 060770049063 block group located south of Ullrey Avenue and west of McHenry Avenue. This block group contains no known residential development in City limits.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 14 Table 2: Escalon Neighborhood Profiles by Census Block Group Block Group Parent
Tract Quadrant Resource Area Population Density (people/mi2) 060770049031 Tract 49.03 SW Highest 1,050 2,239
060770049032 NW High 1,882 1,922
060770049041
Tract 49.04
SE High 1,385 1,552
060770049042 NE Moderate 1,242 4,872
060770049043 NE Moderate 1,034 1,341
060770049044 SE High 951 2,347
060770049051 Tract 49.05 S (part) Moderate 867 71
5.3.2 Land Use & Zoning
The housing stock in Escalon is distributed across various categories: single-family homes (92.9%), multifamily homes consisting of 2 or more units (6.4%), and other housing variations (0.7%). Escalon has a higher percentage of owner-occupied residences at 71.5% compared to both San Joaquin County's 59.1% and Stanislaus County’s 59.5%, while Escalon's renter-occupied rate of 28.5% contrasts with San Joaquin County's 40.9% and Stanislaus County’s of 40.5%.2 2 Data sourced from the U.S. Census Bureau, American Community Survey (ACS) 5-Year Estimates, 2021 (DP04).
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 15 Figure 1: City of Escalon Map
5.3.3 Race & Ethnicity
To discern patterns of integration and segregation, it's imperative to analyze data related to race and ethnicity, particularly within the context of the significant demographic shifts.
Between 2010 and 2021, data from the U.S. Census Bureau's American Community Survey 5-Year Estimates reveals notable demographic shifts in Escalon, San Joaquin County, and California. While the Hispanic or Latino and Asian alone populations in Escalon decreased, they increased significantly at the county and state levels. In contrast, the White alone population declined across all three areas. The Black or African American alone population saw mixed changes, with a decrease in Escalon but an increase in the county. Native American alone populations consistently decreased while the Native
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 16 Hawaiian or Other Pacific Islander alone population has increased. There were substantial increases in the Some other race alone and Two or More Races populations across the board. These findings illuminate the changes in demographic groups within these regions.
Table 3: Population by Race, Escalon and the Region, 2010-2021 Race or Ethnicity
Escalon San Joaquin County California
2010 2021 2010 2021 2010 2021
Hispanic or Latino 1,792 1,429 253,771 326,185 13,456,157 15,593,787 White alone 6,241 5,699 398,739 358,383 15,107,042 14,109,297 Black or African American
alone 61 38 49,261 53,843 2,163,955 2,128,184
Native American alone 148 24 7,083 6,006 153,430 124,341 Asian alone 117 107 96,579 127,533 4,683,828 5,802,086
Native Hawaiian or Other
Pacific Islander alone 0 30 3,311 4,717 131,505 134,692 Some other race alone 218 558 80,892 91,957 109,184 149,096 Two or More Races 269 1,002 37,748 52,460 832,189 1,413,870 Source: U.S. Census Bureau, American Community Survey 5-Year Estimates, B02001 & B3003
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 17 Figure 2: Racial Demographics of Escalon, San Joaquin County & California, 2010-21 Source: U.S Census Bureau, American Community 5-Year Estimates, 2010 and 2021 The primary demographic group in census tracts within Escalon consists of individuals identifying as White alone, not Hispanic or Latino. The primary demographic group in census tracts within the surrounding jurisdictions predominantly consists of individuals identifying as Hispanic or Latino or White alone, not Hispanic or Latino.
Figure 3: Predominant Population, Census Tracts
0.00 100.00
Escalon (2010)
San Joaquin County (2010)
California (2010)
Escalon (2021)
San Joaquin County (2021)
California (2021)
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 18 Illustrated in Figure 4, within Escalon City limits there exist two block groups characterized by a concentration ranging from 20 to 40 percent of the total non-white population.
Figure 4: Racial Demographics of Escalon by Block Group, 2020
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 19 Figure 5: Racial Demographics of Escalon by Block Group, 2020
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 20 Racial/ethnic segregation in San Joaquin County decreased slightly between 1990 and 2000 but then increased between 2000 and 2020. Asian/Pacific Islander residents are the most segregated in San Joaquin County compared to other racial and ethnic groups, followed by Black/African American residents (Table 3). These groups experience a moderate level of segregation, with dissimilarity index scores between 40 and 54.
Hispanic/Latino residents are the least segregated in the county, with a dissimilarity score below 40, indicating a low level of segregation on a regional level.
Table 4: Racial Dissimilarity Trends for San Joaquin County 1990 2000 2010 2020
Non-White/White 25.07 22.61 25.46 28.11
Asian or Pacific Islander/White 32.79 31.74 42.75 46.26 Black/White 50.74 41.86 36.87 43.13
Hispanic or Latino/White 24.26 24.41 24.27 27.39
Source: Affirmatively Furthering Fair Housing Mapping Tool
5.3.4 Persons with Disabilities
The Americans with Disabilities Act (ADA) defines a person with a disability as someone who “has a physical or mental impairment that substantially limits one or more major life activities, has a history or record of such an impairment (such as cancer that is in remission), or is perceived by others as having such an impairment (such as a person who has scars from a severe burn).” A person with a disability is at greater risk for housing insecurity, homelessness, and institutionalization, particularly when they lose aging caregivers. According to 2021 American Community Survey data, 7.8 percent of Escalon residents have a disability of some kind. The two most prevalent disabilities in Escalon are individuals with cognitive difficulty and independent living difficulty, which affect 4.7 percent and 4.0 percent of Escalon residents, respectively.
Table 5: Population by Type of Disability in Escalon
Disability Percentage
With an independent living difficulty 4.0%
With an ambulatory difficulty 2.7%
With a cognitive difficulty 4.7%
With a vision difficulty 1.0%
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 21 With a self-care difficulty 1.0%
With a hearing difficulty 2.6%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates, 2021 Within this population, there are significant differences in disability status by race and ethnicity. Black residents are more likely to have disabilities than any other group. There is a significant concentration of Black residents with a disability in the City, with 57.9 percent of Black residents having a disability (Table 5). According to the 2021 American Community Survey, of the 22 Black residents with a disability, 100% are over the age of
65. Table 6: Disability Status by Race and Ethnicity in Escalon Race or Ethnicity Total
Population
# with a
disability
% with a
disability
Total non-institutionalized population 7,458 578 7.8%
White alone 5,699 528 9.3%
Black or African American alone 38 22 57.9%
American Indian and Alaska Native alone 24 0 0.0%
Asian alone 107 6 5.6%
Native Hawaiian and other Pacific Islander
alone 30 0 0.0%
Some other race / two or more races 558 2 0.4%
Hispanic or Latino (of any race) 1,429 38 2.7%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates, 2021 The share of the population with a disability in Escalon is lower than the surrounding area. Within Escalon, the percentage of the population with a disability is slightly higher (10%) on the east side of the City (east of McHenry) than on the west side (7.5%). Local staff have indicated that the City’s larger senior care facility and the two senior mobilehome parks are also located on the east side of McHenry, which explains the difference in percentages. Although there is not a significant concentration of residents with a disability within the City, there are differences in disability status by race and ethnicity, as noted above.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 22 Figure 6: Population with a Disability in the Area
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 23
5.3.5 Familial Status
Data from the 2021 American Community Survey indicates that Escalon has a lower share of children in female-headed households and lower share of single adult householders than the surrounding area (Figure 7, Figure 8). Within Escalon, HCD’s TCAC Mapping indicates that children living in married couple households make up
80.4% - 90.9% of all households with children across all census tracts in Escalon.
Similarly, the rate of children living in female-headed households is 9.7% or less across all census tracts in Escalon, without concentration.
Figure 7: Percent of Children in Single Female-Headed Households
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 24 Figure 8: Percent of Single Adult Householders
5.3.6 Income
The primary determinant of a household's capacity to manage housing expenses alongside essential life requirements is its household income. Lower-income households encounter constraints in achieving this balance and frequently encounter added challenges when searching for dignified housing. While economic factors that influence housing choices might not be explicitly classified as fair housing concerns, the interplay between household income, household composition, race/ethnicity, and other factors frequently sheds light on biases that raise fair housing concerns.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 25 Table 7: Households by Household Income Level, 2019
<30% AMI 30-50% AMI 50-80% AMI 80-100% AMI >100% AMI
Escalon 310 220 465 170 1,495
San Joaquin
County 29,460 28,185 39,585 23,210 108,130
Stanislaus
County 20,435 22,095 31,030 17,665 82,670
Source: HUD, CHAS 5-YEAR Estimates, 2019
Figure 9: Households by Income Group, Escalon and the Region, 2019 0 10
20 30
40 50
60 70
80 90
100
Escalon San Joaquin County Stanislaus County
ELI VLI LI MI AMI
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 26 According to the American Community Survey 5-Year Estimates (2017-2021), the median household income is lower in Escalon than in the surrounding counties. The median household income is $67,176 in Escalon, $74,962 in San Joaquin County, and $68,368 in Stanislaus County.
Figure 10: Median Income by Census Tract, Escalon
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 27 Within the block groups in Escalon, a significant proportion (25% to 50%) of the residents have incomes that are considered low to moderate income (Figure 11).
Figure 11: Low to Moderate Income Population by Block Group, Escalon
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 28 As depicted in Figure 12, there is one subsidized housing development in Escalon.
Located in the north of Escalon, the Escalon Heritage House is a 42-unit subsidized housing community for seniors over the age of 62 and the mobility/sensory impaired, operated by Retirement Housing Foundation (RHF).
Figure 12: Map of Existing Affordable Housing Projects
5.3.7 Poverty
Poverty thresholds, as defined by the Census Bureau, vary by household type but remain constant throughout the country and do not correspond to Area Median Income.
Approximately 10.7% of Escalon residents were determined to be living below the poverty level, less than the 12.3% of San Joaquin County residents, 14.1% of Stanislaus County residents, and 12.3% of Californians in poverty.3
3 U.S. Census Bureau
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 29 Figure 13: Population by Poverty Status in Escalon
5.3.8 Racially & Ethnically Concentrated Areas of Poverty & Affluence HUD defines census tracts with a majority non-white population (greater than 50 percent) that have either a poverty rate that exceeds 40 percent or is three times the average tract poverty rate for the metro/micro area, whichever threshold is lower, as Racially/Ethnically Concentrated Areas of Poverty (R/ECAPs). There are no R/ECAPs or areas of High Segregation & Poverty in the City of Escalon.
The City of Escalon does not fall within a Racially Concentrated Area of Affluence (RCAA).
RCAA refers to a geographic region where a high proportion of affluent individuals of a particular racial or ethnic group predominantly reside. In comparison, Figure 14 below depicts RCAA designated areas to the east in Oakdale, and to the west near Ripon.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 30 Figure 14: Racially Concentrated Areas of Affluence, 2019
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 31 Figure 15 identifies areas in California that are both high-poverty and racially segregated.
As depicted below, there are no areas in Escalon that have been identified as high segregation and poverty. There are areas of high segregation and poverty, however, in the nearby larger jurisdictions of Stockton and Modesto.
Figure 15: TCAC/HCD Opportunity Map: High Segregation and Poverty
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 32 Section 5.4 Disparities in Access to Opportunity
5.4.1 Resource Areas
The California Tax Credit Allocation Committee (TCAC) Opportunity Area Composite Score evaluates the level of resources associated with education, poverty, proximity to employment and economic prospects, pollution levels, and other relevant factors across geographic areas. The final scores are divided into four primary categories: Highest Resource, High Resource, Moderate Resource, and Low Resource. Escalon is comprised of Moderate, High, and Highest Resource Areas (Figure 16).
Figure 16: TCAC Opportunity Map Composite Score, City of Escalon, 2024 As depicted in Figure 17, many of the jurisdictions of similar geographic size and population size surrounding Escalon contain areas categorized as Moderate, High Resource, and Highest Resource. A High Resource area contains a high diversity of economic, educational and health and safety resources and amenities that can be associated with high opportunity areas. In contrast to Escalon, the surrounding jurisdictions of Stockton and Modesto contain a mix of TCAC Opportunity Area Composite Scores.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 33 Figure 17: TCAC Opportunity Map Composite Score, Escalon and Surrounding Area, 2024
5.4.2 Education
The TCAC Opportunity Map Education Score provides an index that measures the level of educational outcomes by census tract or rural block groups. The block groups located within Escalon score between 69 to 92. It is important to note that the block groups that score the highest and lowest (Block Group 060770049022 and 060770049023) capture data from the unincorporated county. Overall, the TCAC Opportunity Areas Education Scores in Escalon indicate a more positive educational outcome.
Another indicator of educational outcomes is school district performance. The California School Dashboard is an online tool developed by the California Department of Education to provide a comprehensive and multi-dimensional view of school and district performance. It offers a range of data and information to help parents, educators, and the public evaluate and understand how schools and districts are performing in various areas.
According to the California School Dashboard, the Escalon Unified School District (EUSD) serves 2,585 students, of which 49.1% are socioeconomically disadvantaged and
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 34
17.6% are English Learners. EUSD’s student population is predominantly comprised of Hispanic students (51.2%), followed by White students (44.0%).
Table 8: Student Demographics in the Escalon Unified School District, 2022 Student Group Total Percentage
English Learners 455 17.6%
Foster Youth 2 0.1%
Homeless 9 0.3%
Socioeconomically
Disadvantaged 1,269 49.1%
Students with Disabilities 229 8.9%
Race/Ethnicity Total Percentage
African American 16 0.6%
American Indian 8 0.3%
Asian 27 1.0%
Filipino 11 0.4%
Hispanic 1,323 51.2%
Pacific Islander 3 0.1%
Two or More Races 48 1.9%
White 1,138 44.0%
Total Enrollment 2,585 100%
Source: California School Dashboard, Escalon Unified School District, 2022 The data provided in Table 8 delves into the English Language Arts/Literacy and Mathematics achievement levels within EUSD, comparing them against both the San Joaquin County and State of California averages. EUSD outperforms the County average in the higher achievement categories of "Standard Exceeded" and "Standard Met" in both subjects. In the EUSD, County, and State, over two-thirds of students scored within the "Standard Nearly Met" and "Standard Not Met" categories in Mathematics.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 35 Table 9: English & Math Proficiency, Escalon Unified School District, 2021-2022 Achievement Level
English Language Arts/Literacy Mathematics Achievement
EUSD County State EUSD County State
Standard Exceeded: Level 4 13.41% 14.24% 13.41% 10.10% 10.32% 16.06% Standard Met: Level 3 28.55% 24.70% 28.55% 18.56% 14.96% 17.32% Standard Nearly Met: Level 2 22.62% 24.80% 26.20% 28.82% 25.56% 24.66% Standard Not Met: Level 1 30.33% 36.26% 31.84% 42.52% 49.16% 41.96% Source: California Assessment of Student Performance and Progress
5.4.3 Access to Healthy Environment
The California Office for Environmental Health Hazard Assessment (COEHHA) released the latest version of CalEnviroScreen in October 2021. Cal EnviroScreen 4.0 is a tool used to identify communities that are disproportionately affected by multiple sources of pollution and environmental hazards. The tool combines various environmental, health, and socioeconomic data to create a screening methodology that helps prioritize resources and actions to address environmental justice concerns. A community within the 75th percentile or above is one with higher levels of pollution and/or has other negative environmental traits and is considered a “disadvantaged community.” As depicted in Figure 18, Escalon does not contain a census tract within the 75th percentile or above.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 36 Figure 18: CalEnviroScreen 4.0 by Census Tract, San Joaquin Valley Area, 2021 The California Healthy Places Index (HPI) is a tool that measures and assesses the health and well-being of communities across California. The HPI takes into account a wide range of factors such as access to healthcare services, education, housing, economic opportunities, air and water quality, transportation options, and more. By analyzing these factors and assigning scores to different regions, the HPI aims to identify areas with higher levels of health disparities and inform the public about where investments and interventions are needed to improve overall well-being.
Escalon is within the 69.9 percentile, meaning that Escalon has healthier community conditions than 69.9 percent of other California Tracts (Figure 19). According to the HPI, Escalon has higher scores in indicators assessing social (84.3), education (72.9), healthcare access (66.1) conditions, and lower scores in indicators assessing transportation (39.5) and clean environment (33.8) conditions. Additionally, Escalon has healthier housing conditions than 47 percent of other California Tracts. However, the City has a significantly lower score in the indicator measuring housing habitability than the
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 37 San Joaquin County (37.5) and Stanislaus County (75.0) averages, with Escalon falling within the 16.9 percentile.
4 Figure 19: Healthy Places Index, 2021
4 The California Healthy Places Index defines “housing habitability” indicator as the percent of households with basic kitchen facilities and plumbing.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 38
5.4.4 Transportation
The City of Escalon operates an efficient and accessible transit system known as eTrans, catering to both residents and visitors. To aid riders in navigating the system, the City provides a comprehensive ridership guide on its website, available in both English and Spanish.
The eTrans transit system provides easy access to information and services through the aforementioned ridership guide, as well as the Vamos Mobility and Umo apps, offering route planning and real-time information for travelers. Notably, the eTrans system has partnered with the Uber Subsidy Program, which subsidizes up to $10.00 per ride with a $2.00 upfront fare, allowing riders to conveniently travel from Escalon to Riverbank, Oakdale, or Modesto throughout the week.
For those in need of reasonable accommodations/modifications, eTrans has made all reasonable modifications to policies and programs to accommodate individuals with disabilities, ensuring that everyone can access their services with ease. The eTrans system operates with the goal of providing equal opportunity and accessibility for all residents. All requests for reasonable modifications (e.g., deviated fixed route, paratransit, or facilities) can be submitted via email, telephone, or by mail.
As part of the City's commitment to sustainability, eTrans offers free bus services to encourage residents to use public transportation, contributing to a greener environment and reducing traffic congestion.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 39 Figure 20: eTrans Transit Service Area Map, 2023
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 40
5.4.5 Economic Development & Job Access
A score of less than 0.2, depicted in red below, is considered to be a less positive economic outcome, whereas a score of greater than 0.8, depicted in dark green below, is viewed as a more positive economic outcome. As shown in Figure 21, all census tracts within the City have an economic domain score above 0.6, which indicates a more positive economic outcome.
Figure 21: TCAC Opportunity Map Economic Scores by Census Tract, 2023 A lack of access to banking services is a factor that can further racial and socio-economic inequities. Federal data notes that bank access within Escalon is limited, with no brickand-mortar branches reported (Table 9). However, PNC Bank (formerly BBVA Compass) recently opened on the southern edge of the City and may not yet be reflected in aggregated data. Local knowledge indicates that BMO Harris Bank (formerly Bank of the West) and the local Oak Valley Community Bank also operate branches within the City.
There are additional FDIC-regulated banking options in both San Joaquin and Stanislaus County, including Chase Bank and Wells Fargo in nearby Oakdale.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 41 Table 10: FDIC-Regulated Bank Branches, San Joaquin County, 2022 Municipality Population Population of
Color
FDIC-Regulated
Full-Service Brick and Mortar
Branches
Escalon 7,458 23.6% 0
Lathrop 28,078 61.5% 0
Lodi 67,020 53.6% 4
Manteca 85,799 57.5% 2
Ripon 15,961 20.5% 0
Stockton 322,107 80.7% 12
Tracy 95,384 68.2% 2
San Joaquin County
Total* 789,410 68.7% 22
Ceres 49,132 46.0% 1
Hughson 7,425 27.5% 0
Modesto 218,782 54.2% 4
Newman 12,154 28.8% 0
Oakdale 28,019 64.0% 1
Patterson 23,517 42.2% 0
Riverbank 24,714 38.8% 0
Turlock 72,673 57.7% 2
Stanislaus County Total* 552,999 58.3% 8
*County totals include unincorporated communities.
Source: Federal Deposit Insurance Corporation (FDIC), BankFind Suite: API for Data Miners & Developers; U.S. Census Bureau, American Community Survey 5-Year Estimates
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 42
5.4.6 Housing the Workforce
To effectively plan to meet future housing needs of the workforce, it is necessary to analyze employment and population trends. According to the San Joaquin County Demographic and Employment Forecast, Escalon is projected to experience steady population and job growth from 2015 to 2050, with the fastest growth rate occurring between 2020 and 2025 (Table 10).
Table 11: Projected Change in Jobs and Population in Escalon, 2015-2050 Year Population % Change Jobs % Change
2015 7,470 - 2,321 -
2020 7,740 3.61% 2,335 0.60%
2025 8,158 5.39% 2,597 11.23%
2030 8,452 3.60% 2,616 0.73%
2035 8,599 1.74% 2,650 1.30%
2040 8,718 1.39% 2,731 3.06%
2045 8,831 1.29% 2,829 3.59%
2050 8,927 1.09% 2,936 3.78%
Total +1,457 +18.51% +615 +24.29%
Source: Hyperlink - https://www.sjcog.org/DocumentCenter/View/7085/Q-PopulationHousehold-and-Employment-Projections Figure 22 highlights the commuting patterns of employed individuals within Escalon and the surrounding areas. As exemplified below, Escalon has a high number of workers commuting into and out of the City, with a large proportion of residents traveling outside of the City for employment. This trend is accompanied by a low proportion of residents who are employed within the City itself.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 43 Figure 22: Inflow and Outflow of Workers in Escalon
Source: U.S. Census Bureau, OnTheMap, 20195
Section 5.5 Disproportionate Housing Needs & Displacement The below discussion of disproportionate housing needs and risk of displacement was informed by census data as well as by local knowledge and data. A summary of this information is provided at the end of this Section in Table 17, Summary of Local Data and Knowledge.
5.5.1 Cost Burden & Severe Cost Burden
Housing cost burden refers to the proportion of an individual or household's gross income dedicated to housing expenses. It is measured with a threshold of 30 percent for “cost burden” and 50 percent for “severe cost burden,” highlighting the impact of housing costs on financial . Some of the implications of high-cost burden include housing-induced poverty, where overspending on housing leaves households little financial resources for 5 The arrows depicted in Figure 22 do not indicate the direction in which workers travel and are meant to convey the general inflow and outflow of the workforce.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 44 other expenditures, and reduced savings which can impact asset accumulation.
According to the American Community Survey 5-Year Estimate (2017-2021), the median gross rent in Escalon was $1,632. To rent a typical unit in Escalon without cost burden, a household would need to have an income of at least $65,280.
Figure 23: Overpayment by Renters, 2019
Home prices in California have skyrocketed in the last decade; however, most homeowners have mortgages with fixed rates and are therefore less likely to be impacted by market increases. In contrast, renters are subject to rent increases based on market rates and tend to experience more cost-burden. This is the case in Escalon where in the northern portion of the City 40-60% of renters are either cost-burdened or severely costburdened and less than 40% of homeowners are cost-burdened or severely costburdened. Inversely, 40-60% of homeowners in the south of the City are cost-burdened or severely cost-burdened and less than 40% of renters are cost-burdened or severely cost-burdened.
Escalon 2023-2031 Housing Element Fair Housing Assessment – Section 5 p. 45 Figure 24: Overpayment by Homeowners, 2019
The median gross rent in Escalon is 17.67 and 24.13 percent higher than both San Joaquin and Stanislaus County, respectively (Table 11). This difference in median gross rents highlights the higher rent in Escalon compared to the surrounding areas and reflects the growing demand for affordable housing.
Table 12: Median Gross Rent, 2017-2021
Escalon San Joaquin
County Stanislaus County
Median Gross Rent $1,632 $1,387 $1,315
Source: U.S. Census American Community Survey 5-Year Estimates