Oakdale City Council
June 15, 2026

2 HOUSING STRATEGY.................................................. 17

2.0 BACKGROUND...............................................................................................................17

2.1 HOUSING GOALS AND POLICIES .................................................................................18 Goal 1: Preserve & Improve Oakdale’s Housing & Neighborhoods ............................18 Goal 2: Provide Adequate Sites for Housing..................................................................18 Goal 3: Remove Constraints to Housing.........................................................................18 Goal 4: Promote Equal Housing Opportunity.................................................................18 Goal 5: Facilitate Housing for All Income Levels............................................................19 Goal 6: Promote Energy Efficiency and Sustainable Infrastructure .............................19

2.2 HOUSING PROGRAMS...................................................................................................20 Program 1-1: Zoning for a Variety of Housing Types......................................................20 Program 1-2: Maintain Housing Capacity......................................................................21 Program 1-3: Housing Rehabilitation ..............................................................................22 Program 1-4: Home Ownership.......................................................................................23 Program 1-5: Conservation of Affordable Units & Mobile Homes................................23 Program 1-6: Missing Middle Housing .............................................................................24 Program 2-1: Maintain Viable Sites.................................................................................25 Program 2-2: Large Site Development ...........................................................................27 Program 2-3: Lot Consolidation.......................................................................................28 Program 2-4: Accessory Dwelling Units...........................................................................29 Program 2-5: Funding and Incentives for Affordable and Special Needs Housing....30 Program 3-1: Removal of Constraints.............................................................................31 Program 3-2: Transparent Development Application Information and Standards ....32 Program 3-3: Water and Sewer Service Priority .............................................................33 Program 3-4: Parking Reductions for Eligible Projects ...................................................34 Program 3-5: Fair Code Enforcement Activities.............................................................34 Program 3-6: Neighborhood Improvements..................................................................35 Program 4-1: Housing Outreach and Stakeholder Engagement.................................36 Program 4-2: Equal Housing Opportunity.......................................................................37 Program 4-3: Removal of Impediments to Fair Housing................................................38 Program 4-4: Anti-Displacement Actions .......................................................................39 Program 4-5: Housing Choice Vouchers ........................................................................40 Program 4-6: Reasonable Accommodation .................................................................41 Program 5-1: Farmworker Housing..................................................................................42 Program 5-2: Extremely Low-Income Housing................................................................43 Program 6-1: Water Conservation and Efficiency.........................................................44 Program 6-2: Place-Based Strategies .............................................................................45

2.3 QUANTIFIED OBJECTIVES ............................................................................................47 328
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3 HOUSING SITES........................................................... 48

3.1 CONTEXT........................................................................................................................48

3.2 DEVELOPMENT CAPACITY ASSUMPTIONS ................................................................49

3.2.1 Accessory Dwelling Units.................................................................................49

3.2.2 Planned, Approved & Pending Projects........................................................50

3.2.3 Units Credited Toward RHNA..........................................................................52

3.3 REALISTIC CAPACITY OF SITES ZONED FOR HOUSING............................................53

3.3.1 Vacant Sites.....................................................................................................53

3.3.2 Non-Vacant Sites.............................................................................................56

3.3.3 Religious Institution Sites ..................................................................................69

3.3.4 Sites Suitability Analysis....................................................................................71

3.3.5 Realistic Capacity Analysis .............................................................................73

3.4 PROGRAMS TO ENSURE ADEQUATE SITES ...............................................................77

3.4.1 Summary of Programs to Ensure Adequate Sites..........................................77

3.5 FAIR HOUSING CONSIDERATIONS...............................................................................78

3.5.1 Relationship of Sites to Fair Housing Analysis.................................................78

3.5.2 Improved and Exacerbated Conditions .......................................................79

3.6 INFRASTRUCTURE CONSIDERATIONS........................................................................80

3.6.1 Water................................................................................................................80

3.6.2 Sewer / Wastewater Collection and Treatment ...........................................81

3.6.3 Storm Drainage................................................................................................81

3.6.4 Other Utilities ....................................................................................................81

3.7 ENVIRONMENTAL CONSIDERATIONS .........................................................................82

3.7.1 Fire.....................................................................................................................83

3.7.2 Earthquake.......................................................................................................84

3.7.3 Flood.................................................................................................................85

3.7.4 Landslides.........................................................................................................87

3.8 CONCLUSION .................................................................................................................88 329
City of Oakdale 2023-2031 Housing Element

1 INTRODUCTION & SUMMARY

1.4 INTRODUCTION
This section within the Oakdale General Plan, the Housing Element, is dedicated to presenting the goals, policies, actions, and needs pertaining to the provision of housing for the current and future residents of the City of Oakdale. The Housing Element serves a dual function: first, it outlines specific policies and actionable measures designed to meet Oakdale's unique and clearly identified housing needs; and second, it aims to align with regional standards and attain State certification, as required by State law.

1.5 DEFINITION AND PURPOSE
A housing element is a crucial component of a local jurisdiction’s General Plan. A housing element must identify and assess existing and projected housing needs, existing policies and programs, and constraints to housing development. It must also establish goals, policies, quantified objectives, financial resources, and scheduled programs to meet housing needs.

State law requires that Housing Elements be revised periodically. This document updates the 2015-2023 Oakdale Housing Element and covers the period from December 31, 2023, to December 31, 2031. The purpose of a housing element is to adequately address local housing needs in a way that does not constrain development, by facilitating the development of diverse housing options and promoting fair housing practices.

1.6 CONSISTENCY WITH STATE LAWS AND GENERAL PLAN
Under California law, local jurisdictions are required to update their housing elements on a set schedule to align with changing demographics, economic conditions, and regional housing goals. The components of a housing element are set by the California Housing Element law (Government Code § 65580 - 65589.11). State law requires the various sections, or elements, of a General Plan to be consistent with one another. Upon adoption, this Housing Element becomes a part of the Oakdale 2030 General Plan and is found to be consistent with the rest of the General Plan. As the General Plan is amended in the future, the City will ensure the Housing Element remains consistent.

New State law requires that the Safety Element be updated to address climate adaptation upon revision of the Housing Element. The City will ensure compliance with this requirement.

The City is the local water and sewer provider, and will therefore apply priority service to proposed affordable housing developments for lower income households. 330
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1.7 PUBLIC PARTICIPATION
Effective housing policy must reflect the values and priorities of the community. The public participation requirement of Housing Element law presents an opportunity to engage residents in defining housing issues, and in creating solutions that both meet the needs of the community and the requirements of State law. Public participation is the cornerstone of the process.

For the development of the 2023-2031 Oakdale Housing Element, methods of obtaining public participation and input included, but were not limited to the following:
 Housing Needs and Opportunities Community Opinion Survey (English and Spanish)
 Informational flyer and survey mailed to all utility customers  Updates provided via email to the Oakdale Housing Element Update interest list  Planning Commission Housing Element Kickoff Workshop of August 7, 2024  Planning Commission Public Review Draft Workshop of December 4, 2024  Stakeholder survey sent to housing development professionals to assess housing constraints
 Stakeholder survey sent to local and regional service providers to assess constraints and fair housing contributing factors
 Housing Element updates posted on the City of Oakdale website  Planning Commission Adoption Hearing in early-mid 2025  City Council Adoption Hearing in early-mid 2025

1.8 ORGANIZATION OF THE HOUSING ELEMENT
The Oakdale Housing Element is comprised of the following five major components:
 Section 1 introduces the overall Housing Element update effort, a summary of housing needs and constraints, a Fair Housing summary, and a review of the effectiveness of the 2015 Housing Element including the City’s progress in its implementation.
 Section 2 sets forth the City’s Housing Strategy, which is comprised of the Goals, Polices, and Programs that it intends to implement over the next 8-year planning cycle. The City’s Quantified Objectives are also included in Section 2.  Section 3 presents a detailed Housing Sites Inventory, including a discussion of the availability of services, and compares this Inventory to the City’s projected housing needs.
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 Section 4, the Technical Background Report, provides statutorily required data including an assessment of housing needs and programs, an analysis of nongovernmental and governmental constraints to the provision of housing, and a discussion of special needs populations.
 Section 5, the Fair Housing Assessment, identifies factors that contribute to local fair housing issues and barriers and includes meaningful actions within the Housing Element Policies and Programs to address those factors.  Appendices provide background context on sites, community engagement, and program implementation.

1.9 DEFINITION OF TERMS
Throughout the Housing Element, a variety of technical terms related to income levels are used in describing and quantifying conditions and objectives. The definitions of these terms follow:
 Above Moderate-Income Households: Households earning over 120% of the County’s Area Median Income (AMI), adjusted for household size.  Affordable Housing: Housing that costs no more than 30 percent of a moderate-, low-, very low-, or extremely low-income household’s gross monthly income. For affordable rental units, monthly rent is capped at 30 percent of the relevant Area Median Income (AMI), divided by 12, with any tenant-paid utilities deducted. For homeownership units, the maximum sales price is calculated assuming no more than 30 percent of the relevant AMI household’s monthly income will be spent on the monthly housing payment, which includes mortgage payments, taxes, insurance, and homeowners' dues.
 Area Median Income (AMI): The income figure representing the middle point of the County household income. Fifty percent of households earn more than or equal to this figure and 50% earn less than or equal to this figure. The AMI varies according to the size of the household. For the year 2023, the AMI for a four-person household in Stanislaus County was $92,600.
 Cost Burden: The condition of a household spending more than 30% of their income on rent, mortgage, utilities, and other housing needs.  Extremely Low-Income Households (ELI): Households earning not more than 30% of the County AMI, adjusted for household size.
 Federal Poverty Threshold: Issued by the Census Bureau and varies by family size, number of children, elderly. There is no geographic variation. For 2023, the poverty threshold for a family of four was $30,900, and for a family of two, it was $19,680. (Note: this differs from the Federal Poverty Guidelines issued by Health & Human Services).
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 Low-Barrier Navigation Center: a "Housing First," low barrier, temporary, serviceenriched shelter that helps homeless individuals and families to quickly obtain permanent housing.
 Low-Income Households: Households earning between 50-80% of the County AMI, adjusted for household size.
 Missing Middle Housing: A range of house-scale buildings with multiple units compatible in scale and form with detached single-family homes.  Moderate-Income Households: Households earning 80 to 120 percent of the County AMI, adjusted for household size.
 StanCOG: Stanislaus Council of Governments (StanCOG) is a joint powers authority comprised of the County of Stanislaus and the cities of Ceres, Hughson, Modesto, Newman, Oakdale, Patterson, Riverbank, Turlock, and Waterford. StanCOG fosters intergovernmental coordination within Stanislaus County, neighboring jurisdictions, other regional agencies, the state of California, and Federal agencies. It is governed by a decision-making body called the Policy Board comprised of sixteen elected officials from member agencies, a designated Public Transportation Provider representative, and a representative from Caltrans.

StanCOG serves as the federally designated Metropolitan Planning Organization (MPO), Regional Transportation Planning Agency (RTPA), and the Local Transportation Authority (LTA) for Stanislaus County.
 Special Needs Populations: Special needs population groups include seniors, extremely low-income, female-headed households, persons with disabilities, farmworkers, and individuals experiencing homelessness. Special needs groups may have additional housing needs that require specific program responses to increase access to and availability of suitable housing options.  Very Low-Income Households (VLI): Households earning between 30-50% of the County AMI, adjusted for household size.

1.10 DATA SOURCES
In preparing the Housing Element, various sources of information were utilized. The 2020 Census provided the basis for population characteristics. The Bureau of the Census also provides updated survey data through the American Community Survey (ACS) process, which is used to supplement Census data whenever possible. The following sources of data were used to help identify historic patterns of segregation, assess constraints to housing and the market conditions in Oakdale, and to better identify specific housing needs:
 California Department of Education, California Assessment of Student Performance and Progress
 California Department of Education, California School Dashboard 333
City of Oakdale 2023-2031 Housing Element

 California Office for Environmental Health Hazard Assessment, CalEnviroScreen

4.0  California Tax Credit Allocation Committee (TCAC) Opportunity Area Map 2024  City of Oakdale Housing Element Annual Progress Reports 2015-2023  City of Escalon Geographic Information System (GIS) mapping layers  Freddie Mac Primary Mortgage Market Survey, 2013-2023  Healthy Places Index
 San Joaquin Council of Governments, San Joaquin County Demographic and Employment Forecast, 2020
 Stanislaus Continuum of Care Point in Time Count Local Report  Stanislaus Council of Governments Regional Housing Needs Allocation Plan  State of California Department of Finance, E-1 City/County Population Estimates with Annual Percent Change, 2022-2023
 UC Berkeley Othering & Belonging Institute, Mapping Race in America  UC Berkeley Urban Displacement Project Map, 2022
 University of Southern California, The Great California Shakeout  U.S. Bureau of Labor Statistics, Quarterly Census of Employment and Wages (QCEW), Stockton-Lodi MPO, 2022 Q1 employment
 U.S. Census 2000, 2010, and 2020; and 2021-2022 American Community Survey 5- Year Estimates
 U.S. Department of Agriculture, National Agricultural Statistics Service, Census of Agriculture, 2017
 U.S. Department of Housing and Urban Development, CHAS 5-Year Estimates  Zillow.com, Land Cost and Median Rent data

1.11 COMMUNITY PROFILE
Present-day Oakdale is located is within the original lands of the Miwok and Yokuts indigenous peoples.

In the mid-1800s, Western expansion brought settlers to the area. Among them, George and Mary Ann Oakley moved to the region, attracted by the fertile land along the Stanislaus River. They established a large ranching and agricultural operation, and named the area “Oakdale,” inspired by the abundance of oak trees that dotted the landscape. Steady growth after the establishment of the Oakley’s successful ranching operation led Oakdale officially incorporating as a city in 1906. Despite continued growth 334
City of Oakdale 2023-2031 Housing Element

and development, Oakdale’s economy continued to be driven by the cattle and dairy industries along with the establishment of the annual Oakdale Rodeo, earned it the nickname, “Cowboy Capital of the World.”
The City of Oakdale is located in California’s Central Valley within Stanislaus County, approximately 15 miles Northeast of Modesto and 75 miles South of Sacramento. Set along the Stanislaus River, the City is an agriculturally productive area of the San Joaquin Valley and offers recreational opportunities at designated parks and recreational areas.

F Street and Yosemite Avenue serve as integral routes for both City and regional traffic. F Street connects Oakdale to nearby Riverbank to the West and transitions into Highway 120 to the East, connecting Oakdale to the Sierra Nevada. Yosemite Avenue connects Oakdale to Escalon and continues South connecting Oakdale to Waterford. Oakdale is also internally serviced by various local collectors and neighborhood streets.

Figure 1
City of Oakdale Location within Stanislaus County & California

1.12 CHANGING HOUSING NEEDS AND DEMOGRAPHICS

1.12.1 POPULATION CHARACTERISTICS AND TRENDS
Oakdale’s population increased 47.7% percent between 2000 and 2022, from 15,650 to 23,120. In comparison, Stanislaus County’s population rose 23.5% percent during the general same period, from 446,997 in 2000 to 552,063 in 2022. During this period, Oakdale grew approximately twice as much as the general region. 335
City of Oakdale 2023-2031 Housing Element

1.12.2 AGE COMPOSITION
Oakdale’s population is slightly older than the region’s population. The median age in Oakdale is 35.8 years compared to 34.5 in Stanislaus County, and 37.3 years of age statewide. Nearly 40% of the population is between the ages of 15 and 34, while 13% of the population is aged 65 and above.

1.12.3 RACE AND ETHNICITY
Census statistics include the race and ethnicity of a City’s population. The most prevalent racial and ethnic categories are as shown in Table 1 below. The 2022 population estimates show that Oakdale’s largest population of White (Non-Hispanic) residents decreased 8.11% from 14,676 in 2010 to 13,612 in 2022. Decreases also occurred in the populations of Native American alone, which fell from 172 down to 97; Asian alone decreased from 545 to 371; and Native Hawaiian or Other Pacific Islander decreased from 83 to 28. Notably, the population of the Two or More Races category rose by nearly 800% from 135 to 1,211 in this period. The City’s Hispanic or Latino residents increased from 4,403 to 7,473 during this same period. Oakdale’s Black or African American population increased from 62 in 2010 to 260 in 2022. Additional discussion of Oakdale’s racial and ethnic composition is included in Section 4.

Table 1
Population by Race/Ethnicity 2010-2021
Racial or Ethnic Group 2010 2022
Hispanic or Latino 4,403 7,473
White (non-Hispanic) alone 14,676 13,612
Black or African American alone 62 260
Native American alone 172 97
Asian alone 545 371
Native Hawaiian or Other Pacific
Islander alone
83 28
Some other race alone 0 68
Two or More Races 135 1211
Source: U.S. Census Bureau, American Community 5-Year Estimates, 2010 and 2022 336
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1.12.4 EMPLOYMENT AND INCOME
According to the 2022 5-Year estimate American Community Survey, Oakdale has 10,283 residents 16 years and older employed in the workforce. The top three industries with the highest percentage of employees are in Education, Health, and Social Services (22.2%), Manufacturing (13.4%), and Arts, Entertainment, Recreation, and Accommodation & Food Services (10.3%). Most workers, 71.4%, are employed in the private sector, followed by 19.9% employed in public sector jobs.

1.12.5 HOUSEHOLD INCOMES AND HOUSING AFFORDABILITY
Oakdale’s median household income was $83,110 in 2022. This is higher than the Stanislaus County median household income of $74,872 but lower than the statewide median household income of $91,905. Comparatively, the household income of families in Oakdale, particularly married couples, is significantly higher than the city, county, and state median. The distribution of income by household type is shown in Table 2.

Table 2
Income Distribution by Household Type
Households Income
Household Median Income $83,110
Families $97,492
Married-couple Families $110,694
Non-family Households $27,099
Source: U.S. Census Bureau, American Community 5-Year Estimates, 2022

1.13 SPECIAL NEEDS POPULATIONS
Segments of the population may have more difficulty in finding decent, affordable housing due to their special needs. Special circumstances may be related to one’s employment and income, family characteristics, disability, and household characteristics, among other factors. Consequently, certain residents in Oakdale may experience incidences of discrimination, housing access obstacles, or other housing problems.

1.13.1 HOMELESSNESS
The Stanislaus Community System of Care (CSOC) conducted its yearly Point-in-Time (PIT) Count of people experiencing homelessness across Stanislaus County, including Oakdale, in January 2024. That PIT Count reported twenty-six (26) transient persons 337
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experiencing homelessness in the City. This PIT Count saw a slight increase compared to 2023, which saw twenty-two (22) people experiencing homelessness.

1.13.2 PERSONS WITH DISABILITIES
The term “disabled” refers to a disability (physical, mental, developmental, or sensory), which prevents or precludes a person from doing their work either in or outside of the home. Individuals with disabilities are the most likely population to experience homelessness, be rent burdened or unable to afford housing, and face the highest rates of housing discrimination. The number of disabled persons in a community has important implications for providing certain social services, in the removal of barriers to facilities, and in developing housing which has specialized access for disabled residents.

Census data from the 2022 American Community Survey indicate that 12.6% of all residents in Oakdale have a disability. Of the 2,901 persons with a disability, 1,033, or

35.6%, are between 35 and 64 years old. Additional information on Persons with Disabilities is available in Section 4.

1.13.3 SENIORS
Seniors often have fixed incomes and can have additional special needs related to access and care that may require physical improvements to their homes such as ramps, handrails, lower cupboards and counters, creation of a downstairs bedroom, or other modification to enable them to remain in their homes. They may also need assistance in the form of a part-time or live-in caretaker.

According to the 2021 American Community Survey, over 12% of Oakdale’s population is aged 65 and above. While most seniors in Oakdale own their homes, 31% of residents aged 65 and older are renters.

1.13.4 LARGE HOUSEHOLDS
Household size is an important consideration when it comes to planning for housing.

Household size can be influenced by a lack of affordable housing options, an increase or decrease in family formations, or families leaving an area. Ethnicity can also affect sizes of households if a particular ethic group has a tradition of living with family members upon retirement age. Oakdale has 8,293 households. Among these, there are 1,200 large households (5 or more persons) and approximately 82% of large households are owneroccupied.

1.13.5 FEMALE-HEADED HOUSEHOLDS
Female-headed households generally have lower incomes and higher living expenses and childcare costs making the search for affordable, decent and safe housing more 338
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difficult. The higher cost burdens for female-headed households increase housing insecurity.

In 2022, Oakdale had 608 female-headed family households, or 7.34% of the total household population. Approximately 173 of the 608 female-headed family households are under the poverty level.

1.13.6 FARMWORKERS
Farmworkers play a key role in the operation and delivery of the state’s food system.

Oakdale is in San Joaquin Valley, an area rich in agricultural production. Farms in the San Joaquin Valley produce milk, fruits, including grapes, cherries, and tomatoes, lettuce, a variety of nuts, such as almonds, walnuts, pistachios, cotton, alfalfa, and cattle. In 2022,

4.2% of Oakdale residents were employed in the agriculture, forestry, fishing and hunting, and mining industry. At the County level, there are approximately 12,000 farmworkers, 61% of whom are classified as permanent farmworkers working 150 days or more per year.

Given their precarious employment and low-income status, farmworkers encounter hardships finding affordable housing. As a result, many farmworkers live in overcrowded and substandard housing arrangements. This situation presents a need to provide safe and affordable housing for the farmworker community. A detailed analysis of farmworker households in the City is provided in Section 4.

1.14 CHARACTERISTICS OF HOUSING STOCK

1.14.1 TYPE
The housing stock in Oakdale is predominantly single-family residences, though the City maintains multifamily housing including duplexes, 3-4 unit dwellings, apartment complexes of 50 or more units, and mobile homes. Between 2010 and 2022, Oakdale saw increases in the number of single-family residences and 3-4 unit dwellings, 10 or more unit developments, and mobile homes. Duplexes and 5–9 unit development decreased during the same period.

1.14.2 TENURE
Between 2010 and 2022, the number of homeowner households increased from 4,411 to 5,267. As of 2022, approximately 64% of households in Oakdale are homeowners.

However, the proportion of homeownership slightly decreased from 65% in 2010 to 64% in 2022. Since 2000, the number of renter households steadily increased from 2,305 to 3,026 in 2022. As homeownership affords long term stability and investment equity, owning a home is a way to achieve greater housing security in the City. 339
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1.14.3 AGE AND CONDITION
Of Oakdale’s housing stock of 8,641 units, 7,339 units (84.9%) were built between 1940 and 2009. In the two-decade span of 2000 and 2019, 2,799 new homes were built, whereas only 19 new homes were built between 2020 and 2022.

1.14.4 OVERCROWDING
Residential overcrowding is determined by the number of persons per room. The Census defines overcrowding as more than 1 person occupying 1 room, excluding bathrooms, hallways, balconies, and porches. Severely overcrowded households are more than 1.51 persons per room.

Overcrowding results from many conditions, such as a lack of affordable housing, insufficient housing stock, and an increasing population. Overcrowding is influenced by demographic and socioeconomic factors such as race, class, and housing tenure. Olderadult immigrants, recent immigrants, low-income families, and renter-occupied households are more likely to experience overcrowding. Overcrowding can exacerbate the potential for contracting communicable diseases, suffering respiratory illnesses, and increased vulnerability to homelessness. According to the U.S. Census Bureau 2021 American Community Survey, there were 181 overcrowded households and 19 severely overcrowded households in the City. The full analysis of overcrowding is included in Section 4.

1.14.5 VACANCY
In 2022, Oakdale’s occupied housing units accounted for approximately 92% of the total, and the remaining 696 units were vacant. The unoccupied units were classified as follows:

Vacant; For Rent; Rented, not occupied; For Seasonal, Recreational, or Occasional Use; and Other Vacant in U.S. Census ACS.

1.14.6 PRICES
The median value of a home in Oakdale rose from $287,300 in 2010 to $408,800 in 2022, a significant increase of 42%. During this same period, median gross rent rose 31% from $863 to $1,129. These increases are relatively consistent with State and regional increases during that timeframe.

Cost burden, or the ratio of housing costs to household income, has increased in the last several years. A household is considered cost burdened if more than 30% of monthly income pays for housing. Severely cost-burdened households pay more than 50% of monthly income to housing costs. Data from 2022 shows 42% of all renter households and 31% of ownership households have experienced some level of cost burden. 340
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1.15 SUMMARY OF CONSTRAINTS
Constraints to affordable housing production are created by governmental, infrastructure, market, environmental, and social factors, among others. Constraints can be divided into two types: “Governmental constraints” are those created by federal, state, and local governments, whereas “Nongovernmental constraints” do not arise from government policy, regulation, program, or practice.

Governmental constraints result from land use controls including policies, regulations, zoning ordinances, and development standards; permit processing times; and taxes and fees. Escalon’s zoning regulations guide development by establishing rules, standards, design criteria, and permit types. Additionally, development fees are charged to cover the cost incurred for processing, evaluation, and enforcement of regulations. The City also collects a variety of development impact fees to mitigate impacts resulting from a project. Policies and programs are included in Section 2 to address governmental constraints analyzed in the Technical Background Report (Section 4) and identified by housing development stakeholders.

Nongovernmental constraints arise from a range of factors impacting housing affordability but are not directly connected to government actions. These include construction costs, including land prices, building materials, and labor; availability of mortgage financing; market conditions such as housing price, consumer preferences, demand, and competition; interest and capacity of developers; natural hazards and environmental conditions that impact housing availability and costs; and availability of infrastructure.

1.16 SUMMARY OF FAIR HOUSING ASSESSMENT
Under State housing law, Affirmatively Furthering Fair Housing means “taking meaningful actions, in addition to combating discrimination, that overcome patterns of segregation and foster inclusive communities free from barriers that restrict access to opportunity based on protected characteristics.” AFFH entails taking decisive actions to remove entrenched housing discrimination barriers and to locate housing so that it is affordable and equitably accessible to populations in need.

In compliance with Housing Element law, the City must prepare a Fair Housing Assessment to identify factors that contribute to local fair housing issues and barriers and include meaningful actions within the City’s Housing Element Goals, Policies, and Programs to address those factors. The City must incorporate Fair Housing Assessment findings into the Housing Element’s Sites Inventory. To ensure meaningful public participation, outreach and engagements efforts for the Housing Element must also affirmatively further fair housing.

In addition to these factors, the Fair Housing Assessment addresses: Engagement, Enforcement and Outreach Capacity, Segregation and Integration Patterns and Trends, Disparities in Access to Opportunity, Disproportionate Housing Needs including Displacement, Areas of Concentrated Poverty and Affluence Across Racial and Ethnic Groups, Identification of Contributing Factors, and a Summary of Fair Housing Issues. 341
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The City of Oakdale commits to affirmatively further fair housing and incorporate the lens of fair housing and equity – racial, social, gender, and economic – throughout this Housing Element.

1.17 REGIONAL HOUSING NEEDS ALLOCATION
The Regional Housing Needs Allocation (RHNA) is a part of State Housing Element law that determines the projected and existing housing needs for each local jurisdiction in California. State housing law requires each jurisdiction’s Housing Element to demonstrate that the jurisdiction has sufficient land zoned for housing and plans to meet its RHNA, and that there are no unnecessary barriers to the housing approval process to meet the RHNA targets. The Stanislaus Council of Governments (StanCOG) conducts the RHNA process for jurisdictions in Stanislaus County every eight years as required by HCD.

For the 6th Cycle Housing Element period 2023 – 2031, Oakdale has a RHNA of 1,665 units, divided among income groups as shown in Table 3:

Table 3
City of Oakdale 2023-2031 RHNA
Type RHNA Allocation 2023-2031
Very Low (< 50% of AMI) 414
Low (50-80% of AMI) 286
Moderate (80-120% of AMI) 294
Above Moderate (>120% of AMI) 671
Total 1,665
Source: Stanislaus Council of Governments RHNA Allocation The housing need for extremely low-income households is considered to be one-half of the very low-income need.

1.18 OAKDALE’S 5TH CYCLE HOUSING ELEMENT
REVIEW

1.18.1 PROGRESS IMPLEMENTING PROGRAMS
The City has made progress in implementing many of the programs in its 2015 Housing Element. Some programs have been amended and carried forward in the current Housing Element. The programs have been enhanced to affirmatively further fair housing and zone for a variety of housing types. Additionally, changes have been made to programs to include more robust engagement efforts. Limited-term programs that have been completed, such as amendments to the Zoning Code, and are no longer applicable have not been carried forward. A more detailed analysis of the City’s 342
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implementation of the 2015 Housing Element programs and their status is included in Appendix A.

1.19 POLICY CHANGES
The 2015 Housing Element contained six goals and 32 policies. This Housing Element Update restructures the goals and policies to maximize the City’s ability to implement the 2023 Housing Element and meet the changing needs of the community. Goals, policies, and implementation programs are included in Section 2.
2 HOUSING STRATEGY

2.0 BACKGROUND
The Housing Element provides an opportunity for jurisdictions to address housing issues more effectively. In accordance with state law, this Section contains the City’s Housing Strategy for the 2023-2031 Housing Element planning period. The Housing Strategy is made up of goals, policies, and implementation programs. Goals establish the purpose, policies establish a guiding action and commitment, and programs establish specific actions, procedures, programs, or other techniques to carry out a policy. The expected unit-specific outcomes of programs are summarized as quantified objectives in Table 1 at the end of this chapter.

Housing Strategies include the following components to ensure effective implementation:
 A concise statement of specific City actions that will be taken to implement each program.
 The agency or department responsible for implementation.  The funding source that will be used for implementation.  A timeframe that indicates when each action is anticipated to be completed.  The geography (citywide, or regarding particular sites, neighborhoods, or Specific Plan areas) in which the implementation program will take place.  A quantifiable objective to assess program success over the planning period.

The City’s previous (5th Cycle) Housing Element contained six goals and 32 policies, all of which have been restructured and reduced to maximize the City’s ability to implement its vision for the 6th Cycle Housing Element. Programs have been adjusted to respond to changing needs, new state requirements, or to increase effectiveness. Programs that have already been carried out and are not applicable for continuation from the last Housing Element have been removed. A complete evaluation of program implementation from the previous Housing Element is included in Appendix A. 343
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2.1 HOUSING GOALS AND POLICIES
GOAL 1: PRESERVE & IMPROVE OAKDALE’S HOUSING &

NEIGHBORHOODS
 Policy 1A: Facilities and Services
o Provide, maintain, and upgrade facilities and services in support of complete neighborhoods.
 Policy 1B: Neighborhood Preservation and Rehabilitation o Implement methods to sustain neighborhoods, such as through public and private investments, preserving the existing housing stock, and conserving affordable housing supply.

GOAL 2: PROVIDE ADEQUATE SITES FOR HOUSING
 Policy 2A: Adequate Sites
o Maintain adequate sites, with appropriate General Plan and zoning designations and regulations, for new housing development for all economic sectors to support the Regional Housing Needs Allocation and identified housing needs.
 Policy 2B: Accessible Information
o Encourage the development of viable sites with adequate infrastructure by maintaining accessible and transparent site information on the City’s website.

GOAL 3: REMOVE CONSTRAINTS TO HOUSING
 Policy 3A: Zoning for Housing Development
o Ensure that the City’s zoning regulations are compliant with state law and do not form an unnecessary constraint to the development, conservation, and rehabilitation of housing.
 Policy 3B: Housing Variety
o Encourage the development of a mix of housing types to meet the diverse housing needs of Oakdale residents, including special needs populations, through zoning and land use regulations, regional collaboration, and funding programs.

GOAL 4: PROMOTE EQUAL HOUSING OPPORTUNITY
 Policy 4A: Prohibit Discrimination
o Support the strict observance and enforcement of anti-discrimination laws and practices including prohibiting discrimination in the sale or rental of housing with regard to race, color, national origin, ancestry, religion, 344
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disability, source of income, gender/gender identity, sexual orientation, marital status, and familial status.
 Policy 4B: Affirmatively Further Fair Housing
o Affirmatively further fair housing for all residents consistent with State and Federal law.

GOAL 5: FACILITATE HOUSING FOR ALL INCOME LEVELS
 Policy 5A: Remove Barriers to Affordable, Accessible Housing o Ensure constraints that pose a barrier to the maintenance, improvement, and development of housing, including housing for all income levels and housing for persons with disabilities, are addressed and removed where possible.
 Policy 5B: Housing for All
o Actively support the development of high-quality affordable and accessible housing opportunities that meet the needs of all residents, including special needs populations.

GOAL 6: PROMOTE ENERGY EFFICIENCY AND SUSTAINABLE

INFRASTRUCTURE
 Policy 6A: Energy Conservation and Efficiency
o Encourage energy efficiency and energy conservation in residential development to ensure sustainable practices and to reduce housing costs
 Policy 6B: Housing-Transportation Nexus
o The City will strengthen and expand walking, bicycling, and transit opportunities and connections through prioritization of transportation network accessibility, maintenance, and improvement in areas of greatest need.
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2.2 HOUSING PROGRAMS
The City is committed to achieving the goals and policies outlined above through the implementation of the following programs and implementing actions by December 31, 2031. The effectiveness of the housing implementation programs will be monitored, and adjustments will be made as deemed appropriate by the City in coordination with California Department of Housing & Community Development (HCD).

PROGRAM 1-1: ZONING FOR A VARIETY OF HOUSING TYPES
The City will update its Zoning Code to accommodate a variety of housing types and achieve consistency with State law through the following actions:
 Action (A): 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.
 Action (B): Allow Low Barrier Navigation Centers to be a by-right use in zones where multifamily and mixed-uses are permitted, including the nonresidential zones where multifamily is permitted. Include development standards for Low Barrier Navigation Standards and Emergency Shelters that are objective and consistent with State law.
 Action (C): Allow Employee Housing, consisting of no more than 36 beds in group quarters (or 12 units or less) designed for use by a single family or household to be treated as an agricultural use.
 Action (D): Allow JADUs within all single-family dwellings and ensure all ADU/JADU requirements are compliant with State law.
 Action (E): Evaluate the Municipal Code and allow Residential Care Facilities for 7 or more clients as a permitted use in residential zones, subject only to clear, transparent, objective standards.
 Action (F): Evaluate the Municipal Code and amend the City’s Zoning Code to permit manufactured homes in the same manner, in the same zones, and only subject to the same requirements as other single-family residential uses.  Action (G): Include a broadened definition of family that provides Zoning Code occupancy standards specific to unrelated adults and complies with fair housing law.
 Action (H): Define and allow Single Resident Occupancy (SRO) housing in at least one zone and apply appropriate development standards to encourage and facilitate SROs.
 Action (I): Evaluate the Municipal Code and amend to allow group homes of six or fewer residents, consistent with approval procedures for single-family homes. 346
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Context New program (incorporates previous Programs 1-2, 1-4, 2-6, & 3-2).

Amended to address the following State laws:
 Action (A): California Government Code § 65650
 Action (B): California Government Code § 65660
 Action (C): California Health and Safety Code § 17021.5, 17021.8
 Action (D): California Government Code § 65852.2
 Action (E): California Health and Safety Code § 1566.3  Action (F): California Government Code § 65852.3
 Action (G): California Government Code § 65583
 Action (H): California Health and Safety Code § 17910 to 17998.3
 Action (I): California Health and Safety Code § 1566.3 Geography Citywide
Responsibility Planning Division & Finance Department
Funding Source General Fund
Timeframe Action (A-I): December 31, 2026.

Objective Achieve consistency with State law.

PROGRAM 1-2: MAINTAIN HOUSING CAPACITY
The City will assess the effectiveness of Housing Element implementation on an annual basis and provide an opportunity for the public to learn about and provide feedback on the effectiveness of the housing programs.
 Action (A): Administer housing policy administration to support the implementation of the City’s Housing Element and timely achievement of program timeframes.
 Action (B): Assess the City’s progress towards Housing Element implementation and complete the Housing Element Annual Progress Report (APR).  Action (C): Facilitate a public workshop to promote awareness of the progress made towards the implementation of the Housing Element programs.  Action (D): Submit the APR to HCD.
 Action (E): Continue existing City practice to round up fractional units when calculating development capacity.
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Context Continuing program, revised to fulfill RHNA and address State law.

Previously “Capacity to Accommodate Regional Need.”
Incorporates Former Programs 1.1, 2.1 & 2.15.

Geography Citywide
Responsibility Planning Division
Funding Source General Fund
Timeframe Action (A, E): Ongoing
Action (B-D): Annually, prior to April 1
Objective Provide housing administration to meet the City’s Housing Element program deadlines and ensure no net loss of housing capacity throughout the planning period. Maintain access to key State housing, planning, and infrastructure funds.

PROGRAM 1-3: HOUSING REHABILITATION
The City will partner with the Stanislaus Regional Housing Authority (SRHA) on housing rehabilitation programs for low-and moderate-income households, including the following actions:
 Action (A): Update and distribute information about SRHA’s rehabilitation program 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 SRHA rehabilitation program, on the City’s website.  Action (C): Pursue grant opportunities to create a residential rehabilitation program for lower income residents. Work with SRHA 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.  Action (D): Continue to collaborate with Habitat for Humanity on the rehabilitation of substandard housing units.

Context Continuing program (includes previous Program: 1-5 and 1-6).

Geography Citywide, prioritizing homes identified in need of rehabilitation Responsibility Community Development Department & Finance Department Funding Source CDBG, HOME, etc.

Timeframe Seek funding annually; on-going, as funds become available; annual meetings and coordination with SRHA.

Objective Support aging housing stock, with a target of 22 homes rehabilitated throughout the planning period (see Quantified Objectives, Section 2.2).
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PROGRAM 1-4: HOME OWNERSHIP
Improve neighborhoods and housing by providing home ownership education to first time homebuyers, and increasing opportunities for home ownership through the FirstTime Homebuyer Program and the First-Time Homebuyer Down Payment Assistance Program.

Context Continuing program (includes previous Programs: 1-7, 2-3, and 2- 4).

Geography Citywide, low- and moderate-income households Responsibility Planning Division
Funding Source CDBG, NSP, HOME, etc.

Timeframe Seek funding annually; on-going, as funds become available advertise First-Time Homebuyer programs.

Objective Increase home ownership throughout the city.

PROGRAM 1-5: 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. Specifically, staff will outreach to the property owners of the Oak Haven affordable development to attempt to facilitate the continued affordability of the units within this development.
 Action (B): Monitor the status of publicly assisted projects that may become “at risk” of losing affordable housing price restriction through personal contact by City staff with property owners and/or their representatives at least annually. Prior to the end of the 6th Cycle, staff will outreach to the property owners of all units at risk of expiring by 2033.
 Action (C): When an affordable housing development is at-risk of converting, assist the owners and residents in identifying resources, including available funding, for the continued provision of affordable units.
 Action (D): Upon receipt of notice of a proposed conversion of assisted affordable housing, the City will contact qualified entities as identified by HCD and provided within the Housing Element, and encourage their involvement in the acquisition of the units.
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 Action (E): Educate residents and park owners to facilitate resident purchase of mobile home parks with information on funding sources such as HCD’s Manufactured Housing Opportunity and Revitalization (MORE) Program.  Action (F): Prepare a Mobile Home Park Conversion Ordinance, which prohibits the conversion of a mobile home park to another use unless certain findings are made including that:
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 Oakdale and Stanislaus 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 Oakdale or Stanislaus 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 (Includes 1-9 & 2.12), revised to include provisions for mobile home parks.

Action (A-D): California Government Code § 65583
Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A, C-D): Ongoing.

Action (B): December 31, 2028.

Action (E-F): June 30, 2027.

Objective Preserve deed-restricted and naturally occurring affordable housing within Oakdale. Target the preservation of 36 units over the planning period, inclusive of 16 units with an expiring deed restriction, and 20 naturally-occurring affordable units.

PROGRAM 1-6: MISSING MIDDLE HOUSING
The City will establish development standards to encourage the development of missing middle housing and multi-dwelling unit housing types on a lower-density neighborhood scale. Missing middle and multi-unit housing types include accessory dwelling units (separately covered in Program 2-3), duplexes, triplexes, fourplexes, townhomes, lot splits allowed under SB 9, and small lot subdivisions allowed under SB 684.
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 Action (A): Streamline approval processes for development projects of 10 or fewer residential units on urban lots under 5 acres in accordance with the Starter Home Revitalization Act, or SHRA (SB 684 and SB 1123).
 Action (B): Provide information on the City’s website about the SHRA and SB 9 (2021), which allows property owners to split a single-family lot into two lots and develop up to four dwelling units on most City lots.
 Action (C): Consider locally-tailored amendments to the Municipal Code to adopt the opt-in provisions of SB 10 to allow at least four units on qualifying parcels or in qualifying zones, as customized and determined by the City to best support missing middle housing throughout Oakdale.
 Action (D): Promote missing middle housing by amending zoning to allow housing types (such as duplex to fourplex) in relatively higher income areas.  Action (E): Promote missing middle housing types as part of new development in higher income areas of Oakdale.

Context New program added to address State law and community input to facilitate development of housing comparable to singlefamily densities.

Action (A): California Government Code § 65852.28, 66499.41 Action (B): California Government Code § 65852.21, 66411.7 Action (C): California Government Code § 65913.5
Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A-B): Establish a streamlined approval process, with an available application on the City’s website, by March 31, 2026.

Action (C): Present SB 10 policy options to the Planning Commission and City Council by December 31, 2027.

Action (D): April 1, 2028.

Action (E): Ongoing.

Objective Increase transparency for residential development project applicants and achieve consistency with State law. Target the development of 125 missing middle housing units in High and Highest Resource areas over the planning period.

PROGRAM 2-1: MAINTAIN VIABLE SITES
The City will work to maintain viable sites to support development of housing at all income levels at or beyond RHNA throughout the eight-year planning cycle.  Action (A): To ensure sufficient residential capacity is maintained to accommodate the RHNA for each income category, within one year of adoption of the Housing Element, develop and implement a formal, ongoing (project-byproject) evaluation procedure pursuant to Government Code section 65863. The 351
City of Oakdale 2023-2031 Housing Element

evaluation procedure will track the number of extremely low-, very low-, low, moderate-, and above moderate-income units constructed to calculate the remaining unmet RHNA. The evaluation procedure will also track the number of units built on the identified sites to determine the remaining site capacity by income category and will be updated continuously as developments are approved.
 Action (B): No project approval or other action that reduces the density or development capacity of a site shall be undertaken unless sufficient remaining sites are available or additional adequate sites are identified to meet the City’s RHNA obligation prior to approval of the development and made available within 180 days of approval of the development, as required by Senate Bill 166.

Identification of the replacement sites, and the necessary actions to make the site(s) available will be adopted prior to or concurrent with the approval of the development.
 Action (C): Create and maintain a list of additional sites with appropriate zoning that could be added to the City’s Sites Inventory if and when an analysis provided through the Annual Progress Report indicates that sufficient sites may not exist to accommodate the City’s remaining RHNA, by income level, for the planning period.
 Action (D): Post the housing sites inventory on the City’s website to further assist the development community in selecting potential development sites.  Action (E): Support annexation of the Sierra Pointe Specific Plan Area to fulfill the City’s RHNA within statutory timeframes, and ensure that all sites included within the Housing Element Sites Inventory have adequately available and accessible infrastructure to service the scale of anticipated development.  Action (F): Review production of units four years into the planning period and compare with Housing Element projections. If actual production is below the projected level, and the City is not meeting its RHNA targets proportional to the duration of the planning period (i.e., 50% of RHNA in each income category), implement an alternative action program aimed at meeting RHNA targets. Additionally, if projects included in the Sites Inventory as pipeline projects have not requested building permits at the time of City review, coordinate with applicants to approve remaining entitlements or expedite approval of pending entitlements.
 Action (G): Develop an overlay zone that meets all requirements of Government Code sections 65583.2(h) and (i) to allow by-right approval and incentivize development of housing on land owned by religious institutions at default densities in support of the Housing Element Sites Inventory.
 Action (H): Allow by-right approval of housing developments (with at least 20% of units affordable to low-income households) on vacant sites that have been included in the sites inventory in at least two (2) previous Housing Element Cycles and nonvacant sites that have been included in the sites inventory in one (1) prior Housing Element Cycle. Sites will be reviewed for development progress at the 352
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midpoint of the planning cycle. If it is determined that the sites are not likely to be developed within the planning period, either new sites will be added to the sites inventory, or the existing sites will be rezoned to allow by-right approval for housing developments.

Context Continuing program (includes previous Program 1.2 Adequate Sites for All Housing Types and Income Groups), amended to address State law.

Geography Citywide; Action (H) prospective rezoning sites distributed throughout the City in a manner that affirmatively furthers fair housing through inclusion of sites suitable for lower-income housing in High and Highest Resource Areas.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): Annually, starting by March 31, 2026.

Action (B-C): Ongoing, starting by June 30, 2026.

Action (D): Within one year of Housing Element certification.

Action (E): Complete annexation of the Sierra Pointe Specific Plan Area by December 31, 2025. Issue building permits by December 31, 2027. Review progress and identification of alternative sites, if necessary to meet RHNA, by June 30, 2028 if building permits are not issued by end of 2027. Implement additional alternative actions to fulfill RHNA as detailed in Action (F) if the above deadlines are not met.

Action (F): February 29, 2028.

Action (G): Concurrent with Housing Element adoption in order to achieve certification.

Action (H): Allow by-right approval of reuse sites by March 31, 2026. Conduct review of sites by December 31, 2027. Inclusion of new sites or rezoning of existing sites by June 30, 2028.

Objective Maintain capacity to accommodate the RHNA by income group throughout the entire planning period.

PROGRAM 2-2: LARGE SITE DEVELOPMENT
The City’s Housing Element Sites Inventory includes sites that are over ten (10) acres in size designated to accommodate lower-income housing. The City will encourage the development of large sites through an allowance of phasing of development and offsite improvements and, where applicable, through a Master Plan or Specific Plan process. The City will assist interested developers and property owners in the splitting of large sites into parcels of appropriate size (less than 10 acres) to accommodate lowerincome housing and expedite the approval process of lot splits.  Action (A): Through the implementation of the Crane Crossing Specific Plan, the city will facilitate the development of site 42* through property owner outreach and expedited entitlement processing for any permits necessary for the development of housing on site 42.
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 Action (B): Adopt incentives to encourage the development of large RHNA sites (over 10 acres) on parcels of appropriate sizes (one to 10 acres) potentially including, but not limited to, expedited approval of lot splits or creation of new parcels to facilitate parceling at appropriate sites (one to ten acres), and fee waivers, reductions, or deferral.
 Action (C): Complete a mid-cycle review of development activity related to large RHNA sites and revise RHNA calculations, potentially including rezoning additional sites, if the sites are found to be infeasible for development in the planning period.

Context New program included to ensure adequate capacity to accommodate RHNA.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Ongoing, as large site developments are proposed.

Action (A): Property owner outreach by December 31, 2028.

Action (B-C): December 31, 2029.

Objective Maintain capacity to accommodate the RHNA by income group throughout the entire planning period.

PROGRAM 2-3: LOT CONSOLIDATION
The City will facilitate consolidation of smaller lots to actively support development of housing affordable to lower income households. Specifically, the City will actively engage with the property owner of inventory sites #16, 17, and 18 to facilitate the consolidation of those parcels for the development of housing affordable to lower income households. As lot consolidation applications are received, the City will facilitate meetings between owners interested in consolidating lots, offer priority processing, agenda prioritization, reduced parking requirements, and increased FAR for lot consolidation for the creation of affordable housing units.

Context Existing program modified to accommodate the City’s RHNA.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Property owner outreach by December 31, 2028. Ongoing, as lot consolidation applications are submitted.

Objective Maintain capacity to accommodate the RHNA by income group throughout the entire planning period.
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PROGRAM 2-4: ACCESSORY DWELLING UNITS
The City will implement a suite of actions to address State law and community input to increase the City’s production of accessory dwelling units (ADUs).  Action (A): Evaluate applicable changes to ADU law and policy on an annual basis and revise the City’s ADU Ordinance (currently called Second Homes Ordinance) to achieve compliance with State law, in coordination with the State Department of Housing & Community Development (HCD). Report relevant changes to the Planning Commission & City Council as part of the APR, in conjunction with Program 1-1. Regularly monitor the annual production of ADUs and ensure that the City is on track to meet production targets established in Section 3.2.1.
 Action (B): Evaluate community needs and the Municipal Code, and amend to facilitate a resolution to allow separate conveyance of accessory dwelling units (ADUs) as a condominium unit, as allowed by AB 1033 (2023), to incentivize the production of ADUs and entry-level homeownership opportunities.  Action (C): Provide multilingual guidance and educational materials for building ADUs and JADUs on the City's website and meet with homeowner associations to inform them that covenants, conditions, and restrictions (CC&Rs) prohibiting ADUs are not permitted under State law.
 Action (D): Facilitate the development of ADUs in new low-density and mediumdensity subdivisions by incentivizing the availability of floor plans with ADUs and other multigenerational living options for Oakdale families.  Action (E): Adopt and publicize pre-approved ADU plans per AB 1332. Maximize the availability of expanded pre-approved plan options.  Action (F): Develop an ADU Amnesty Program to facilitate the legalization of unpermitted ADUs within the City, and publicize the program through the City’s website, newsletters, and/or flyers.
 Action (G): Collaborate with other local jurisdictions and regional nonprofits to conduct an ADU Workshop to provide information on ADU development to local property owners.
 Action (H): To help ensure a balance of residential and commercial uses, consider amendments to the City’s Zoning Code to allow accessory commercial units (ACUs) in neighborhoods throughout Oakdale, including allowances for selected commercial uses on corner lots in low-density mixed-use applications (i.e., small neighborhood retail uses like cafés, salons, and bookstores).  Action (I): Monitor the production of ADUs annually; if ADU production falls below the projections identified in Section 3 and the City is not on pace to meet its RHNA, pursue alternative measures such as rezoning specific sites to accommodate additional units.
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Context Continuing program (incorporates previous programs 2.2 & 2.8) amended to address State law and community input to
facilitate integrated development and reduce vehicle miles traveled (VMT).

Action (F): Government Code 66332, Health and Safety Code 17920.3
Geography Citywide, with a target of 25% of ADU production throughout the planning period in relatively higher income areas.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): Annually, starting by March 31, 2026 with integration of HCD’s 2025 ADU Handbook in City policy and practice.

Action (B-E): March 31, 2026.

Action (F): May 1, 2030.

Action (G-I): Annually through APR, pursue alternative measures by September 2028.

Objective Develop a target of three (3) ADUs and JADUs per year.

Increase transparency for residential development project applicants and achieve consistency with State law.

PROGRAM 2-5: FUNDING AND INCENTIVES FOR AFFORDABLE AND

SPECIAL NEEDS HOUSING
Encourage development of affordable housing units by providing incentives, exemptions, and deferrals for qualifying affordable housing developments 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 written procedures to formally prioritize permit processing of housing developments proposing to provide extremely low-income and other special needs housing units, including agenda prioritization for any required public hearings.
 Action (C): Establish a formal fee deferral program for multifamily residential development. Ensure consistency with SB 937 by deferring collection of applicable developer fees for designated residential development projects until issuance of the first certificate of occupancy, temporary certificate, or final inspection, unless an authorized exception applies. In conjunction with Program 1-3(D), ensure that all fees are made available on the City’s website.
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 Action (D): Consider forming 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.
 Action (E): Develop and implement procedures consistent with AB 1820 by providing applicants with a standardized fee estimate request form, available online and at the public counter. The City will ensure timely responses to all fee estimate requests to improve transparency and predictability in the development process.

Context Continuing program, revised to reflect changes to State law (includes previous Program: 2-5, 2.7, & 5.3).

Action (B-C): California Government Code § 66007
Action (E): Government Code § 65940.1, 65941.1, 65943.1 Geography Citywide, supporting housing opportunities for low- and moderate-income households with an emphasis on funding
affordable housing developments located within High and Highest Resource Areas and in proximity to transportation and services.

Responsibility Community Development Department & Finance Department Funding Source Grant Funding
Timeframe Action (A): Annually, and as funding opportunities arise.

Actions (B-D): December 31, 2027.

Action (E): Implement procedures by April 1, 2027. Upon requests for fee estimates, provide within 30 days of submittal of a preliminary housing development application. Upon project approval, provide a good-faith estimate of fees within 30 days.

Objective Secure State and Federal funding to support the development of affordable housing. Improve transparency and predictability around development fees for housing projects. Target the development of 50 special needs housing units in relatively higher income areas over the planning period.

PROGRAM 3-1: REMOVAL OF CONSTRAINTS
Continue to analyze the Zoning Ordinance, Oakdale Municipal Code, and City procedures to ensure that existing policy and amendments do not constrain development through the following actions:
 Action (A): 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 (B): Achieve compliance with new State Density Bonus provisions of California Government Code Section 65915.
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 Action (C): Review the Conditional Use Permit (CUP) process to identify potential constraints to housing development, and revise as constraints are identified the Zoning Code to remove or modify the requirement for multifamily residential developments to obtain a CUP in multifamily zones.
 Action (D): Remove the five (5) unit cap on multifamily housing development in the C-2 Zone.
 Action (E): Revise the height standards in the C-C zone to remove the two-story maximum and continue to allow development at a maximum height of 35 feet.  Action (F): Review and amend zoning and development standards on sites zoned for multifamily housing to ensure height, setbacks, parking, lot coverage, FAR, open space, and design standards do not preclude achievement of maximum allowable density.

Context Continuing program (incorporates previous Programs 3-1 & 5-1), amended to address State law.

Action (C): Oakdale Municipal Code Section 36-20.4
Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): At least twice in cycle, beginning by May 31, 2026.

Action (B-E): June 30, 2026.

Action (F): Review development standards by December 31, 2027. Amend to remove constraints as needed by June 30, 2028.

Objective Eliminate constraints to fulfill the City’s RHNA and quantified objectives.

PROGRAM 3-2: TRANSPARENT DEVELOPMENT APPLICATION

INFORMATION AND STANDARDS
The City will increase accessibility and transparency of housing development standards and opportunities by publicizing opportunities for housing streamlining incentives and meet the new transparency and development fee requirements of AB 602 and SB 319 through the following actions:
 Action (A): Post all required information about development standards and fees on the City’s website along with relevant information on zoning, development standards, and affordable housing-related ordinances.
 Action (B): Ensure compliance with AB 602 requirements for new development impact fee studies and publicizing resulting fees.
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 Action (D): Develop a pre-application form and procedure, or adopt the Preliminary Application Form developed by HCD, pursuant to SB 330 and post on City’s website.
 Action (E): Develop a formalized procedure and preliminary application for the SB 35 streamlining approval process and post materials on the City’s website.  Action (F): Develop a supplemental application form for projects eligible under AB 2162, AB 2011, SB 6, SB 684, and SB 4, and post on the City’s website.  Action (G): Develop a pre-application form and procedure, or adopt the Preliminary Application Form developed by HCD pursuant to SB 330, and post on City’s website.
 Action (H): Create and publish a summary that identifies the sites on the City’s Sites Inventory and make the summary available online in map format. Provide sitespecific development information and support whenever possible to provide a clear development process for interested housing developers.

Context Continuing program (Incorporates previous programs: 2.9 & 5.2) amended to address state law.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A-H): June 30, 2026.

Objective Encourage infill development and provide accessible fee information to the public.

PROGRAM 3-3: WATER AND SEWER SERVICE PRIORITY
As the sole provider of water and sewer for new developments, the City will continue to prioritize service for new affordable housing developments.

Context Continuing program (Incorporates previous programs: 2.11 &

3.6). Addresses State law requirements of California Government Code § 65589.7.

Geography Citywide
Responsibility Community Development Department & Public Works Department
Funding Source General Fund
Timeframe Provide a written notification and a complete copy of the adopted Housing Element immediately upon adoption. Ongoing prioritization of affordable housing developments, as new development applications are submitted. Establish written procedures for prioritizing affordable housing developments and post on the City’s website by June 30, 2026.
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Objective Ensure affordable housing units are provided adequate water and sewer services.

PROGRAM 3-4: PARKING REDUCTIONS FOR ELIGIBLE PROJECTS
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 developments.
 Action (B): Evaluate the Municipal Code and amend 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): Evaluate the Municipal Code and amend to ensure no constraint to the development of studio and one-bedroom units by imposing a parking requirement of no greater than one space per unit.

Context New Program added to address State law:
 Action (A-B): California Government Code § 65915
 Action (B): AB 139 (2019).
 Action (C): SB 712 (2023).
 Action (D): State ADU law including AB 1308 (2023).

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A-B): June 30, 2026.

Action (C-E): December 31, 2026.

Objective Incentivize a mix of residential and commercial development.

PROGRAM 3-5: FAIR CODE ENFORCEMENT ACTIVITIES
Continue to conduct residential code enforcement activities on a reactive basis, prioritizing 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 360
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permit when such 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 Continuing program (includes previous Program 1-8 Code Enforcement) program expanded to affirmatively further fair housing.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Ongoing, with code enforcement training conducted at least once in the planning cycle and no later than December 31, 2027.

Objective Affirmatively further fair housing.

PROGRAM 3-6: NEIGHBORHOOD IMPROVEMENTS
The City will continue to prioritize neighborhoods 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, 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.
 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), as detailed in Program 3-3.
 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 Oakdale, including allowances for selected commercial uses on corner lots in mixed-use applications.

Context Continuing program (includes previous programs 1-2, 2-1, 2-2).

Incorporates former program 3-1: Provision of Public Services.

Geography Citywide, emphasizing neighborhoods with aging housing stock and infrastructure.

Responsibility Community Development Department & Public Works Department
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Funding Source General Fund
Timeframe Action (A): Annually, with CIP update.

Action (B): Within 60 days of Housing Element adoption.

Action (C): May 1, 2030.

Objective 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 4-1: 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 Oakdale 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, including but not limited to people with disabilities and developmental disabilities and people experiencing homelessness.
 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 Oakdale area to circulate SB 4 information in conjunction with Program Action 3-2(F).

Context New program added to incentivize development and affirmatively further fair housing.

Geography Regional, including housing developers active in Stanislaus and San Joaquin Counties.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): Annually, beginning January 2026. 362
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Action (B): Conduct stakeholder outreach on at least an annual basis, in coordination with Action (A). Biannually provide technical assistance to a target of ten affordable housing providers over the planning period.

Action (C): Ongoing, with at least biannual outreach to regional and/or local service providers, including homeless service providers and organizations serving people with disabilities and developmental disabilities.

Action (D): Develop marketing materials by June 30, 2026, and update as needed to reflect changes in State law and local policy. Evaluate at least biannually over the planning period.

Action (E): Conduct outreach at least biannually, starting by June 30, 2026.

Objective Monitor the effectiveness of programs, procedures, and other incentives and secure funding for housing development. Enhance the efficacy of working relationships with local and regional developers and service providers to fulfill local housing needs and opportunities for current and future Oakdale residents at all income levels, with an emphasis on special needs populations.

PROGRAM 4-2: 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 Project Sentinel, or other organizations with commensurate purpose, for action. The Planning Department will continue to be responsible for receiving complaints in regard to housing. Throughout the planning cycle, evaluate effectiveness of outreach and education in reaching households across geographies and protected characteristics, including an evaluation of the City’s efforts to investigate complaints, obtain remedies, engage in fair housing testing, and conduct outreach and education efforts.
 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 Stanislaus Regional Housing Authority, Project Sentinel, and/or Development Services Manager for further discussion and evaluation. The City anticipates utilizing this process for two such complaints per year, or 15 times throughout the planning period. The intent of the program is to ensure that 363
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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 4-1 Fair Housing), amended to affirmatively further fair housing.

Geography Citywide, with emphasis on Moderate Resource Areas and lowerincome and special needs households throughout Oakdale.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A), (C): Ongoing, with evaluation of the effectiveness of engagement in reaching special needs households conducted at least once in the planning cycle, by December 31, 2027.

Action (B): Check counter weekly to ensure fair housing materials are available to the public and change information that is available on an annual basis upon changes to fair housing law, beginning by March 31, 2026.

Objective City involvement in every case that comes forward, ensuring that grievances are addressed, and all aspects of the law are enforced.

PROGRAM 4-3: 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): Update 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 Stanislaus Regional Housing Authority as needed. The information will also be made available in Spanish.
 Action (B): Create a tenant and landlord rights toolkit in collaboration with housing advocacy groups. 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): Host or 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 364
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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. 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. Work with local non-profit service providers such as El Concilio to enhance Spanish language access.  Action (F): Partner with fair housing service providers, faith-based institutions, Oakdale 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.

Context New program added to affirmatively further fair housing. Action (H): AB 1524, AB 721.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): Ongoing, update as needed.

Action (B): December 31, 2026.

Action (C-D): At least twice in cycle, beginning by May 31, 2027.

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.

PROGRAM 4-4: 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:
 Action (A): The City will require replacement housing units, based on but not limited in applicability 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) 365
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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): 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 Oakdale tenants earning low or moderate incomes evicted for no-fault just cause.
 Action (C): 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 (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.
 Action (E): Continue to implement the City’s Rental Housing Inspection program.

Rental dwelling units, except units owned or managed by government agencies, are inspected every three years.

Context New program added to affirmatively further fair housing.

Geography Citywide, including affordable housing developments.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A): May 31, 2026. Outreach within 90 days of applicable project application submittal.

Action (B): January 1, 2030 – December 31, 2031.

Action (C): Within 3 months of adopting ordinance of Action (B).

Action (D-E): Ongoing
Objective Maintain and rehabilitate existing housing stock, require code compliance for safer rental units, prevent displacement, and monitor the affordability of affordable units, as well as ensure tenants are paid relocation payments for no-fault just cause throughout the duration of the planning cycle.

PROGRAM 4-5: 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 366
City of Oakdale 2023-2031 Housing Element

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 market-rate units.
 Action (B): The City will obtain the status of the Section 8 waiting list and monitor on a quarterly basis. 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 Oakdale property owners.

Context Continuing program (previously Program 4.2 Housing Choice Voucher Program) amended to affirmatively further fair housing.

Geography Citywide
Responsibility Community Development Department and Stanislaus County Housing Authority
Funding Source General Fund
Timeframe Action (A): Ongoing
Action (B): Quarterly, beginning March 31, 2026.

Action (C): Annually
Objective Increase the number of property owner/landlord that accept HCV in higher resource areas by 25% and reach 100% of qualifying households to support housing mobility for lower-income and special needs households.

PROGRAM 4-6: 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 accommodation are over the counter, fast, and free. Codify in the City’s Fee Table with a zero-dollar ($0) line item to clarify that reasonable accommodations requests are offered at no charge. 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.
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 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 twoyear period, include a statement of program availability in the City’s newsletter and proactive outreach in coordination with local disability rights stakeholders.

Context Continuing program (Incorporates previous programs 3.4 & 3.5) amended to affirmatively further fair housing.

Geography Citywide
Responsibility Community Development Department
Funding Source General Fund
Timeframe Revise Fee Table by June 30, 2026. Biannual review first conducted by April 1, 2027.

Objective Address all 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 5-1: 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 Stanislaus Council of Governments (StanCOG), Stanislaus Regional Housing Authority, and Modesto Junior College (MJC), to collaborate on the implementation of actions to support farmworker housing in the San Joaquin Valley.
 Action (D): Create a multilingual fact sheet on farmworker housing made available online and at City Hall.
 Action (E): Amend the Municipal Code to adopt the opt-in provisions of the Farmworker Housing Act of 2019 (AB 1783).
 Action (F): Provide incentives and other strategies beyond state density bonus law to encourage housing for farmworkers, including setting aside housing for 368
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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 5.4 Farmworker Housing Persons Program.

Geography Citywide
Responsibility Community Development Department
Action (B): Relevant stakeholders may include, but are not limited to agricultural and food manufacturing employers in greater Oakdale (e.g., ConAgra Foods), Stanislaus County Farm Bureau, United Farm Workers, California Rural Legal Assistance, and California Coalition for Rural Housing.

Funding Source General Fund, Grant Funding
Timeframe Action (A-C): Ongoing, at least annually.

Action (D-F): December 31, 2026.

Objective Secure State and Federal funding to support the development of affordable housing for farmworkers and their families, with a target of 25 affordable units for farmworkers produced during the planning period. Assess and identify prospective sites, partnerships, and/or funding opportunities for the development of farmworker housing at least annually, including annual meetings with relevant stakeholders.

PROGRAM 5-2: EXTREMELY LOW-INCOME HOUSING
The City will actively support the development of an array of housing types to meet the needs of all segments of the population, including extremely low-income (ELI) households and people experiencing homelessness, with consideration of special characteristics protected under state law and fair housing laws.
 Action (A): The City will actively collaborate with public and private service agencies, and developers to assist in the development of housing and support services to meet the housing needs of ELI and special needs households.  Action (B): Collaborate with the Stanislaus Continuum of Care to identify potential shelter sites and strategies to address homelessness, with an emphasis on accessing housing among marginalized populations.
 Action (C): Seek or assist developers in seeking State and Federal funds to construct or rehabilitate housing for persons with disabilities.  Action (D): Collaborate with the Stanislaus Regional Housing Authority (SRHA) to promote the SRHA’s programs and continue to direct residents seeking services to SRHA.

Context New program added to affirmatively further fair housing.

Geography Citywide, with a target of 50 ELI units in relatively higher income areas.
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Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A-B): Direct outreach to agencies by December 31, 2028, and ongoing outreach at least every two years thereafter.

Action (C-D): Ongoing, annually or as funds become available.

Objective Secure State and Federal funding to support the development of housing affordable to extremely low-income households and special needs housing, with a target of 210 ELI and special needs units produced during the planning period.

PROGRAM 6-1: WATER 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.  Action (A): Continue to require new houses to utilize low-flow toilets, low-flow shower heads, and low flow faucets. Support new water retrofitting programs.  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 Landscape Ordinance).
 Action (C): Develop bilingual (English and Spanish) utility bill inserts that encourage the use of water-efficiency programs and water conservation methods.  Action (D): Develop a bilingual brochure (English and Spanish) with information energy conservation programs, including programs available through the County, State, and the County, and make available online and at City Hall.

Context Continuing program (Previously 6-2: Water Conservation).

Geography Citywide
Responsibility Community Development Department & Public Works Department
Funding Source General Fund
Timeframe Action (A-B): Ongoing
Action (C): Biannually, starting by December 31, 2026.

Action (D): December 31, 2026.

Objective Promote water conservation, with a target of reducing residential water use by 15%.

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PROGRAM 6-2: PLACE-BASED STRATEGIES
The City will promote access to opportunities in the City’s areas of greatest need, specifically adjacent to new and existing affordable housing developments, and in areas designated as Low and/or Moderate Resource by the California Department of Housing and Community Development, including the City’s neighborhoods with older housing stock directly to the east of Yosemite Avenue.
 Action (A): Expand access to community meetings by addressing language barriers, meeting times, and meeting participation alternatives.  Action (B): Facilitate inter-governmental and inter-agency coordination to identify specific neighborhoods of highest need.
 Action (C): Recruit residents from areas identified through Action (B) to serve on boards, committees, and commissions to help provide community-based strategies.
 Action (D): Address climate change impacts through investments in adaptation measures such as urban forestry, low impact development improvements, etc. in disadvantaged areas.
 Action (E): Include affirmative recruitment in hiring practices to help provide community-based strategies.
 Action (F): Engage with community members and pursue funding to facilitate the establishment of community spaces and recreation opportunities, such as parks, trails, bike paths, etc.
 Action (G): If sites within the L-M District develop as emergency shelters or low barrier navigation centers, the City will provide free transportation to services or offer services on-site.

Context New program added to affirmatively further fair housing.

Geography Citywide, with a target of 1-2 improvements annually in relatively lower-income areas.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Action (A-B): December 31, 2026.

Action (C-F): Ongoing, pursue funding to complete at least one action annually.

Action (G): Ongoing, as sites develop.

Objective Include and implement a target of three (3) substantive neighborhood improvements through the Capital Improvement Plan (CIP) process over the course of the planning period, with a target of at least one action accomplished annually in priority areas.
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PROGRAM 6-3: TRANSIT-HOUSING BALANCE
The City will continue to identify opportunities to connect housing with transportation, neighborhood services, and amenities. Consistent with other General Plan Mobility Element policies, the City will use the following criteria in reviewing development proposals, selecting housing sites, and or selecting parcels as part of a dynamic Sites Inventory over the planning period:
 Action (A): Affirmatively further fair housing by expanding the distribution and variety of housing types and sizes in the City with access to transportation.  Action (B): Ensure that housing provides for adequate, safe, and accessible internal and external multi-modal traffic circulation, including emergency evacuation, in consistency with the Mobility Element. Focus outreach efforts on paratransit services in connection with new and existing housing to serve the northeast quadrant of the City with a higher share of residents with disabilities.  Action (C): Prioritize development of sites, particularly for lower-income housing, that offer convenient access to existing and planned public transportation.  Action (D): Promote housing that offers convenient access to neighborhood services and amenities typically required by residents, including recreation.  Action (E): In connection with the Capital Improvement Plan (CIP) and transportation planning initiatives, continue to prioritize local actions to improve active transportation, accessibility modifications, safe routes to school, and community amenities. Emphasize relatively lower-income areas and areas of the City with aging infrastructure.

Context New program to affirmatively further fair housing and support consistency with the General Plan Mobility Element.

Geography Citywide, in proximity to new and existing affordable housing development.

Action (B): Northeast Oakdale
Action (C): Proximal to existing and planned public
transportation.

Action (D-E): Proximal to neighborhood services and amenities.

Responsibility Community Development Department
Funding Source General Fund
Timeframe Ongoing
Objective Support infrastructure improvements in areas of highest need, and reduce vehicle miles traveled (VMT).
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2.3 QUANTIFIED OBJECTIVES
Table 4 below summarizes Oakdale’s quantified housing objectives for the 2023-2031 Housing Element planning period.

Table 4
Quantified Objectives, City of Oakdale, 2023-2031
Program Types Extremely
Low-Income
Very LowIncome Low-Income ModerateIncome
AboveModerate
Income
Production 204 204 283 276 668
Rehabilitation 5 5 5 5 2
Conservation 5 5 5 16 0
Total 214 214 293 297 670
For context, conservation of 16 moderate-income units refers to the 16 deed restricted units in the Oak Haven development that are set to expire in 2033.

Figure 2
New Housing Under Construction in Oakdale, August 2024
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3 HOUSING SITES

3.1 CONTEXT
Under Government Code § 65583(a)(3) the City must identify adequate sites with capacity to fulfill its fair share of the regional housing need, as determined by Stanislaus Council of Governments’ (StanCOG) Regional Housing Needs 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. Identified 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 identification and analysis of potential housing opportunity sites and will analyze the City’s compliance with its obligation to meet Affirmatively Furthering Fair Housing (AFFH) objectives. The Oakdale 2030 General Plan has determined that long-term growth is expected to occur to accommodate future housing and employment demands.

Oakdale has a total RHNA of 1,665 units, divided among the income categories as shown in Table 5:

Table 5
Oakdale Regional Housing Needs Allocation (RHNA), 2023-2031 Jurisdiction Very
Low
Low Moderate AboveModerateTotal RHNA
Oakdale 414 286 294 671 1665
Source: Stanislaus Council of Governments Regional Housing Needs Allocation Plan

Oakdale 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 to ensure that assumptions made for affordability and capacity are realistic. 374
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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 has 374 units already in the development pipeline, including ADUs, to be produced over the planning period. Housing sites and programs have been included to meet the City’s remaining RHNA, as well as comply with No Net Loss requirements.

3.2.1 ACCESSORY DWELLING UNITS
An Accessory Dwelling Unit (ADU) is a secondary dwelling unit located on residentially zoned property that has an existing single-family or multifamily residence. ADUs and JADUs can provide affordable housing options for special needs populations such as large households, seniors, female-headed households, individuals with a disability, and farmworkers, as well as students, in-home health care providers. 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) on the lot of the primary residence 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 Oakdale and Section 2 contains programs to further incentivize the development of ADUs.

As shown in Table 6, the City averaged 1.6 ADUs per year between 2018 and 2024. The projection of ADU and JADU development is based on realistic capacity and development trends of ADUs and JADUs in the previous planning period, with ADU production trends anticipated to be substantially bolstered by the actions of Program 2- 3, for a total of three (3) ADUs and JADUs per year.

Although Oakdale 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 Stanislaus County. 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. 375
City of Oakdale 2023-2031 Housing Element

Table 6
ADUs by Year in Oakdale
Year ADUs/JADUs
2018 0
2019 1
2020 0
2021 2
2022 2
2023 1
2024 5
Average of 1.6 ADUs per year
Source: Oakdale Annual Progress Report

3.2.2 PLANNED, APPROVED & 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, 204 housing units are planned, approved, or pending. Descriptions of these projects are included below.

Table 7
Planned, Approved and Pending Projects for RHNA Credit
Project LI MI AMI Total
Units Status Next Steps Antic. Occupancy
East F Street
Multifamily - - 48 48 Entitled
Building
permit
submittal
2030
Villas at
Tesoro - - 156 156 Entitled
Building
permit
submittal
2030
Saddlewood - - 133 133
Improvements
under
construction
Building
permit
issuance
2030
Whispering
Oaks - - 37 37 Under construction
Continued
building
permit
issuance
2026
East G Street
Subdivision - - 93 93 Application in process
Planning
Commission
Hearing
2028
Belmare
Senior Living - - 24 24 Application in Progress
Planning
Commission
Hearing
2030
376
City of Oakdale 2023-2031 Housing Element

732 N.

Yosemite Ave. - - 16 16 Application Submitted
Planning
Commission
Hearing
2030
RHNA Credit - - 507 507
East F Street Multifamily Project
The East F Street Multifamily Project is an approved, 48-unit apartment development located within the East F Street Specific Plan Area (APN 064-043-018). The project is proposed to serve above-moderate income households. The East F Street Project is located within a Highest Resource Area. The project is not likely to improve the distribution of fair housing conditions in Oakdale and may exacerbate existing patterns.

Villas at Tesoro
Villas at Tesoro is an approved, 156-unit development located within the East F Street Specific Plan Area (APN 064-012-014). Villas at Tesoro is located within a Highest Resource Area, and is not likely to improve fair housing conditions in Oakdale. Due to the abovemoderate incomes anticipated to be served in a Highest Resource Area, the project is likely to exacerbate existing patterns of segregation.

Saddlewood
Saddlewood is an approved, 133-unit development located within the Crane Crossing Specific Plan Area (APNs 063-012-012, -043, and -044). Saddlewood is located within a Highest Resource Area, and is not likely to improve fair housing conditions in Oakdale, and may exacerbate existing patterns of segregation.

Whispering Oaks
Whispering Oaks is a project of thirty-seven (37) single-family residential units under construction on an 8.29-acre site located on Old Stockton Road (APNs 064-002-027 and -035). Whispering Oaks is located within a Moderate Resource Area, and is somewhat likely to improve fair housing conditions in Oakdale. Patterns of integration may be improved through investments in a Moderate Resource Area with older housing stock.

East G Street Subdivision
The East G Street subdivision is a ninety-three (93) unit single-family subdivision on an

11.4-acre site located on East G Street (APN 064-055-009). The East G Street subdivision is located within a High Resource Area, and is not likely to improve fair housing conditions in Oakdale. Location of an above-moderate income housing development in a High Resource Area is likely to exacerbate existing patterns of segregation.

Belmare Senior Living
Belmare Senior Living is a 110-unit development project for seniors with a mix of units providing independent living (24 units), assisted living (60 units), and memory care (26 units). The project is an expansion of the existing facility at 1450 W F St. The assisted living portion of the development consists of 28 studio apartments and 32 one-bedroom apartments. The independent living units are accounted in the Sites Inventory, while the assisted living and memory care units are not counted toward the City’s RHNA. The 377
City of Oakdale 2023-2031 Housing Element

project is located in a High Resource Area and may exacerbate existing patterns of segregation.
732 N. Yosemite Avenue
732 N. Yosemite Avenue is a 16-unit multifamily development project on a 0.57-acre site located on N. Yosemite Avenue (APN 130-001-001). The project is located within a Highest Resource Area, and is not likely to improve fair housing conditions.

3.2.3 UNITS CREDITED TOWARD RHNA
As depicted in Table 8, Oakdale is counting a total of 454 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 8
RHNA Credits
Lower
Income
Moderate
Income
Above
Moderate
Income
Total
RHNA Allocation 700 294 671 1665
RHNA Allocation with
15% Buffer 805 338 772 1915
RHNA
Credits
Pipeline 0 0 491 491
ADUs/JADUs 14 7 3 24
Total 14 7 494 515
RHNA % Fulfilled by Credits 2% 2% 74% 31%
RHNA Shortfall after Credits 686 287 177 1150
RHNA Shortfall with 15% Buffer
after Credits 791 331 278 1400
378
City of Oakdale 2023-2031 Housing Element

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.

Table 9
Example Project Densities
Project Units Acreage Zoning Max Density % Yield
112 James St 7 0.3 R-3 29 88%
3600 Dale 44 1.7 MU 29 88%
James Street 7 0.3 R-3 29 88%
JKB Apartments 206 9.3 MU 29 77%
Magnolia Grove 35 1.5 P-D 29 83%
Rumble/Conant 50 2.3 R-3 29 77%
Scenic 41 2.3 R-3 29 63%
Due to the lack of local project data in Oakdale, the above table uses project data from neighboring Modesto. Based on the development capacity demonstrated by these projects, the Sites Inventory assumes 80 percent of the maximum allowable density of included parcels. This assumption reflects local data, potential site specific constraints, and necessary site improvements that would prohibit development at a site’s maximum allowable density.

3.3.1 VACANT SITES
A total of nine (9) vacant sites used in the City’s 5th Cycle Housing Element remain available and are identified in the inventory to accommodate a portion of the City’s RHNA (Table 10). An additional eight (8) vacant commercial sites are included. The methodology used to determine the realistic capacity of the sites identified can be found in Section 3.3.3 and Section 3.3.4. Oakdale’s vacant sites are substantially equipped and available for housing development, with some of the City’s vacant and non-vacant sites alike currently active on the market.
379
City of Oakdale 2023-2031 Housing Element

Table 10
Vacant Sites
Site
No. APN Site Address Zone General Plan Acreage
Realistic
Capacity
Affordability
Level
1 064-043-
024
1237-1321 E
G St / 0 F St. C-2
General
Commercial 5.8 65
Lower
Income
23 064-012-
009 1730 E. F St. R-3
High Density
Residential 2.39 50
Lower
Income
33 064-019-
008 1907 E. F St. R-2
Medium Density
Residential 2.15 25
Moderate
Income
43 064-019-
012 2001 E. F St. R-2
Medium Density
Residential 1.27 15
Moderate
Income
52 064-046-
076 1698 E. G St. R-2
Medium Density
Residential 3.47 39
Moderate
Income
62 064-055-
007
301
Pedersen
Rd. R-2
Medium Density
Residential 0.74 8
Moderate
Income
72 064-060-
002
573
Edgetown
Ave. R-1
Low Density
Residential 2.02 16
Above
Moderate
Income
83 129-002-
001
353 N. Sierra
Ave. R-3
High Density
Residential 0.53 12
Moderate
Income
9 064-013-
022
Mile 6.8
State Hwy
120 W C-2
General
Commercial 7.84 88
Lower
Income
10 064-019-
008 1907 E F St. R-2
Medium Density
Residential 5.24 58
Moderate /
Above
Moderate
Income
11 064-011-
040 0 East F St. C-2
General
Commercial 2.7 32
Lower
Income
12 064-024-
007
163 Hallman
Ln. R-3
High Density
Residential 0.81 19
Lower
Income
13 062-005-
016
7901 Crane
Rd. C-2
General
Commercial 5.65 67
Lower
Income
14 062-005-
018
6124 Hwy
108 C-2
General
Commercial 7.46 88
Lower
Income
15 063-013-
016
2931 West F
St. C-2
General
Commercial 2.44 29
Lower
Income
161
063-013-
015
2913 West F
St. C-2
General
Commercial 0.55
23 Lower
Income
063-013-
002
2907 West F
St. C-2
General
Commercial 0.55
063-013-
003
2843 West F
St. C-2
General
Commercial 0.84
380
City of Oakdale 2023-2031 Housing Element

17 063-013-
022 0 West J St. C-2
General
Commercial 9.94 129
Lower
Income
Total Units 759
Notes:

1. Inclusion of site 16 in the lower income RHNA capacity is contingent on the assumption that the three lots will be consolidated within the planning period.

2. Used in 5th Cycle

3. Used in 4th and 5th Cycle

4. Assumes 1 acre of land set aside for right-of-way dedication requirements, including soundwall and landscape median along West J Street.

Figure 3
Vacant Site, Foothill Oaks
Figure 4
Vacant Site, G Street
381
City of Oakdale 2023-2031 Housing Element

3.3.2 NON-VACANT SITES
Non-vacant sites in the Housing Element inventory include commercial catalyst sites that may be best utilized as a residential development due to a sustained period of vacancy (Sites 1-17). Parcels within Specific Plan areas predominate the list of nonvacant sites that have already been studied and identified as having capacity for higher density development. This includes parcels from the East F Street Specific Plan (Sites 21-29) and Crane Crossing Specific Plan (Sites 30-43). Section 3.3.5 (Realistic Capacity Analysis) provides additional context on capacity assumptions for flex zones and parcels within Specific Plan Areas.

The Housing Element must analyze the extent to which existing uses may impede additional residential development. The Site Inventory accommodates a majority of its lower-, moderate-, and above-moderate income RHNA on vacant sites. As a result of insufficient available vacant land, the City identified the remaining lower- and moderate-income RHNA on nonvacant sites.

Figure 5
Non-Vacant Site, 190 North Lee Avenue
382
City of Oakdale 2023-2031 Housing Element

Table 11
Non-Vacant Sites
Site
No. APN Site Address Zone General Plan Acres Realistic Capacity Affordability
Level
18‡ 064-043-027 1449 E F G St. PD General Commercial 1.96 22 Lower
Income
19 063-009-025 140-190 N. Lee Ave R-1 Low Density Residential 3.92 16 Above
Moderate
Income
20 064-055-008 1001 E. G St. PD
Medium Density
Residential 5.26
29 Moderate/
Above
Moderate
Income
21 064-019-020 2213 E. F St. R-2
Medium Density
Residential
& General Commercial 1.05
12 Moderate/
Above
Moderate
Income
22 064-019-019 2201 E. F St. R-2
Medium Density
Residential
& General Commercial 1.02
11 Moderate/
Above
Moderate
Income
23 064-019-018 2125 E. F St. R-2
Medium Density
Residential
& General Commercial 1.03
12 Moderate/
Above
Moderate
Income
24 064-019-017 2113 E. F St. R-2
Medium Density
Residential
& General Commercial 0.96
11 Moderate/
Above
Moderate
Income
25 064-019-016 2107 E. F St. R-2
Medium Density
Residential
& General Commercial 0.97
11 Moderate/
Above
Moderate
Income
383
City of Oakdale 2023-2031 Housing Element

26 064-019-015 2101 E. F St. R-2
Medium Density
Residential
& General Commercial 0.73
8 Moderate/
Above
Moderate
Income
27 064-019-013 2019 E. F St. R-2
Medium Density
Residential
& General Commercial 1.06
12 Moderate/
Above
Moderate
Income
28 064-019-012 2001 E. F St. R-2
Medium Density
Residential
& General Commercial 2
11 Moderate/
Above
Moderate
Income
29 064-019-004 1759 & 1761 E. F St. R-2
Medium Density
Residential
& General Commercial 3.9
44 Moderate/
Above
Moderate
Income
30 063-012-020 * 32 Reed Rd. R-3 High Density Residential 0.86 19 Lower
Income
31 063-012-019* 24 Reed Rd. R-3 High Density Residential 0.69 15 Moderate/
Above
Moderate
Income
32 063-012-018* 20 Reed Rd. R-3 High Density Residential 0.69 15 Moderate/
Above
Moderate
Income
33 063-012-017* 16 Reed Rd. R-3 High Density Residential 0.68 15 Moderate/
Above
Moderate
Income
384
City of Oakdale 2023-2031 Housing Element

34 063-012-016* 8 & 10 Reed Rd. R-3 High Density Residential 0.91 22 Lower
Income
35 063-012-015* 2 & 4 Reed Rd. R-3 High Density Residential 0.87 19 Lower
Income
36 063-012-014* 2424 E. F. St. R-3 High Density Residential 0.52 12 Moderate/
Above
Moderate
Income
37 063-012-027* 33 Reed Rd. R-2
Medium Density
Residential 0.9
10 Moderate/
Above
Moderate
Income
38 063-012-049* 25 Reed Rd. R-2
Medium Density
Residential 0.58
6 Moderate/
Above
Moderate
Income
39 063-012-050* 26 Reed Rd. R-2
Medium Density
Residential 0.6
7 Moderate/
Above
Moderate
Income
40 063-012-029* 17 Reed Rd. R-2
Medium Density
Residential 0.56
6 Moderate/
Above
Moderate
Income
41 063-012-030* 15 Reed Rd. R-2
Medium Density
Residential 0.56
6 Moderate/
Above
Moderate
Income
42 063-012-031* 5 Reed Rd. R-2
Medium Density
Residential 0.42
5 Moderate/
Above
Moderate
Income
43 063-012-032* 2306 F. St. R-2
Medium Density
Residential 0.6
7 Moderate/
Above
385
City of Oakdale 2023-2031 Housing Element

Moderate
Income
44 062-004-008
Mile 36.1 State Hwy.
108 W. R-2
Flex / Medium Density
Residential 23.53
280
Moderate/
Above
Moderate
Income
Total Units 616
‡ Site rezoned to allow for multi-family residential development consistent with R-3 Zone District per Oakdale Ord. No. 1283. *Sites within the Crane Crossing Specific Plan used in the 5th Cycle Housing Element.

Table 12 identifies existing uses for each non-vacant site included in the Sites Inventory. 386
City of Oakdale 2023-2031 Housing Element

Table 12
Non-Vacant Sites with Existing Uses
Site
No. APN Site Address Existing Use Analysis Aerial Image 18 064-043-027 1449 E. F St. This is the
undeveloped portion
of the parcel,
adjacent to a
shopping center.

This 1.96 acre lot is a substantially
vacant lot within a shopping
center anchored by Save Mart.

Approximately 95% of the site is
vacant, with the remainder
occupied by a drive aisle.
19 063-009-025 140-190 N.

Lee Ave
This is the FES
Portuguese Hall of
Oakdale with a
majority of the parcel
undeveloped.

The undeveloped portion of this
parcel is an informal (gravel)
parking lot used for infrequent,
spillover parking for events. The
availability of dedicated on-site
parking and street parking does
not pose a constraint to
development.
20 064-055-008 1001 E. G St. The undeveloped
portion of the parcel,
adjacent to a
storage facility.

The undeveloped portion of the
parcel is vacant, raw land not
used for any known purpose. The
portion of the parcel used for the
existing storage facility use is not
included in the total acreage
within inventory.
387
City of Oakdale 2023-2031 Housing Element

21 064-019-020 2213 E. F St. Underutilized storage
lot, planned for
redevelopment
under the East F
Street Specific Plan.

The parcel includes paved storage
for boats on the front portion of
the lot abutting East F Street, with
two structures toward the rear of
the lot.
22 064-019-019 2201 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is substantially vacant in
the rear portion, with a singlefamily home and accessory structures on the front portion of
the site abutting East F Street.
23 064-019-018 2125 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

A single-family home occupies the
front portion of the parcel abutting
East F Street, with the remainder of
the parcel currently used for
unpaved storage of vehicles.
388
City of Oakdale 2023-2031 Housing Element

24 064-019-017 2113 E. F St. Storage facility,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is almost entirely
occupied by storage structures
and pavement. Demand for
storage facilities does not exceed
the demand for housing. Zoning
for housing and the Specific Plan
support the viability of
redevelopment.
25 064-019-016 2107 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is occupied by a small
single-family home near the front
portion of the site abutting East F
Street, with the remainder primarily
occupied by vacant, raw land.

Parcel width would support a drive
aisle on the eastern portion of the
lot to access a townhome-style
development, with the existing
home as a remainder parcel.
26 064-019-015 2101 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is occupied by a small
single-family home near the front
portion of the site abutting East F
Street, with three additional
detached structures toward the
back of the site and the remainder
primarily occupied by vacant, raw
land.
389
City of Oakdale 2023-2031 Housing Element

27 064-019-013 2019 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is occupied by a small
single-family home near the front
portion of the site abutting East F
Street, with additional detached
structures toward the back of the
site and the remainder primarily
occupied by vacant, raw land.

The parking is primarily unpaved.
28 064-019-012 2001 E. F St. Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The parcel is occupied by a singlefamily home, and the majority of the site is unpaved, raw land. The
parking to access the home is an
unpaved gravel lot.
29 064-019-004 1759 & 1761
E. F St.

Single-family home,
planned for
redevelopment
under the East F
Street Specific Plan.

The 3.9 acre parcel is substantially
underdeveloped, with existing lowdensity residential and accessory structures toward the front of the
site. The rear portion of the parcel
is undeveloped, raw land. The
parcel is located behind
commercial uses directly adjacent
to East F Street with a shared drive
390
City of Oakdale 2023-2031 Housing Element

aisle, and may be accessed to the
south by Orsi Road.
30 063-012-020* 32 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure.
31 063-012-019* 24 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure.
32 063-012-018* 20 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure.
33 063-012-017* 16 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure.
34 063-012-016* 8 & 10 Reed
Rd.

Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure.
391
City of Oakdale 2023-2031 Housing Element

35 063-012-015* 2 & 4 Reed
Rd.

Single-family home
with excess land.

The parcel is a corner lot occupied
by low-density residential
development on the eastern half
of the parcel. The western half is
undeveloped, and could serve as
ingress and egress from West F
Street. This entrance could serve
Sites 30-35 for a larger
development under the City’s lot
consolidation program, supporting
the feasibility of development.
36 063-012-014* 2424 W. F. St. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and an accessory structure, with a paved drive aisle.

The rear portion of the parcel is
substantially unpaved and suitable
for redevelopment, particularly in
consolidation with adjacent sites.
37 063-012-027* 33 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and small accessory structures. The vast majority of the
site is unpaved, raw land.
38 063-012-049* 25 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home with an unpaved drive aisle, and the majority of the
lot comprised of vacant, raw land.
392
City of Oakdale 2023-2031 Housing Element

39 063-012-050* 26 Reed Rd. Single-family home
with excess land.

The parcel, with shared ownership
with 25 Reed Road, is substantially
vacant with a limited portion of
the site occupied by a driveway.
40 063-012-029* 17 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home with an unpaved drive aisle, and the majority of the
lot comprised of vacant, raw land.

The existing home is located to the
south of the lot, providing room for
redevelopment.
41 063-012-030* 15 Reed Rd. Single-family home
with excess land.

The parcel is occupied by a singlefamily home and a carport directly behind the existing home.
42 063-012-031* 5 Reed Rd. Vacant Commercial
site.

The parcel is a vacant corner lot
located at the intersection of Reed
Road and West F Street. The lot
was previously occupied by a
variety of service commercial uses
in the past decade and is
substantially paved.
393
City of Oakdale 2023-2031 Housing Element

43 063-012-032* 2306 F. St. Single-family home
with excess land.

A single-family home occupies a
western portion of the parcel
abutting West F Street, with the
remainder of the parcel currently
used for unpaved storage of
vehicles and uninhabited
accessory structures.
44 062-004-008 Mile 36.1
State Hwy.
108 W. (0
Crane Road)
Single structure with
agricultural use,
planned for
redevelopment
under the Crane
Crossing Specific
Plan.

The 23.53 acre parcel is occupied
in the southeast corner by a
seasonal strawberry stand. Roughly
half of the parcel is occupied by
existing agricultural fields and the
remainder is raw, vacant land. The
site has enhanced suitability for
residential development through
annexation into City limits and
inclusion in the Crane Crossing
Specific Plan.
*Sites within the Crane Crossing Specific Plan used in the 5th Cycle Housing Element. 394
City of Oakdale 2023-2031 Housing Element

3.3.3 RELIGIOUS INSTITUTION SITES
Sites 44-53 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 Oakdale, 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 43-52 are non-vacant, the realistic development capacity was calculated using only vacant portions of the properties at the default density (developable acreage rather than the full parcel).

Generally, the religious institution sites included in the Sites Inventory have large parking lots that are severely underutilized. The parking lots are sporadically used for short periods of time throughout the week. Inventoried sites generally include large, vacant portions of parcels suitable for development that may accommodate new housing without eliminating existing parking.

To facilitate development opportunities, the City will conduct outreach to faith-based organizations throughout the planning period, as detailed in Program 4-1. Such outreach may include site planning strategies to best utilize parcels and ensure effective coexistence of existing and planned land uses. The program also includes rezoning to add the Religious Institution Overlay Zone and support development of the parcels included within the City’s Site Inventory. The Overlay Zone is intended to meet default densities, by-right requirements for Lower-Income Sites, and statutory consistency with the streamlining provisions of Senate Bill 4.
395
City of Oakdale 2023-2031 Housing Element

Figure 6
Religious Institution Site, 1480 Poplar Street
Figure 7
Religious Institution Site, 33 North Lee Avenue
396
City of Oakdale 2023-2031 Housing Element

Table 13
Religious Institution Sites
Site
No. APN Site Address Zone General Plan Acreage Realistic Capacity Affordability
Level
45 063-010-
037 1700 W. F St. C-1
Neighborhood
Commercial 1.68
27 Lower
Income
46 063-035-
015
33 N. Lee
Ave. R-1
Low Density
Residential 1.96
31 Lower
Income
47 063-008-
007
1480 Poplar
St. R-1
Low Density
Residential 1.92
31 Lower
Income
48 130-025-
001
1225 Olive
St. R-1
Low Density
Residential 3.81
61 Lower
Income
49 064-009-
022 1111 E. A St. R-1
Low Density
Residential 2.03
32 Lower
Income
50 064-047-
039 1351 E. G St. R-3
High Density
Residential 1.6
26 Lower
Income
Total Units 208

3.3.4 SITES SUITABILITY ANALYSIS
The identified sites have realistic development potential and are suitable to count towards the City’s RHNA. The City can accommodate only a small percentage 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. Fourteen (14) ADUs are assumed to be affordable to lowerincome households and seven (7) affordable to moderate-income households based on the affordability analysis outlined in Section 3.2.1. The remaining RHNA is accommodated through vacant and non-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 2-1: Maintain Viable Sites). Vacant sites, pipeline projects, and ADU projects are anticipated to accommodate all of the City’s lower income RHNA, with a buffer of 31% accommodated by a combination of non-vacant sites and religious institution sites deemed suitable for the development of both lowerand moderate-income housing following the legislative advancement of Senate Bill 4, bolstered by the programs described in Section 2.

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 lowerincome housing developments might be challenging for projects on parcels exceeding 397
City of Oakdale 2023-2031 Housing Element

10 acres. The sites identified in the Sites Inventory that accommodate the City’s lowerincome RHNA are larger than 0.5-acre and smaller than 10 acres with only 2 exceptions.

A selection of sites included in the Sites Inventory allow for non-residential uses.

Development trends indicate that commercial parcels have an 80% likelihood of residential development based on the planning efforts conducted in Specific Plan processes to support redevelopment of underutilized parcels. Generally, non-vacant sites included in the sites inventory are undeveloped portions of otherwise developed parcels, are parcels where existing uses underutilize the parcel, have existing uses that are substantially underutilized, or are underutilized parcels that are planned for redevelopment through a Specific Plan, as identified in Table 11. Given that non-vacant sites included in the sites inventory are undeveloped portions of parcels, underutilized parcels, have existing uses that are underutilized, or are planned for redevelopment these sites are suitable for housing development during the planning cycle. Reduced demand for commercial real estate is roughly consistent with statewide trends, and the Housing Element policies and programs encourage converting existing uses from nonresidential to residential and mixed-use. The City does not have a known track record of redevelopment of commercial sites, and may further leverage recent State law (AB 507 of 2025) to incentivize and accelerate the adaptive reuse of underutilized properties.

Parcels with existing uses are considered more viable for redevelopment when given the presence of key factors. The analysis in Table 12 (Non-Vacant Sites with Existing Uses) summarizes the following factors:

1. Surface Parking. Large surface parking lots have potential for redevelopment, as this land use lacks existing, occupied structures to impede redevelopment in the near term.

2. Vacant Buildings. Vacant buildings have potential for redevelopment as these properties are often underutilized with no existing leases.

3. Age and Condition of Structures. The age of a structure is useful in demonstrating that a site has a higher likelihood of redevelopment. Older structures are often also in poor condition.

4. Building Intensity. Nonvacant parcels with existing single-story buildings and low lot coverage offer significant potential for redevelopment to maximize utilization of the sites.

Table 14 shows the analysis of nonvacant sites based on these criteria. Existing uses on these sites would not impede redevelopment. All nonvacant sites are located in areas with access to utilities, and most are located within Specific Plan areas extensively studied and incentivized for infill redevelopment. Given the characteristics of these nonvacant sites, the City does not anticipate existing uses to impede residential development. 398
City of Oakdale 2023-2031 Housing Element

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 be calculated to demonstrate that the sites can realistically be achieved. Where appropriate, minimum densities were utilized to determine realistic capacity of sites. 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): maximum of 10 units per acre.  The Medium Density Residential District (R-2): maximum of 14 units per acre.  The High Density Residential District (R-3): maximum of 28 units per acre.  The General Commercial District (C-2): maximum of 28 units per acre.

A portion of inventoried sites are located in “flex" zones, with split zoning saddling commercial and residential with maximized flexibility for developers. Flex zones are included within the East F Street Specific Plan Area and the Crane Creek Specific Plan Area. Flex zones offer by-right approval processes for single-family and multifamily residential development. The City has a demonstrated track record of approving such single-family projects, and Program 2-1 is included to incentivize multifamily development in flex zones. Flex-zoned sites are often a combination of General Commercial (28 u/a) and Medium Density Residential (14 u/a). With a 50% likelihood assumed for inventoried land in commercial zones, these sites can generally accommodate medium density and are slated for moderate income and above moderate income RHNA.

The following Table 14 identifies the acreage of vacant land, land developed with parking, and land developed with structures for each nonvacant site included in the sites inventory. Non-vacant sites within the inventory contain existing development but are considered appropriate for additional residential development or redevelopment during the planning period. Sites were evaluated to determine whether they possess realistic development potential despite the presence of existing improvements.

The capacity assigned to each non-vacant site reflects only the usable portion of the parcel that is available for residential development. Site yield assumptions exclude constrained areas, irregular lot configurations, access limitations, required setbacks, and portions of parcels occupied by permanent improvements unlikely to be removed. In most cases, the existing structures occupy a limited share of the parcel area (typically less than 15 percent of the total lot area) leaving substantial underutilized land capable of accommodating additional housing units.

Many of the identified sites are characterized by low-intensity or aging development patterns, including surface parking areas, storage yards, vacant accessory structures, or older structures with limited site coverage. These conditions indicate a strong potential for infill development, adaptive reuse, intensification, or mixed-use redevelopment.

Parcels are also located within established urbanized areas where infrastructure, roadway access, transit availability, and public services are already present, reducing barriers to residential development.
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Table 14
Usability of Nonvacant Sites
Site
No. APN Acres
Vacant (%)Parking (%)Structures (%)
Surface ParkingVacant BuildingsCondition of StructuresLow Building Intensity 18 064-043-027 1.96 87% 13% 0% Yes No N/A Yes
19 063-009-025 3.92 34% 51% 15% Yes No No Yes
20 064-055-008 5.26 44% 35% 21% Yes No No Yes
21 064-019-020 1.05 31% 56% 13% Yes No No Yes
22 064-019-019 1.02 76% 12% 12% Yes No No Yes
23 064-019-018 1.03 22% 66% 12% Yes No No Yes
24 064-019-017 0.96 2% 43% 55% Yes No No No
25 064-019-016 0.97 84% 6% 10% Yes No No Yes
26 064-019-015 0.73 69% 20% 11% Yes No No Yes
27 064-019-013 1.06 67% 25% 8% Yes No No Yes
28 064-019-012 2 83% 10% 7% Yes No No Yes
29 064-019-004 3.9 88% 7% 5% Yes No No Yes
30 063-012-020 0.86 85% 0% 15% No No No Yes
31 063-012-019 0.69 73% 0% 27% No No No Yes
32 063-012-018 0.69 78% 0% 22% No No No Yes
33 063-012-017 0.68 87% 0% 13% No No No Yes
34 063-012-016 0.91 46% 21% 34% Yes No No Yes
35 063-012-015 0.87 71% 7% 22% Yes No No Yes
36 063-012-014 0.52 95% 0% 5% No No No Yes
37 063-012-027 0.9 92% 0% 8% No No No Yes
38 063-012-049 0.58 90% 0% 10% No No No Yes
39 063-012-050 0.6 100% 0% 0% No No N/A Yes
40 063-012-029 0.56 90% 0% 10% No No No Yes
41 063-012-030 0.56 54% 30% 16% Yes No No Yes
42 063-012-031 0.42 0% 85% 15% Yes Yes No No
43 063-012-032 0.6 83% 0% 17% Yes No No Yes
44 062-004-008 23.53 97% 0% 3% No No Yes Yes
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The following Table 15 identifies the acreage of vacant land, land developed with parking, and land developed with structures for religious institution sites included in the sites inventory.

Table 15
Usability of Religious Institution Sites
Site
No. APN
Total Acres
Vacant Acres
Percent Vacant
Parking Acreage
Percent Parking
Structures (ac.)
Structures (%)
Surface Parking
Vacant Buildings
Condition of
Structures
Low Building
Intensity
45 063-
010-
037 4 1.68 42% 0.92 23% 1.4 35% Yes No No Yes
46 063-
035-
015 2.68 1.96 73% 0.54 20% 0.19 7% Yes No No Yes
47 063-
008-
007 3.86 1.92 50% 0.81 21% 1.12 29% Yes No No Yes
48 130-
025-
001 3.19 3.81 35% 2 45% 0.36 20% Yes No No Yes
49 064-
009-
022 3.57 2.03 57% 1.1 30% 0.46 13% Yes No No Yes
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Additionally, as described in Section 3.3.3, 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 16
RHNA and Adequate Sites
Lower
Income
Moderate
Income
Above
Moderate
Income
Total
RHNA Allocation 700 294 671 1665
Pipeline Projects 0 0 491 491
ADU Projections 14 7 3 24
Vacant Sites 590 140 16 1069
Non-Vacant Sites 82 15 376 616
Religious Institution Sites 208 0 0 208
Total Units in Sites Inventory 939 299 847 2408
RHNA Surplus (239) (5) (176) (743)
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3.4 PROGRAMS TO ENSURE ADEQUATE SITES

3.4.1 SUMMARY OF PROGRAMS TO ENSURE ADEQUATE SITES
 Program 1-2: Maintain Housing Capacity
 Program 1-3: Housing Rehabilitation
 Program 1-5: Conservation of Affordable Units & Mobile Homes  Program 2-1: Maintain Viable Sites
 Program 2-2: Large Site Development
 Program 2-3: Accessory Dwelling Units (ADUs)
 Program 2-4: Funding and Incentives for Affordable and Special Needs Housing  Program 3-1: Removal of Constraints
 Program 3-2: Transparent Development Application Information and Standards  Program 3-4: Parking Reductions for Eligible Projects  Program 4-1: Housing Outreach and Stakeholder Engagement  Program 4-3: Removal of Impediments to Fair Housing
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3.5 FAIR HOUSING CONSIDERATIONS

3.5.1 RELATIONSHIP OF SITES TO FAIR HOUSING ANALYSIS
Housing sites identified to meet Oakdale’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 8
TCAC 2024 Opportunity Map, Oakdale
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City of Oakdale 2023-2031 Housing Element

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. Oakdale’s sites are primarily located within High and Highest Resource Areas, higher than the most neighboring jurisdictions in Stanislaus and San Joaquin Counties.

Fair housing conditions are not exacerbated by the housing development anticipated within the 6th Cycle Housing Element planning period. While pipeline projects are generally Above-Moderate Income developments located in High and Highest Resource Areas, the selected vacant and non-vacant sites included in the inventory balance the remaining distribution of RHNA throughout the City’s neighborhoods and resource areas to affirmatively further fair housing. Place-based strategies are included in the Housing Strategy to support the integrated development of housing at all income levels.

Table 17
RHNA Accommodation by TCAC Area
Low Resource
Area
Moderate
Resource Area
High Resource
Area
Highest
Resource Area
Lower Income
Capacity 0 124 526 230
Moderate Income
Capacity 0 12 190 15
Above Moderate
Income Capacity 0 37 401 378
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City of Oakdale 2023-2031 Housing Element

3.6 INFRASTRUCTURE CONSIDERATIONS
The availability of infrastructure including improvements or extensions to developing areas of the City is necessary prior to development. For certain locations this can limit the development potential of certain properties until adequate services are available. Other projects may have problems with providing necessary infrastructure in areas that are not adjacent to existing development. In order to ensure that public facilities continue to provide adequate services for Oakdale residents, sewer system and water system master plans have been prepared for a twenty-year planning period.

3.6.1 WATER
The City meets all of its water demands including its potable water through groundwater.

The current major surface water source in the vicinity of the City of Oakdale is the Stanislaus River. The City owns and operates nine water production wells. Oakdale’s well capacity is sufficient to meet future water demands through the year 2025. The City’s UWMP identifies a total water supply 10,650 AFY, which would be sufficient to meet the buildout of the 2030 General Plan. It is anticipated that the planned growth would result in a total demand of 9,240 AFY through 2030, or approximately 4,500 AFY over current water demand levels. These volumes are within the identified total water supply available through 2030 of 10,650 AFY. The City has an adequate water supply to serve development in the City’s SOI and GPA.

According to the Municipal Service Review (MSR) the City of Oakdale is improving and upgrading the City’s existing water system infrastructure to serve future buildout. These efforts include updating the City’s water master plan, along with water meter upgrades across Oakdale, and the addition of water storage capacity through the building of the Valley View Tank. Also, the City established a new groundwater well, well 10, and refurbished well 6 by installing an automatic generator well. Along C Street, the City seeks to complete a multi-phased upgrade of a water main and overlay to offer more adequate water service for domestic and industrial uses.

Across Oakdale, all new development would be required to provide adequate water supply and infrastructure. All future development would be required to fund and install the infrastructure necessary. Infrastructure plans are required for all new developments with specific line sizes and demand calculations generated based on the specific development proposals to ensure future developments are adequately served and supplied with water.
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City of Oakdale 2023-2031 Housing Element

3.6.2 SEWER / WASTEWATER COLLECTION AND TREATMENT
The City of Oakdale wastewater system provides wastewater services within the City limits of Oakdale and incorporated portions of Oakdale’s SOI is served by private septic systems and leach fields. As wastewater service from the City is expanded to areas that are annexed into the City and improvements are completed, those properties are required to connect to the City wastewater collection system.

In addition, the City is in the process of upgrading its wastewater treatment plant to provide tertiary filtration followed by ultra-violet light disinfection. Once in operation, the plant will be capable of producing treated effluent that meets “Disinfected Tertiary” standards as defined by Title 22; thus, the treated effluent would provide the City with approximately 1,950 to 3,760 AFY of recycled water, based on the 2005 and buildout population projections discussed in the UWMP. This water could be used for agricultural irrigation located outside of the City’s service area. While this volume of water is expected to also contribute to recharge of the aquifers surrounding and within the City, the Draft EIR indicates that recycled water is not anticipated to be utilized within the planning horizon considered for the proposed SOI. Therefore, this use would not offset the City’s current or future potable water demands.

3.6.3 STORM DRAINAGE
The City of Oakdale maintains its storm drainage system in accordance with State and Federal law. With full 100-year storm tailwater control, the City’s system is sufficient to ensure that water quality remains acceptable during collection and transfer. The City does not conduct any specific or routine monitoring of storm water quality. However, the City staffs an active field crew that responds to reports of dumping, reducing the amount of pollution that flows into the stormwater system. New development associated with the build out of the 2030 General Plan would require new and expanded stormwater infrastructure. Through the entitlement process, all new development is required to construct, dedicate and/or pay its fair share.

3.6.4 OTHER UTILITIES
Gilton Solid Waste Management contracts with the City of Oakdale to provide garbage service which includes the curbside collection of recyclables and compostable waste.

Pacific Gas & Electric (PG&E) provides power to residential and commercial customers in Oakdale.
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City of Oakdale 2023-2031 Housing Element

3.7 ENVIRONMENTAL CONSIDERATIONS
The following section evaluates environmental conditions in the City of Oakdale that could act as barriers to development. None of the environmental conditions evaluated preclude development. Identified sites within the Housing Element Sites Inventory are within contiguous city limits and have access to existing City infrastructure. None of the identified sites are under any known Williamson Act contracts. There are no superfund sites within Oakdale that could pose a potential contamination risk to any of the identified sites. The Oakdale Municipal Airport is located approximately one mile southeast of the contiguous City limits and does not pose a potential environmental constraint on identified sites. Identified sites have ample access, and none are landlocked or unusually shaped. Identified sites do not have any known easements that would potentially restrict access or pose other environmental constraints. 408
City of Oakdale 2023-2031 Housing Element

3.7.1 FIRE
Oakdale has a low to moderate susceptibility to wildfire. Figure 2 shows the results of the critical facility analysis by fire threat area. None of the City’s critical facilities is located within Very High or High or Moderate Wildfire Threat areas, and only three critical facilities are within low wildfire threat areas.

Figure 9
Fire Threat in Oakdale
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City of Oakdale 2023-2031 Housing Element

3.7.2 EARTHQUAKE
Oakdale 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, Oakdale has a high earthquake risk. According to the USGS database, there is a 66% chance of a major earthquake within 50km of Oakdale within the next 50 years.

Figure 10
Earthquake Shaking Probability Map
Source: University of Southern California (USC), The Great California Shakeout 410
City of Oakdale 2023-2031 Housing Element

3.7.3 FLOOD
The greatest external risk to flooding is the Stanislaus River but the topography of the City, situated above the river on its northern edge, benefits the City and decreases major flooding problems. According to FEMA flood maps, minimal southwesterly portions the City are situated in the 100-year flood zone. Oakdale 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 Drain 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 11
Flood Hazards in Oakdale
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City of Oakdale 2023-2031 Housing Element

Critical facilities are those community components that are most needed to withstand the impacts of disaster as previously described. The figure below shows the geographic relationship between the City’s critical facilities and the FEMA 1% and 0.2% annual chance floodplains in the vicinity. None of the City’s critical facilities are located directly in FEMA 1% annual chance floodplains. Only one critical facility, an assisted living facility, is located in FEMA 0.2% annual chance floodplains. Moreover, a few facilities in the northern part of the City are located near FEMA floodplains.

Figure 12
Critical Facilities and Flooding Hazards, Oakdale
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City of Oakdale 2023-2031 Housing Element

3.7.4 LANDSLIDES
Most of the City is not susceptible to deep-seated landslide hazards, although a few long and narrow segments located in the northern and south-to-central portions of the City possess some susceptibility. Areas that possess deep-seated landslide susceptibility also exist along Stanislaus River, which are to the northeast of the City, but not within the City limits or SOI. However, landslide hazard is overall rated as low for the City and is not a priority hazard.

Figure 13
Landslide Susceptibility, Greater Oakdale
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City of Oakdale 2023-2031 Housing Element

3.8 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 Oakdale 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 Oakdale can continue to be an affordable and vibrant community for a wide variety of residents in the years to come.
414

CITY OF OAKDALE
City Council Resolution 2026-XX
Attachment 3
Oakdale Adoption Draft Technical Background Report
415
Adoption Draft
Technical Background Report
June 2026
416

CONTENTS

4.1 INTRODUCTION ................................................................................................................... 2

4.2 HOUSING NEEDS ANALYSIS................................................................................................. 3

4.2.1 Population Characteristics and Housing Data............................................... 3

4.2.2 Special Housing Needs Analysis ...................................................................... 9

4.3 HOUSING RESOURCES .......................................................................................................20

4.3.1 Housing Assistance Programs .........................................................................20

4.3.2 Zoning for a Variety of Housing Types............................................................22

4.3.3 Opportunities for Energy Conservation in Residential Development..........24

4.4 HOUSING CONSTRAINTS.....................................................................................................25

4.4.1 Nongovernmental Constraints .......................................................................25

4.4.2 Governmental Constraints..............................................................................29 417
City of Oakdale 2023-2031 Housing Element

4 TECHNICAL BACKGROUND REPORT

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 housing needs, housing resources, and constraints to housing development. The TBR supplements the Housing Strategy and the Sites Inventory, and prefaces the Fair Housing Assessment.

The following Census Tract profiles inform discussions of local differences throughout the Technical Background Report and the Fair Housing Assessment. Census Tracts within Oakdale divide the City into four quadrants and consist of Census Tract numbers 06099000201 (Northwest Census Tract), 06099000204 (Northeast Census Tract), 06099000202 (Southwest Census Tract), and 06099000205 (Southeast Census Tract).

Table 1
Census Tract Profiles, City of Oakdale
Census Tract Northwest
Census Tract
Northeast
Census Tract
Southwest
Census Tract
Southeast
Census Tract
Land Area (sq
mi)

1.6 1.5 1.8 2.6
Population 6,211 5,178 8,312 4,115
High Quality
Transit Stops
0 0 0 0
Resource Area
Designation
Highest Highest Highest High
Economic
Composite
Score
Highest High Highest Low
Education
Composite
Score
Highest Highest Highest Highest
CalEnviroScreen
Composite
Score

64.50 76.70 76.70 78.74
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4.2 HOUSING NEEDS ANALYSIS

4.2.1 POPULATION CHARACTERISTICS AND HOUSING DATA
This Section describes the population characteristics in Oakdale. 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.

4.2.1.1 POPULATION TRENDS
From 1970 to 2000 Oakdale underwent significant population growth, averaging 33 percent per decade. Population growth remained high from 2000 to 2010 with a growth rate of 28.2 percent before slowing somewhat after 2010. There was an increase of approximately 15.2 percent from 2010 to 2021 (Table 2).

Table 2
Population Trends, 1970-2022
Year 1970 1980 1990 2000 2010 2022
Population 6,594 8,474 11,800 15,650 20,067 23,120
Source: U.S. Census Bureau, American Community Survey, 2010, 2022; Population Estimates for California Counties and Cities, 1970-2000 As of 2022, Oakdale has a population of 23,120. Approximately 48 percent of the population is under 35 (Table 3). The largest share of the population continues to be within the 35 to 44 years range, followed by the 45 to 54 years range. Many of the age groups saw increases over 30 percent between 2000 and 2010. That growth has now slowed for most age groups, except for ages under 5 years, 5 to 9 years, and 60 to 64 years.

Table 3
Population by Age in Oakdale, 2000-2022
Age Category 2000 2010 2022
Percent
Change
(2000-2010)
Percent
Change
(2010-2022)
Under 5 years 1,216 1,354 1,914 11.3% 41.3%
5 to 9 years 1,281 1,277 1,737 -0.3% 36.0%
10 to 14 years 1,270 1,703 1,726 34.1% 1.4%
15 to 19 years 1,114 1,787 1,651 60.4% -7.6%
20 to 24 years 894 1,217 1,225 36.1% 0.7%
25 to 34 years 2,122 2,474 2,874 16.6% 16.2%
35 to 44 years 2,665 2,919 3,292 9.5% 12.8%
45 to 54 years 1,833 2,652 2,834 44.7% 6.7%
55 to 59 years 649 1,208 1,283 86.1% 6.2%
60 to 64 years 618 917 1,528 48.4% 66.6%
65 to 74 years 872 1,330 1,448 52.5% 8.9%
75 to 84 years 869 873 1,068 0.5% 22.3%
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City of Oakdale 2023-2031 Housing Element

85 years and over 247 365 436 47.8% 19.5%
Source: U.S. Census Bureau, Table S0101 American Community 5-Year Estimates, 2022 The data in Table 3 shows changes in the racial and ethnic makeup of the population of Oakdale 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 (Table 4). Additionally, the population in the Two or More Races category increased significantly.

Table 4
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 Oakdale have been homeowners. Between 2010 and 2021, homeowner households and renter households have remained approximately the same (Table 5).

Table 5
Households by Tenure, 2000-2022
2000 2010 2022
Tenure Number Percent Number Percent Number Percent
Owner 3,351 59 4,411 65 5,267 64
Renter 2,305 41 2,391 35 3,026 36
Total 5,656 100 6,802 100 8,293 100
Source: U.S. Census Bureau, Decennial Census Table H007, 2000; American Community Survey 5-Year Estimates Table B25003, 2010, 2022

4.2.1.2 HOUSING COST AND AFFORDABILITY
According to the U.S. Census Bureau American Community Survey, the median household income in Oakdale is $83,110. This is lower than San Joaquin County ($86,056) but higher than Stanislaus County ($75,886). In 2010, the median household income in Oakdale was higher than that of both counties. Over the last decade, median home values and median rents in Oakdale have risen at similar rates to median household incomes: as the median household income in Oakdale has increased by 38.9 percent, median home values and median rents have increased by 42 percent and 31 percent, respectively. By comparison, there was a 56 percent increase in the median value of a home and a 63 percent increase in median gross rent in California, as well as a 58 percent increase in the median value of a home and a 47 percent increase in median rents in Stanislaus County during the same time period.
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City of Oakdale 2023-2031 Housing Element

Table 6
Median Home Value and Gross Rent, 2010-2022
2010 2022 2010-2022 Percent Change
Median Home Value $287,300 $408,800 42%
Median Gross Rent $863 $1,129 31%
Source: U.S. Census Bureau American Community Survey 5-Year Estimates Tables B25077 and B25058, 2010, 2022
The median household income in Oakdale continues to be above the annual income needed to prevent becoming cost burdened. To cover the median gross rent of $1,129 per month and ensure that rent does not account for greater than 30 percent of one's income, an annual household income of approximately $45,160 would be necessary.

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 costburdened households are those whose monthly housing costs exceed 50 percent of monthly income. As of 2019, approximately 22 percent of ownership households and 42 percent of renter households in Oakdale have experienced some level of cost burden (Table 7).

Table 7
Cost Burden by Tenure
Owner Renter Total
Not Cost Burdened 3,530 1,705 5,235
Cost Burdened (30 – 50% of income) 845 700 1,545
Severely Cost Burdened (Over 50% of
income)
810 545 1,355
Cost Burden Not Available 35 0 35
Total 5,220 2,950 8170
Source: HUD, CHAS 5-Year Estimates, 2019
The market rental cost in Oakdale and the surrounding jurisdictions of similar size are shown in Table 8. The median rents are higher in nearby Escalon and Riverbank than in Oakdale. Between 33 and 38 percent of housing units in all census tracts in Oakdale are renter households, between 60 and 69 percent of renters in the Northeast and Southwest census tracts are cost burdened. Approximately 45 percent of homeowners in the Northwest and Southeast census tracts are cost burdened as well. This data indicates all four quadrants of the City experience higher rates of cost burden in some form, with disparities across tracts recorded on the basis of housing tenure.

Cost burden is particularly pronounced among extremely low-income (ELI) households, who earn no more than 30 percent of Area Median Income and therefore have limited capacity to absorb rising housing costs. In Stanislaus County, the ELI income threshold for a typical four-person household is $29,550 annually. This equates to approximately $2,463 per month in gross household income. At the standard affordability threshold of 30 percent of income toward housing costs, an ELI household could afford approximately $739 per month in rent or housing expenses. In contrast, prevailing housing costs in 421
City of Oakdale 2023-2031 Housing Element

Oakdale substantially exceed this range, with average rents commonly more than double that amount. As a result, many ELI households in Oakdale must devote a disproportionate share of income to housing, often resulting in severe cost burden, overcrowding, housing instability, or displacement risk. Program 5-2 (Extremely LowIncome Housing) is included in the Housing Strategy (Section 2) to address the housing needs of ELI households.

Table 8
Median Market Rental Costs
Type Median Market Rents
Oakdale $1,650
Escalon $3,200
Riverbank $2,300
Source: Zillow Median Rents, accessed July 2024
According to U.S. Census Bureau data, approximately 66 percent of the owner-occupied homes in Oakdale are valued under $499,000, compared to 74 percent in Stanislaus County (Table 9). Additionally, the median value of owner-occupied units in Oakdale is $416,300 according to US Census data, lower than that of both San Joaquin and Stanislaus County. Zillow data suggests that the median value of an owner-occupied unit as of July 2024 was $553,286, up 4.7 percent over the past year.

Table 9
Home Values of Owner-Occupied Units
Oakdale Stanislaus County
Home Value Number Percent Number Percent
Less than $200,000 401 7.61 10,916 10.26
$200,000 to $399,999 2,110 40 44,279 41.63
$400,000 to $499,999 1,387 26.33 24,244 22.17
$500,000 to $749,999 1,311 24.89 18,706 17.59
$750,000 to $999,999 4 <0.01 4,269 4.01
$1,000,000 or Higher 54 1.03 3,945 3.71
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table B25075, 2022

4.2.1.3 EMPLOYMENT CHARACTERISTICS
Employment trends indicate that “Education, Health, and Social Services” is the top industry in Oakdale, followed by “Manufacturing”, and “Arts, Entertainment, Recreation, and Services” (Table 10). Oakdale 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. The largest employers within the City are Conagra Brands and the Oak Valley Hospital District. Within Stanislaus County, the fastest growing industry is the service industry, which is projected to add around 2,400 workers by 2030 according to the California Employment Development Department. The median earnings for fulltime, year-round workers in Oakdale was $75,679 in 2023, according to the American Community Survey.
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Table 10
Employment by Industry
Industry Type Number Percent
Agriculture, forestry, fishing and hunting, and mining 430 4.2 Education, health, and social services 2281 22.2
Retail trade 895 8.7
Manufacturing 1376 13.4
Arts, entertainment, recreation, and services 1062 10.3 Construction 724 7.0
Public administration 756 7.4
Finance, insurance, real estate, rental and leasing 436 4.2 Professional, scientific, management, administration 901 8.8 Wholesale trade 76 0.7
Other services 461 4.5
Transportation, warehousing, and utilities 817 7.9
Total 10283 100
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table DP03, 2022

4.2.1.4 HOUSING STOCK CONDITIONS
The majority of the housing stock in Oakdale was built between 1970 and 2009. The rate at which housing has been built has varied decade to decade. The highest rate of growth in the number of housing units constructed was 101.6% between 1970 and 1979.

Based on estimates from City staff, there are less than 5 units in need of rehabilitation, and none identified in need of replacement. While the City generally contains a higher concentration of structures built before 1980 in the Census tracts north of East F Street (40- 60%), the units identified by the City as in need of rehabilitation are older structures located to the south of East F Street. For properties that have needed rehabilitation in the past, Code Enforcement staff have worked with Habitat for Humanity to perform necessary rehabilitation. The City will continue to collaborate with Habitat for Humanity to rehabilitate substandard units, as identified in Program 1-3.

Table 11
Year Built of Housing Units
Year Built Number
Built after 2020 19
Built 2010 through 2019 689
Built 2000 through 2009 2110
Built 1990 through 1999 1136
Built 1980 through 1989 1318
Built 1970 through 1979 1143
Built 1960 through 1969 567
Built 1950 through 1959 589
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Built 1940 through 1949 483
Built 1939 or earlier 594
Total 8,641
The housing stock in Oakdale is predominantly made up of single-family homes (Table 12).

Table 12
Housing Units by Type
Housing Units by Type Estimate
2000 2010 2022
Single-family, detached 4265 5733 6481
Single-family, attached 206 401 222
2 286 226 142
3 or 4 191 198 219
5 to 9 142 141 106
10 to 19 82 148 166
20 to 49 204 57 184
50 or more 260 233 649
Mobile home 196 304 472
Boat, RV, van, etc. 17 0 0
Approximately 92 percent of housing units in Oakdale are occupied, with less than 8 percent being vacant or otherwise unoccupied. Of those vacant, only about 1% were vacant and available for rent.

Table 13
Vacancy by Type
Number Percent
Occupied 8,293 92.26%
Vacant 348 3.87%
For rent 89 0.99%
Rented, not occupied 21 0.2%
For sale only 0 0
Sold, not occupied 0 0
For seasonal, recreational, or occasional use 16 0.2%
For migrant workers 0 0
Other vacant 222 2.5%
Total Units 8,989 100%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table B25002 and B25004, 2022
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4.2.1.5 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 like rental subsidies, mortgage repayment, or expiration of usage restrictions. Oakdale has six assisted housing developments, listed in Table 13, Inventory of Assisted Affordable Housing. Oakdale has one affordable housing development, Oak Haven, that is at-risk of conversion to market rate prices within ten years of the start of the housing element period. Program 1-5 is included to monitor the expiring deed restriction of this project and conduct outreach to property owners and residents within the planning period. The potential cost to replace these units, if their affordability were allowed to expire would be approximately $250,000 per unit, for a total of $4,000,000 to replace 16 units versus approximately $2,400,000 to preserve the units.

Entities qualified to assist the City of Oakdale in preserving these units include Visionary Home Builders, The Central Valley Coalition for Affordable Housing, the Stanislaus Regional Housing Authority, and the Central Valley Low Income Housing Corporation.

Potential funding sources locally available to assist in the preservation of these affordable units include Community Development Block Grants (CDBG), HOME grants, and the City’s Housing Fund. The City will closely monitor the status of assisted affordable housing units, and if units are at-risk of converting to market-rate, the City will facilitate the maintenance of those units as affordable housing, as identified in Program 1-5.

Table 14
Inventory of Assisted Affordable Housing
Name Address Affordable
Units
Total
Units
Affordability
End Year Risk Level
Oakridge
Apartments
10 Willowood
Drive 40 41 2064 Low
Garden
Apartments
40 North Lee
Avenue 41 41 2067 Low
Oakdale
Apartments
30 North Lee
Avenue 41 42 2069 Low
Oak Leaf
Meadows 1135 J Street 55 56 2072 Low
Oak Haven 470 East A Street 16 80 2033 Moderate
Heritage Oaks 730 Old
Stockton Road 49 50 2066 Low
Total 242 310

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 425
City of Oakdale 2023-2031 Housing Element

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.

4.2.2.1 EXTREMELY LOW-INCOME HOUSEHOLDS
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 Stanislaus County is $75,886 for a one-person household and $92,837 for a four-person household. Households with an income of $22,765 or less for a one-person household and $27,851 or less for a four-person household are considered as ELI. Many ELI household members 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. As noted previously, the service industry is the fastest growing industry in Stanislaus County. Most service industry jobs are low wage jobs. In Oakdale, nearly 20 percent of the population’s wages in the Northwest census tract were below the poverty level between 2018 and 2022, with the rest of the City at around 10% of the population. Compounding economic factors can make it difficult for low wage earners to find housing in Oakdale as the majority of the housing stock are market rate units.

Overcrowding is uncommon (less than 5% of households) in Oakdale, but ELI households are susceptible to becoming overcrowded. Households within 0 and 50% of the area median income within Oakdale have a lower displacement risk according to the Affirmatively Furthering Fair Housing Data Viewer. This was consistent with the displacement risk identified for low-income households or those earning between 50% to 80% AMI.

All regions of the City contain between 33.8% and 38.5% renter occupied housing units.

There are no significant concentrations of renter occupied units. Over 60% of renters in the Northeast quadrant (68.8% of renters), and Southwest quadrant (60.5% of renters) are overburdened (spend more than 30% of their income on gross rent payment contract rent plus utilities). 59.8% of renters in the Southeast quadrant of the City are overburdened, and 37.1% of renters in the Northwest quadrant are overburdened. Despite bearing the highest rates of poverty, the Northwest quadrant has the lowest rates of cost burden citywide. ELI households are more likely to be renters and overburdened. The City will facilitate the development of housing affordable to ELI households through the implementation of Program 5-2.

Table 15
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
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Source: U.S. Bureau of Labor Statistics, Quarterly Census of Employment and Wages (QCEW), Stockton-Lodi MPO, 2022 Q1 employment

4.2.2.2 SENIOR HOUSEHOLDS
As of 2022, seniors comprise 12.8 percent of the population in Oakdale. According to 2022 Census data, the median income for householders 65 years and older was $46,977.

This is approximately 58% of the 2022 area median income for Stanislaus County. Seniors are also more likely to be reliant on fixed incomes, making stable housing prices a necessity for this group. As shown in Table 16, seniors are more likely to be homeowners than renters.

Table 16
Senior Households by Tenure
Householder Age Owners Renters Total
65-74 years 723 192 915
75+ years 582 404 986
Total 1,305 596 1,901
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table B25007, 2022
Housing and Resources for Seniors
There are two affordable senior housing developments in Oakdale, Oak Haven Apartments and Heritage Oaks. Oak Haven Apartments is an assisted living facility with special assistance for diabetic residents. Sixteen of the 80 units are reserved for affordable housing. Heritage Oaks is an affordable development designed for independent living for seniors. Forty-nine of the 50 units on site are designated as affordable. Another senior living facility in Oakdale is Belmare Senior Living, a facility with assisted living support and memory care. Additional housing resources for senior living include Foothill Oaks Senior Living, Heritage Home (assisted living located in a single family home), Serenity Hill Residential Care, Astoria Senior Living, and Graceful Living at Oakdale. There are no agerestricted mobile home parks in Oakdale.

StanRTA offers Dial-A-Ride services that offer pickup and drop-off from homes to locations throughout Oakdale. The City of Oakdale operates the Gladys L. Lemmons Senior Community Center for adults ages 55 and over. The Senior Center offers a wide variety of programs and services for the senior community: leisure activities, educational opportunities, nutritional lunch, health/wellness/fitness programs, information assistance, social events, art/craft classes, trips, computer classes, movies, volunteer opportunities, and a monthly newsletter.

4.2.2.3 PERSONS WITH DISABILITIES
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 12.6 percent of the Oakdale population has a disability. Of the 2,901 persons with a disability, 2,390 (82 percent) are over the age of 35. The age 427
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group with the highest percentage of individuals with a disability is the 75 years and over age group, with 64 percent of these individuals having a disability.

Table 17
Disability Status by Age Group
Age Group Total
Population
With a
Disability No Disability Percent with a Disability
Total Population 22,986 2,901 20,085 12.6%
Under 5 years: 1,605 0 1,605 0.0%
5 to 17 years: 4,663 302 4,361 6.5%
18 to 34 years: 5,078 209 4,869 4.1%
35 to 64 years: 8,683 1,033 7,650 11.9%
65 to 74 years: 1,542 451 1,091 29.2%
75 years and over: 1,415 906 509 64%
Source: U.S. Census Bureau, American Community Survey 5-Year Estimates Table S1810, 2022
Within Oakdale, 44 individuals have a developmental disability, 45.9 percent of whom are under the age of 18. Data and analysis from Taking Stock: A Comprehensive Housing Report for the San Joaquin Valley – 2022 provides further context on the needs of people with developmental disabilities in Oakdale to supplement American Community Survey (ACS) data.

Table 18
Persons with Developmental Disabilities by Age
City 0 to 17 years 18+ years Total
Oakdale 132 112 244
Source: California Department of Development Services, Quarterly Report, April 2022 Table 19
Persons with Developmental Disabilities by Type
Age Hearing Vision Cognitive Ambulatory Self-care
difficulty
Percent of
population
with a
disability
0 to 17
years
26 30 276 0 62 5.8%
18 to 64 166 106 514 637 282 33.6%
65+ 607 603 351 956 453 58.6%
Source: U.S. Census Bureau, ACS 5-Year Estimates, Table S1810 Note: a single individual may have multiple disabilities. 428
City of Oakdale 2023-2031 Housing Element

As outlined in the US Census Data Glossary definitions and disability terms are defined as follows:
• Hearing: Deaf or having serious difficulty hearing (DEAR). • Vision: Blind or having serious difficulty seeing, even when wearing glasses (DEYE).
• Cognitive: Because of a physical, mental, or emotional problem, having difficulty remembering, concentrating, or making decisions (DREM). • Ambulatory: Having serious difficulty walking or climbing stairs (DPHY).

Programs and Resources
Oakdale residents with a disability can benefit from the General Assistance Program run by the Stanislaus County Community Services Agency, which provides benefits to persons with a disability. Oakdale Family Resource and Counseling Center is open to residents of Oakdale and provides a wide variety of services which includes substance use disorder programs for adults and behavioral health counseling. Oakdale also includes a variety of residential care facilities within City limits that help with providing services to those with disabilities. Serenity Hill Care home provides services to the elderly and strives to help residents remain as independent as possible. Central Valley Autism Project (CVAP) provides children, adolescents, teens and adults with developmental disabilities including autism, the opportunity to maximize their own potential and improve their independence, inclusion, and overall quality of life. While Oakdale does not offer any housing opportunities within the City, there are programs for people with developmental disabilities to get affordable housing through California Housing Financing Agency (CHFA) and Housing and Urban Development (HUD). Additional information for local affordable housing projects is also offered through the Department of Developmental Services (DDS), where people with disabilities can locate affordable housing in their area.

The City was recently awarded a Caltrans Sustainable Transportation Planning Grant for an Accessibility Master Plan. The Plan will enable the City to address deficiencies in the pedestrian infrastructure by identifying and prioritizing solutions through extensive interaction with the public, youth, elderly and the disabled and by committing to an action plan to implement solutions. In addition, people with ambulatory disabilities can benefit from universal design principles and reasonable accommodations to limit residential amenities only accessible with the use of stairs. Program 4-6 (Reasonable Accommodation) is included in the Housing Strategy to evaluate the City’s procedures for providing reasonable accommodations to people with disabilities, and ensure that such accommodations are provided administratively at no cost to the applicant.

4.2.2.4 LARGE HOUSEHOLDS
Existing and Projected Needs
Large households consist of over five persons residing together. There are varying reasons for this, such as large families, multiple generations of a family, multiple families, 429
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or non-related household members residing in the same housing unit. In Oakdale, roughly 15 percent of households (1,200) are considered large households (Table 20).

Table 20
Household Size by Tenure
Household Size Owner-Occupied Renter-Occupied All Households 1-person 880 1,166 2,046
2-person 1,739 797 2,536
3-person 866 563 1,429
4-person 801 281 1,082
5 or more-person 981 219 1,200
Total 5,267 3,026 8,293
Source: U.S. Census Bureau, ACS 5-Year Estimates, Table B25009, 2022 As shown in Table 21, there are 1,489 three-bedroom, 2,015 four-bedroom, and 375 five or more-bedroom units. While the overall number of large units exceed the City’s 1,200 large households, the majority of large units are owner-occupied and may not meet large household needs. There are no rental units with 5 or more bedrooms, and only 286 rental units with 4 bedrooms.

Table 21
Number of Bedrooms by Tenure
Tenure 3 Bedrooms 4 Bedrooms 5+ Bedrooms
Owner-Occupied 693 1,729 375
Renter-Occupied 796 286 0
Total 1,489 2,015 375
Source: U.S. Census Bureau, ACS 5-Year Estimates, Table B25042 Programs and Resources
Oakdale’s previous housing element provided incentives to developers to encourage the inclusion of units with 3 or more bedrooms to accommodate low-income, large family households. This program resulted in the latest affordable housing development in Oakdale including 3-bedroom units to accommodate large family households. Similar provisions have been included in Program 5-2.

4.2.2.5 FARMWORKER HOUSEHOLDS
Existing and Projected Needs
According to the UC Merced Farmworker Health Study (FWHS), published in 2023, farmworkers in California are primarily concentrated in the Central Valley and the Central Coast. The study estimates that more than half of the state’s farmworkers live in the San Joaquin Valley (61%). The FWHS sample prioritized regions with the largest farmworker populations and the San Joaquin Valley accounted for nearly half of surveys (42%).

FWHS respondents were most likely to be renters (92%) than owners, to live in single-family homes (55%), and very few renters relied on employers to pay any or all of their rent (2%).

The research suggests that farmworkers generally experience substandard housing (e.g., 430
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older homes, apartments, mobile homes, motels, garages, or other similar spaces), often requiring repairs such as new roofs, plumbing, heating and cooling systems, and termite clean-up. Poor ventilation and crowded spaces put farmworkers at increased risk for respiratory illnesses such as asthma and infectious diseases like tuberculosis and COVID19.

The FWHS also found that farmworkers statewide faced issues related to the built environment of their homes. More than one-third (37%) reported a "taste of water at home" that was either very bad (24%) or bad (13%) — an indicator of poor water quality and possibly health risks. More than one in three also experienced problems keeping a house cool (39%) or warm (36%), issues that will only increase in time as climate change exacerbates the temperature extremes. Farmworkers also encountered problems related to water and moisture—such as rotting wood (16%), mold (14%), water damage (13%), and water leaks (12%).

Regarding households characteristics, FWHS respondents households were larger than the California average (3.0 persons per household), with a median household size of four persons. Over one-fourth (29%) of farmworkers' households had six or more persons. More than half (55%) of farmworkers reported that two persons (including themselves) slept in their room—a figure somewhat less than the percent married (67%)—but more than onefourth (25%) slept in a room with three or more persons indicating overcrowding.

Of statewide respondents to the FWHS, more than two-thirds (70%) of farmworkers lived in households with one or more children under the age of 18. The median number of children per household was two, and more than two in five (42%) households had three or more children. Only 2% of farmworkers lived in households with children who worked.

As of 2022, 4.2% of the workforce in Oakdale 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 in the area (Table 22):

Table 22
Stanislaus 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
1,071 1,966 2,075 4,041
Farm operations
with 10 (or more)
employees
316 5,418 2,605 8,023
Total 1,387 7,384 4,680 12,064
Source: USDA, National Agricultural Statistics Service, Census of Agriculture, 2022 431
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Table 23 shows migrant worker student population in Oakdale. This group is characterized as children whose parents are migrant workers in agriculture and other related industries and have moved in the past three years. While the Oakdale Joint Unified School District has seen a slight increase in student population over the 2019- 2023 timeframe, Stanislaus County has seen a large decrease in student population from 2021-2022 to 2023.

Table 23
Migrant Worker Student Population
Jurisdiction 2019-2020 2020-2021 2021-2022 2022-2023
Oakdale Joint Unified 65 65 66 67
Stanislaus County 1,823 1,980 1,972 1,751
Source: California Department of Education DataQuest Enrollment Multi-Year Summary 2019-2020, 2020-2021, 2021-2022, 2022-2023
Programs and Resources
Farmworkers in Oakdale have various options for housing from single-family homes to apartment complexes. The City also permits employee housing in the R-A and R-1 zoning districts. Employee housing is treated the same as single-family housing developments.

There are no farmworker housing developments within Oakdale.

The Central Valley Opportunity Center (CVOC) is a non-profit service provider that serves farmworker and low-income populations. The CVOC runs the Stanislaus County Farmworker Resource Center (FRC) that provides emergency services including rental assistance, temporary shelter, and other resources for unemployed and underemployed farmworkers.

The Stanislaus Regional Housing Authority operates four Migrant Farmworker Housing Centers to provide housing to migrant farmworkers in Stanislaus County. Each Center opens during the Spring and closes in the Fall each year. The four centers combine to provide 318 temporary housing units for farmworkers.

4.2.2.6 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

7.34 percent of households within Oakdale are FH households (Table 24). Of the 608 FH households, 173 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 24
Female-Headed Households in Oakdale, 2021
Household Type Number Percent of Total
Households
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City of Oakdale 2023-2031 Housing Element

Total Oakdale Households 8,293 100%
Nonfamily Female Householder 22 0.27%
Female-Headed Family Households 151 1.82%
FH Households with Children Under 18
(No Spouse Present) 435 5.25%
FH Family Households Under the
Poverty Level (No Spouse Present)

No Child(ren)
1 or 2 Children
3 or 4 Children

173
22 126
25 2.09%

0.27%

1.52%

0.30%
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 Housing Choice Vouchers (HCV), which help subsidize rent payments, and public housing units managed by local housing authorities. Additionally, the Stanislaus County Community Services Agency provides programs and services to assist eligible residents of Stanislaus County to meet their basic needs. Programs include temporary cash assistance, general assistance, Medi-Cal, CalFresh, and CalWORKS. Nonprofit organizations and communitybased 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 wellbeing 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.

4.2.2.7 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 those who frequently change their living arrangements ("couch433 City of Oakdale 2023-2031 Housing Element

surfing"), incarcerated individuals, and individuals or families with housing supported by rental assistance like Housing Choice Vouchers.

The Stanislaus Community System of Care (CSOC) Point-In-Time Count data reported twenty-six persons experiencing homelessness in Oakdale in 2024 (Table 25). The 2024 PIT Count saw a slight decrease in homeless population compared to 2023. The 2022 Count was significantly lower than other years due to several factors, including moving the Count to late February, weather factors, and encampment sweeps prior to the Count.

Oakdale contains roughly 4% of Stanislaus County’s population, but roughly 1% of the countywide share of persons experiencing homelessness. The following table details the point-in-time count, and this section identifies available programs and resources available in Oakdale. Given the lack of local housing solutions for persons experiencing homelessness in Oakdale, the City is reliant on a regional approach and by-right approvals of prospective emergency shelters, transitional housing, and supportive housing.

Table 25
Persons Experiencing Homelessness by Shelter Status, 2024 Shelter Status Oakdale Stanislaus County
2022 2023 2024 2022 2023 2024
Unsheltered 0 0 0 946 949 980
Sheltered 0 0 0 911 1,142 1,072
Total 26 22 26 1,857 2,091 2,052
*No local sheltered/unsheltered data for Oakdale.

Source: Stanislaus Community System of Care Point in Time Executive Summary Programs and Resources
The Stanislaus County Community Services Agency serves as the administrative entity for various federal and state grant programs with the intention of assisting homeless individuals and families. The CSOC was awarded a HEAP grant fund of approximately $7,237,000 in 2019. HEAP provides block grant funds for addressing immediate homelessness challenges, supporting emergency housing vouchers, rapid rehousing, shelter construction, and more, distributed through multiple subrecipients.

The City of Oakdale has a constant homeless population of about 24.5 persons. The City has taken direct action to address homelessness by working with regional partners to direct individuals to resources within Stanislaus County. These regional partners include the County Social Services Agency, Women's Haven, the Community Housing and Shelter Services, and the United Way.

Characteristics of People Experiencing Homelessness: According to City staff, people experiencing homelessness within Oakdale are adults who tend to congregate near the Stanislaus River. As the Stanislaus River has not received enough water to create a flooding hazard in recent years, the population tends to occupy space near the river 434
City of Oakdale 2023-2031 Housing Element

year-round. Staff also noted that the population of people experiencing homelessness is increasingly transient.

Current Facilities and Beds: Oakdale does not currently operate any year-round emergency shelter within its city limits. As such, there are 0 dedicated shelter beds available within Oakdale for people experiencing homelessness. Local organizations like the Oakdale Rescue Mission provide meals and referrals, but they do not offer overnight shelter beds. As a result, homeless individuals from Oakdale must seek emergency housing in neighboring communities (e.g. shelters in Modesto or Turlock) or remain unsheltered.

Zoning for By-Right Shelters: Oakdale’s zoning code allows emergency shelters by-right (without a conditional use permit) in at least one zoning district, as required by state law.

In 2015, Oakdale amended its code to permit emergency shelters in the Neighborhood Commercial (C-1) zone and the Light Industrial (L-M) zone. No discretionary approval is needed to establish a shelter in these zones, they can be developed “by-right.” Residential uses are allowed as a part of mixed-use developments in the C-1 zone.

Transitional and supportive housing are likewise allowed by-right in all residential zones.

Services: Oakdale Rescue Mission (ORM) is a faith based Christian non-profit organization that provides meals, clothing, and support resource materials for those who are experiencing homelessness. Women’s Haven provides immediate safety, hotlines, and ways to escape violence. Additionally, they serve to all ages, those with limited English speaking, abuse and neglect survivors and much more. Women’s Haven provides shelter, food, clothing, and support for all those in need. Community Housing and Shelter Services (CHSS) provides emergency sheltering services, housing counseling services, rental assistance, and permanent supportive housing while their vision is to help transition families experiencing homelessness to find permanent housing. 435
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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 Oakdale residents. These programs provide funding for the construction, rehabilitation, or rental assistance for very low-, low-, and moderate-income households.

Federal Assistance Programs
Housing Choice Vouchers (HCV)
The Stanislaus Regional Housing Authority (SRHA) administers the HCV 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 SRHA 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. 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. The City receives its allocation of CDBG funds from the Stanislaus HOME Consortium. Oakdale received $183,985 for the 2023-24 fiscal year. The City of Oakdale will continue the planning, design and engineering on the South First, Second, and Third Streets Improvements project. The project will provide bike, pedestrian and ADA improvements for the area of South First, South Second, South Third Avenues from West G to West J Street (including East H and East I Streets from South First Avenue to South Yosemite Avenue). Due to the overall cost and project changes, the City of Oakdale has had to accumulate a few years of CDBG funding in order to be able to proceed with the construction of the project.

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 436
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City participates in the San Joaquin County program, which administers HOME funds to projects in participating jurisdictions.

The City received $139,079 in HOME funds through the Stanislaus HOME Consortium for the 2023-24 fiscal year.

Section 202/811 Program (Supportive Housing for Persons with Disabilities/Elderly) Under the Section 202 program, non-profit organizations and consumer cooperatives can 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 acquisition, rehabilitation, new construction, and rental assistance.

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.

Local Assistance Programs
GAP Loan Program
GAP Loans provide deferred downpayment assistance loans for up to 20% of the sales price or $15,000 (whichever is less) to low income, first-time homebuyers purchase of homes in Oakdale to help bridge the gap between the cost of a home and what a lowincome household can afford.

Property Rehabilitation Program
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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.

4.3.2.1 SINGLE-FAMILY HOUSING
Single family housing is permitted in the Rural Agriculture (R-A), Single Family (R-1), Duplex Residential (R-2), and Multi-Family Residential (R-3) zoning districts, and upon issuance of a Conditional Use Permit in the General Commercial (C-1) and Neighborhood Commercial (C-C).

4.3.2.2 MULTI-FAMILY HOUSING
Multi-family housing is permitted in the R-3 zoning district and upon issuance of a CUP in the R-2, C-C, and General Commercial (C-2) zoning districts.

4.3.2.3 HOUSING FOR AGRICULTURAL EMPLOYEES
Agricultural employees have several options for housing including single-family and multifamily housing options. Additionally, Oakdale permits employee housing for 6 or fewer employees. The City treats employee housing as single-family dwellings, subject to the same standards and permit requirements as a single-family dwelling in the same zone.

Employee housing is permitted within the R-A and R-1 zoning districts.

4.3.2.4 EMERGENCY SHELTERS AND LOW BARRIER NAVIGATION CENTERS Emergency shelters and low barrier navigation centers are permitted by-right in the C-1 and L-M zoning districts. Oakdale’s zoning regulations will be updated to fully align with the new AB 2339 (2022) requirements for emergency shelters. AB 2339 added specificity to Government Code §65583(a)(4), including a key rule that the designated by-right zone must allow residential uses. Currently, Oakdale’s C-1 zone is primarily commercial/industrial but allows mixed-use projects (e.g. apartments over stores) with a minor use permit, which satisfies the “allows residential” criterion. The updated Housing Element includes Program 1-1 to update definitions and zoning as needed to zone for a variety of housing types – for example, to supplement the existing definition of “Emergency Shelter” to include low barrier navigation centers and to ensure that any written development standards are objective and compliant with State law. The following capacity is available in the applicable zones:
• L-M District: ten (10) vacant parcels, totaling 7.11 acres, and 438
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• C-1 District: two (2) vacant parcels, totaling 0.43 acres.

The combined total of 7.54 acres is sufficient to address the City’s need for emergency shelter capacity. Using the AB 2339 standard of 200 square feet per individual and assuming 100% utilization of available land, these parcels could accommodate a hypothetical maximum of 1,642 persons.

The two vacant parcels within the C-1 District are located near amenities, services, and transportation and will be prioritized over vacant parcels within the L-M District for use as emergency shelter locations. If sites within the L-M District are utilized for emergency shelter locations, the City will provide free transportation to services or offer services onsite, as identified in Program 6-2.

Currently, the City of Oakdale does not have development standards that are only applicable to emergency shelters. As mentioned above, a program is included in this Housing Element to ensure that emergency shelters are subject to objective design standards consistent with AB 2339.

4.3.2.5 TRANSITIONAL HOUSING
Transitional housing is a permitted use subject to the same requirements and standards as residential uses of the same type (e.g., single-family dwelling, multiple-family dwellings, etc.

4.3.2.6 SUPPORTIVE HOUSING
Supportive housing is a permitted use subject to the same requirements and standards as residential uses of the same type (e.g., single-family dwelling, multiple-family dwellings, etc.

4.3.2.7 RESIDENTIAL CARE FACILITIES
Residential care facilities are permitted upon issuance of a CUP in the R-2, R-3, C-1, C-2, C-C, and the Light Industrial (M-1) zoning districts. Program 1-1 is included to allow residential care facilities as a by-right use in accordance with State law.

4.3.2.8 MANUFACTURED HOUSING
The OMC allows manufactured housing that is certified under the National Manufactured Housing Construction and Safety Standards Act of 1974 and attached to a permanent foundation on all lots permitting single-family dwellings. Manufactured housing is permitted in the R-A, R-1, R-2, R-3, and C-2 zoning districts, and upon issuance of a CUP in the C-1 and C-C zoning districts.

4.3.2.9 MOBILE HOME PARKS
Mobile home parks are permitted upon issuance of a CUP in the R-A, R-1, R-2, R-3, C-1, and C-2 zoning districts.

4.3.2.10 ACCESSORY DWELLING UNITS
Accessory dwelling units (ADUs) are permitted in all zones where residences are allowed.
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4.3.3 OPPORTUNITIES FOR ENERGY CONSERVATION IN

RESIDENTIAL DEVELOPMENT
In 2014, Oakdale opted in to the California HERO Program, which finances home improvement projects including: energy and water efficiency upgrades, EV charging upgrades. In addition, Oakdale also complies with and enforces the California Green Building Code and all Title 24 energy conservation requirements.

Locally, the Central Valley Opportunity Center has an Energy Assistance Program that provides home weatherization services to Stanislaus County residents. Eligible projects include installation of energy conservation devices, carbon monoxide safety checks, energy conservation guidance, and minor home repairs.
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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.

4.4.1.1 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 Oakdale area on Zillow.com in July 2024, the average price per acre was approximately $248,000 (Table 26).

Table 26
Land Costs in Oakdale
Location Status Price Acres Price Per Acre
City Address Sold Date $ # $
0 Silver Fox Ct For Sale $299,000 3.7 $80,811
0 Marquette Ln For Sale $425,000 2.79 $152,330
13425 Orange Blossom Rd 06/12/2024 $300,000 1.85 $162,162 57 Savannah Ct 08/14/2023 $275,000 0.46 $597,826
Average Price Per Acre $248,282
Source: Zillow.com, Accessed 7/11/2024

4.4.1.2 AVAILABILITY OF FINANCING
Figure 1
Nationwide Annual Average Mortgage Rates
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4.4.1.3 CONSTRUCTION COSTS
The cost of construction is made up of 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.

Residential construction costs in Oakdale can vary widely based on factors such as the home's design, materials, finishes, and current market conditions. As of early 2025, the average price per square foot for new homes in Oakdale is approximately $277, with prices ranging from $200 to $400 per square foot for standard constructions. Custom-built homes tend to be more expensive, with costs ranging from $200 to $600 or more per square foot, depending on the level of customization and materials used. The construction cost of housing affects the affordability of new housing and is a significant non-governmental constraint to housing in Oakdale.

4.4.1.4 ENVIRONMENTAL CONDITIONS
The following analysis of existing environmental hazards that may constrain housing development within Oakdale has been completed in accordance with Government Code Section 65583.2(b)(4).

Seismic and Geological Hazards
Figure 2
Seismic and Geological Hazard Zones
Source: California Department of Conservation
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Flooding
Oakdale’s Northern boundary is the Stanislaus River and parcels adjacent to the river are within the 100-year flood zone, according to FEMA’s National Flood Hazard Layer (NFHL) Viewer (Figure 3).

Figure 3
Flood Hazard Zones
Source: FEMA National Flood Hazard Layer Database
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Fire Hazards
Fire Hazard Severity Zones (FHSZ) are categorized as Moderate, High, or Very High. The city of Oakdale is not located within a FHSZ. The nearest FHSZ is located East of Oakdale along State Highway 120.

Figure 4
Fire Severity Zones
Source: CAL FIRE Fire Hazard Zones Database

4.4.1.5 AVAILABILITY OF INFRASTRUCTURE
Water and Wastewater
The City of Oakdale is serviced by the Oakdale Irrigation District (OID) to provide water and wastewater services. Oakdale receives the majority of its water from the New Melones reservoir. The availability of infrastructure, including improvements or extensions to developing areas of the City may be necessary prior to development. For some more remote locations, this can limit the development potential of certain properties until adequate services are available. For example, projects may have problems with providing necessary infrastructure in areas that are not adjacent to existing development. To ensure that public facilities will continue to provide adequate services for the citizens of the City of Oakdale, sewer system and water system master plans have been prepared covering a twenty-year planning period. Capacity is sufficient for these 444
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facilities to serve existing development as well as the 1,665 additional residential units envisioned by the City’s RHNA through 2031.

Dry Utilities
Electricity and natural gas are provided by Pacific Gas and Electric Company (PG&E).

The availability of dry utilities does not pose a constraint to development.

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.

4.4.2.1 LAND USE CONTROLS
Use Regulations
The zoning regulations within the Oakdale Municipal Code (OMC) 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, permit types, local processing and permit procedures within the jurisdiction. Table 27 provides details on the zoning districts in Oakdale 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 27
Permitted Uses
Residential Uses R-A R-1 R-2 R-3 C-1 C-2 C-C L-M M-1 M-2 N-O PD Single-family
dwelling of not less
than 900 square
feet

P P P P C N C N N N
C
N
Guest house or
servants’ quarters C P P P N N N N N N C N
Lodging and/or
boarding C C C C C C N N N N N N
Mobile homes P1 P1 P1 P6 C P2 C2 N N N C N
Mobile home park C C C C C C N N N N N N
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Multiple-family
dwellings N N C P C2,4 C5 C2,4 N N N C N
Accessory dwelling
unit P P P P P N C N N N C N
Two single-family
dwelling N N P P6 C2 N C2 N N N C N
Duplex C C P P C2 C C2 N N N C N
Emergency shelters N N N N P7 N C P7 N N N N
Employee housing P P P P6 C2 C2 C2 C C C C N
Residential care
facility

N N C C C C C N C N C N
Supportive housing
Permitted subject to the same requirements and
standards as residential uses of the same type (e.g.,
single-family dwelling, multiple-family dwellings, etc.).

Transitional Housing
Permitted subject to the same requirements and
standards as residential uses of the same type (e.g.,
single-family dwelling, multiple-family dwellings, etc.).

Notes:

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 and are subject to the provisions of Chapter 36-18.24 OMC.

2. Residences in Non-R District. Residential uses in any commercial zoning district shall comply with the development regulations applicable in the R3 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 CM 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 36-2.2A OMC.

Source: Oakdale Municipal Code
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The City has a history of approving residential developments in zones that allow 100% nonresidential development as demonstrated by developments approved in nonresidential zones. The City is actively processing permits for a 16-unit multifamily development proposed on a 0.57-acre site zoned General Commercial (C-2) that is currently occupied by a commercial use. Residential developments within the C-2 District that exceed 5-units are subject to the Multiple Family Residential District (R-3) development standards, which has a maximum residential density of 28-units per acre.

This project yields 100% of the residential capacity for the site, and demonstrates market demand for residential projects in zones that allow 100% nonresidential development.

Additionally, this project follows a trend identified in the nearby City of Lodi. The City of Lodi reviewed development projects in nonresidential zones over a recent five year period, where all five of the identified development projects were residential developments, representing a 100% rate of residential development in nonresidential zones over the period. The City of Oakdale has taken a conservative approach to estimating realistic capacity for sites that allow 100% nonresidential development by applying a 50% reduction to the anticipated unit yield for sites that allow nonresidential development. With this reduction, Oakdale maintains a 34% buffer for its lower income RHNA.

Historically, proposed residential projects within the General Commercial District that exceed 5-units have been required to either obtain a major use permit or rezone to a residential zoning district to exceed the 5-unit cap. Program 3-1 has been included to remove the 5-unit cap within the General Commercial District to affirmatively further fair housing and facilitate the development of a variety of housing types to develop within this zone.

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 OMC are outlined in Table 28. The City does not require minimum unit sizes and defers to the California Building Code for minimum unit sizes.

Table 28
Development Standards by Zoning District
Zoning
District
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-A 8,000 100 (10) 5 35 20 10 10 10 40
R-1 6,0002 60 (10) 10 0.35 35 20 7.5 10 10x 50 25%
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R-2 6,0007 458 (10) 14 35 154 59 10 10x 50 25%
R-3 6,0007 458 (10) 28 50 20 5 10 10x 60 25%
C-1 6,000 50 35 011 011 011 011 36.24
C-2 6,000 35 011 011 011 011 36.24
C-C 35 0 0 0 0 36.24
L-M 608 70 50 0 0 0 36.24
M-1 50,000 8 70 10 0 0 0 36.24
M-2 70 10 0 0 0 36.24
N-O 6,000 35 10 7.5 10 20

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. 6,000 square feet for interior lots and 6,500 for a corner lot, except as provided in OMC ***.

8. At the front property 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
The City of Oakdale includes sites located in nonresidential zoning districts to accommodate the City’s RHNA. Table 28 identifies development standards for these districts.

Table 28
Nonresidential District Development Standards
Zoning District
Residential
Allowed
Approval
Type
Max
Height FAR Parking Requirements
Neighborhood
Commercial
(C-1) Yes
Minor Use
Permit 35ft -
2 spaces per dwelling
unit or 1.5–2 spaces per
unit for multifamily/apartments, plus
guest parking
Central
CommercialMixed-Use only
By-Right
(Second story 35ft

0.3-

3.0 1–1.5 spaces per unit
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Downtown (CC)only with offstreet parking
provided)
General
Commercial
(C-2) Yes
Minor &
Major Use
Permits
depending
on unit count 35ft

0.2-

0.4 1.5–2 spaces per
dwelling unit, plus
guest. Reductions via
shared parking or
review possible
Neighborhood
Office (N-O) Yes
Major Use
Permit for
Mixed-Use
(Some
residential
allowed ByRight) 35ft

0.3-

0.7 2 spaces per unit
Oakdale’s existing development standards for emergency shelters will be reviewed to ensure they do not pose unreasonable barriers. By law, cities may apply written, objective standards for emergency shelters – maximum number of beds, required onsite management, parking, lighting, and security – but these standards must be consistent with state limits. Oakdale’s 2015 ordinance indicated that emergency shelters would not be subject to any requirements beyond those for similar uses in the C1 or L-M zone, aside from allowed objective standards. Similarly, parking requirements for emergency shelters must now comply with AB 139 (2019) – i.e. only require parking for staff, not one space per bed. Oakdale will need to review and revise its zoning code to ensure that emergency shelters are truly feasible. Program 1-1 is included to conduct the review and revision during the planning period.

Oakdale’s C-1 sites were evaluated to ensure they can accommodate enough shelter beds to meet the City’s identified needs. Site must be large enough to house roughly two dozen or more beds, plus support facilities. State guidance (under AB 2339) suggests using about 200 square feet per person to estimate space needs. Using this metric, Oakdale would need roughly 5,000–6,000 square feet of building area to shelter 25–30 people. The prior Housing Element analysis demonstrated that the available sites in the C-1 zone provide sufficient buildable area to meet or exceed this requirement.

Oakdale has the proper zoning, infrastructure, and proximity to services to support an emergency shelter by-right, consistent with AB 2339.

Overall, Oakdale’s zoning framework substantially complies with AB 2339’s mandates by permitting emergency shelters by-right and identifying appropriate sites. Program 1-1 is included to fully meet the new law’s requirements. Oakdale’s Housing Element analysis demonstrates that there is sufficient land and capacity to accommodate the city’s homeless needs, and that identified sites are viable locations with necessary services nearby.
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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 OMC are shown in Table

29. The parking standards in Oakdale are a constraint on development, and Program 3- 4 will be included to reduce required spaces for smaller units and harmonize City standards with the State Density Bonus Law.

Table 29
Parking Standards
Type of Unit Required Parking
Single-Family 1 covered space and 1 paved
Senior Housing
(Deed restricted) 1 for every 3 beds
Multi-Family
2 for each dwelling unit for the 1st 3
units. Each unit above 3: 1.5 spaces.

Number of covered spaces equal
to number of units
Mobile Home
Parks 2 spaces/mobile home space
Height & Lot Coverage
The lowest maximum height in zoning districts allowing residential uses is 35 feet, with a 60-foot maximum in the R-3 zone. Lot coverage standards are similarly consistent with neighboring jurisdictions, and do not pose a constraint to the development of a variety of housing types.

Table 30
Height & Lot Coverage
Zone Height (max) Lot Coverage (max)
R-1 35 ft (25 for accessory
buildings) 50%
R-2 35 ft (25 for accessory
buildings) 50%
R-3 60 ft (25 for accessory
buildings) 60%
C-1 35 ft -
C-C 35 ft, two-story maximum -
C-2 35 ft -
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Accessory Dwelling Unit Requirements
The OMC outlines requirements for accessory dwelling units (ADUs) and junior accessory dwelling units (JADUs), and Program 2-3 includes actions to revise OMC Section 36-18.22 in accordance with California Government Code Section 65852.2.

On and Off-Site Improvements
The OMC outlines regulations regarding both on- and off-site improvements. On-site improvements refer to enhancements made directly to a property or location, such as storm drainage. Off-site improvements typically involve changes or upgrades in the surrounding area, such as infrastructure development or street improvements. If deemed necessary by the Public Works Director, improvements may be deferred if the developer and property owner enter into an agreement with the City. Development improvements required for projects that require a subdivision or a parcel map are as follows:
• The frontage of each lot shall be improved to its ultimate adopted geometric section, including street structural section, curbs, sidewalks, driveway approaches and transitions.
• Storm water runoff from the subdivision shall be collected and conveyed by an approved storm drain system. The storm drain system shall be designed for ultimate development of the watershed and shall be capable of collecting and conveying runoff as required by the city's adopted public works department Standard Specifications. The storm drain system shall provide for the protection of abutting and off-site properties that would be adversely affected by any increase in runoff attributed to the development. Off-site storm drain improvements may be required to satisfy this requirement.
• Each unit or lot within the subdivision shall be served by an approved sanitary sewer system in accordance with the provisions of the Code. • Each unit or lot within the subdivision shall be served by an approved domestic water system, in accordance with the provisions of the Code. • Each unit or lot within the subdivision shall be served by gas, electric, telephone and cable facilities.
• Each parcel or lot within the subdivision that is adjacent to property containing a public facility shall have an approved fence adequate to prevent unauthorized access between the properties.
• Provision shall be made for any and all railroad crossings necessary to provide access to, or circulation within, the proposed subdivision. This shall include the preparation of all documents necessary for application to the State Public Utilities Commission and other applicable agencies, for the establishment and improvement of such crossing. The cost of such railroad crossing shall be borne by the subdivider.
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• Other improvements, including but not limited to, grading, streetlights, fire hydrants, signs, street lines and markings, street trees and shrubs, landscaping, monuments, bicycle facilities, fences, and public transit facilities, or fees in lieu of any of the foregoing, shall also be required as determined by the Public Works Director in accordance with City standards.

In addition to on- and off-site improvements, development impact fees are charged to offset the impact of the new development on public infrastructure and services, such as roads, schools, parks, and emergency services. The City’s impact fees are shown in Table

31. Table 31
Oakdale On- and Off-site Improvement Standards
Required Improvement: Design Standard (minimum):

Local Residential Street Width: 36’
Collector Residential Street Width: 48’
Vertical Curb Section: 6”
Horizontal Width of Curb: 12”
Sidewalk Diameter 5’
Water Supply Pipe Diameter: 8”
Water Main Location: 10’ from centerline
Sewer Service Lateral: 4”
Sewer Main Location: At centerline
Storm Drainpipe 12” inside diameter
In addition to the on- and off-site improvements indicated in the table above, Oakdale requires developers to install streetlights; however, the City defers to Caltrans standards for the required frequency of streetlight placement. Currently, Oakdale does not have standards for landscaping or fire improvements. Oakdale’s subdivision level improvement requirements comply with State standards and are similar to requirements in surrounding communities. Off-site improvement requirements do not apply to multifamily projects on single lots of record. Oakdale’s on- and off-site improvement requirements do not pose a constraint on housing development.

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 452
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conditions (soil quality, terrain, need for grading and environmental mitigation) and the distance to existing utility connections. In general, the denser the development (units per acre), the lower the improvement costs per unit.

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. Additionally, there were no known requests to develop multifamily housing below 80% of maximum density, and the City’s multifamily housing in 5th Cycle developed at 88% of maximum density.

Local Processing and Permit Procedures
City staff utilize a Uniform Application form for all residential development projects to detail the materials needed for each development project. The Uniform Application improves approval certainty by providing applicants with clear understanding and a central resource to begin the permitting process.

Processing times in Oakdale do not pose a constraint to development. The City continues to streamline and improve the development review process, as well as eliminate any unnecessary delays and/or potential restrictions in the processing of development permits. As an example, the City Public Services Department includes the Building and Planning Divisions under one roof (one stop shop). Because of this “one-stop shop,” the average time for processing an application is greatly minimized.

The average time to process a building permit for new residential construction is approximately six weeks. This includes two weeks for site plan review, if it is a new subdivision (otherwise waived), two weeks for plan check, and two weeks for submittal and approval of final plan revisions. Site plan review for new projects usually occurs first and involves a one-stop review by a development review committee that includes the fire, building, planning, and public works divisions. This expedites development review as it takes only one meeting of all these division representatives to complete review and determine code requirements for the project, and thus, saves the applicant time and money. For single-unit projects consistent with zoning (i.e., on a single lot), staff-level review is provided and the applicant proceeds to filing a Building Permit application.

For a multifamily residential project proposed on a site that is consistent with General Plan land use designations and zoning classifications, the City aims for the most streamlined process possible. As with other development types, the application process begins with the City’s Uniform Application. A multifamily development application moves through one of two processes: Site Plan Review or Design Review. The Site Plan Review process is governed by Section 36-19 of the Zoning Ordinance and is generally considered a Staff level review and approval. Design Review is focused on the proposed building exterior 453
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elevations, and projects are generally required to be consistent with City’s Multiple Family Residential Design Expectations. Design Review requires Planning Commission review and consideration. The City strives to streamline multifamily projects under the California Environmental Quality Act (CEQA) with a Categorical Exemption or Section 15183 Initial Study with an Exemption determination. The average timeframe for the City to process a typical multifamily project is 6-12 weeks from the time of complete application. Reduced processing timeframes and increased approval certainty for multifamily developments are further supported by programs in the housing strategy, including utilizing streamlining provisions under applicable State law (see Programs 1-6, 2-4, 3-1, and 3-2).

Pursuant to Oakdale Municipal Code § 36-19.6, the Site Plan Review Committee shall evaluate the Site Plan application to establish whether or not the following findings, and such other findings which may be specified by State law, can be determined, based on the evidence and testimony presented:

A. That the proposed use is consistent with the General Plan and any applicable specific plans adopted by the City.

B. That the design or improvements of the proposed use is consistent with the General Plan and any applicable specific plans adopted by the City.

C. That the site is physically suitable for the type, density, and intensity of the proposed use.

D. That the design or improvements of the proposed use are not likely to cause substantial environmental damage or substantially and unavoidably injure fish or wildlife or their habitat.

E. That the design of the proposed use is not likely to cause public health problems.The committee meets 1-2 times a month to review projects. The time frames associated with securing the necessary development permits are largely a function of the administrative and/or public hearing process and the staff time to review the proposal. City procedures comply with the provisions included in the Permit Streamlining Act and the California Environmental Quality Act (CEQA). The average processing time for single-family and multi-family residential developments are approximately 6-12 weeks.

Typical processing times for permits submitted for review in Oakdale are shown in Table

32. Table 32
Timelines for Permit Procedures and Decision-Making Authority Permit Type Typical
Processing TimeApproval Authority Appeal Authority
Site Plan Permit 60 Days Planning Commission City Council 454
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Conditional Use Permit
Minor 6-8 weeks Public Services Director Planning Commission Conditional Use
Permit Major
8-12 weeks Planning Commission City Council
General Plan Amendment 120 Days City Council Final
Tentative Map 60 Days City Council Final
Parcel Map 60 Days City Council City Council
Annexations 9 months City Council Final
Variance 6-8 weeks Planning Commission City Council
Environmental Impact
Report 9 months Planning Commission or City Council City Council Conditional Use Permit
The City of Oakdale’s Zone Code includes two use permit types – minor and major (Chapter 36, Section 36-20). A use permit is a discretionary process. Upon receipt of an application for a use permit, the Public Services Department will prepare a report regarding the issues and consistency of the request with City policy and standards.

The Planning Commission has the authority to process major use permits, which are reviewed during a noticed public hearing before the Commission. The Public Services Director has the authority to process minor use permits, where applications are reviewed at an administrative hearing, noticed to the public, in a conference room at the Public Services Department. Both the Public Services Director and the applicant have the right to refer a minor use permit application directly to the Planning Commission in lieu of the normal process. The Planning Commission or Public Services Director at the public hearing will determine whether or not the establishment, maintenance, or operation of the use applied for will, under the circumstances of the particular case, be detrimental to the health, safety, morals, comfort and general welfare of the persons residing or working in the neighborhood or the general welfare of the City.

If the following four findings can be made, the use permit is granted:
• The proposed permit is consistent with the City of Oakdale General Plan. • That the project has been reviewed in compliance with CEQA and the appropriate determination has been made.
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• That the project is deemed to be a reasonable extension of existing development patterns in the area.
• That the site for the proposed use has adequate access which means that the site design is of a size and shape to accommodate the proposed use and all yards, open spaces, setbacks, walls and fences, parking areas, landscaping and other features pertaining to the application.

In Oakdale, use permit requests generally comply with the straightforward findings outlined above and are approved. An appeal may be filed in writing within 10 days following the notice of the decision from the Planning Commission or Public Services Director. In the case an appeal is filed, it is referred to the City Council for consideration.

Applications for multiple-family residential require a Conditional Use Permit in R-2, C-2 (Multifamily residential allowed as a permitted use with a preliminary development plan) and C-C (Residences in Non-R District). The Conditional Use Permit (CUP) process may pose a constraint to development for potential projects within zones that require housing projects to obtain a CUP for project approval and Program 3-1(C) is included to address this potential constraint. 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. Condominium and townhouse developments can be approved only under the planned development zoning district process in the C-1 and C-M zones) zoning designations.

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 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, Oakdale is subject to SB 35 streamlining provisions when qualifying projects include at least 10% affordable units. As of August 2024, 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 1-1 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 33 depicts the permitting and processing fees related to housing development in Oakdale. The purpose of these fees is to offset the expenses incurred during the processing, evaluation, 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.
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Table 33
Permitting and Processing Fees
Fee Category FY 2023-2024
Minor Variance $250
Major Variance $4,580
Minor Use Permit $2,000
Major Use Permit $4,675
General Plan Amendment $8,000
Rezoning $8,385
Site Plan Review $2,205
Planned Development $9,255
Subdivisions
Lot Line Adjustment $2,880
Tentative Subdivision Map Amendment $2,730
Environmental
Categorical Exemption $90
Initial Environmental Study $1,710
Environmental Impact Report $10,000
Negative Declaration $1,710
Mitigated Negative Declaration $2,300
Source: City of Oakdale Master Fee Schedule
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 school fees and utility connection fees. The impact fees that are collected in Oakdale are depicted below in Table 34. 457
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Table 34
Development Impact Fees
Type Single-Family (per unit) Multi-Family (per unit)
Streets/ Public Works $4,865 $3,227
Wastewater $2,009 $1,659
Water $7,282 $2,438
Storm Drainage $1,027 $494
Police $982 $655
Fire $1,230 $820
Parks & Recreation $8,917 $5,945
General Government $1,066 $711
Administration (2%) $548 $319
Total $27,926 $16,268
Source: Oakdale FY21-22 AB 1600 Report
Building Codes and Enforcement
Oakdale regulates construction and development through the Building Safety Division.

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, online, or 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 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. The City of Oakdale upholds ADA requirements for new housing development projects during the review of building permit applications.

Reasonable Accommodations
Under the ADA, cities are also obligated to reasonably modify their policies when necessary to prevent discrimination against individuals with disabilities. Section 36-18.32 of the City of Oakdale's Municipal Code establishes the procedure for requesting 458
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reasonable accommodation. This adopted procedure helps to ensure that households have a streamlined process to request improvements and modifications to accommodate a disability.

Requests for reasonable accommodations are required to be in writing and provide the following information: the applicant’s name and address, name and address of the property owner, address of the property for which the accommodation is requested, description of the requested accommodation and regulations, policy, or procedure for which the accommodation is sought, and the reason that the requested accommodation may be necessary for the individual with the disability to use and enjoy the dwelling. Requests for accommodation are reviewed by the Public Services Director, and a decision to either grant, grant with modifications, or deny the request is issued within thirty (30) days.

The written decision issued by the director must be consistent with fair housing laws and based on the following findings: whether the housing, which is subject to the request for reasonable accommodation, will be used by an individual with disabilities, as defined and protected under Federal and State fair housing laws; whether the requested accommodation is necessary to make housing available to an individual with disabilities protected under the housing laws; whether the requested accommodation would impose an undue financial or administrative burden on the City; and whether the requested accommodation would require a fundamental alteration in the nature of the City’s land use and zoning or building program. Written decisions are also required to provide notice of the applicant’s right to appeal the decision. This process does not pose a constraint to housing for persons with disabilities.

Locally Adopted Ordinances
The City of Oakdale’s Oak and Significant Tree Preservation Ordinance aims to preserve oaks and other significant trees to maintain the character and identity of Oakdale. The program also serves the City’s intent to encourage the regeneration of a healthy urban forest that positively contributes to the quality of life in Oakdale. The loss of protected Oak trees can be mitigated by a minimum replacement ratio of one to two 24-inch box trees (of an approved species) for a permit fee of $75. Therefore, the tree preservation program does not pose a significant constraint to housing development. 459

CITY OF OAKDALE
City Council Resolution 2026-XX
Attachment 4
Oakdale Adoption Draft Fair Housing Assessment
460
Adoption Draft
Fair Housing Assessment
June 2026
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5.1 BACKGROUND .................................................................................................................... 2

5.1.1 Housing Element Requirements.......................................................................... 2

5.2 FAIR HOUSING ENFORCEMENT AND OUTREACH CAPACITY.................................................... 2

5.2.1 Compliance with Existing Fair Housing Laws and Regulations............................ 2

5.2.2 Fair Housing Services, Outreach, and Enforcement at a Local Level.................. 6

5.2.3 Complaints, Findings, Lawsuits, Enforcement Actions, Settlements or Judgements Related to Fair Housing and Civil Rights ......................................................... 6

5.2.4 Housing Enforcement and Outreach Capacity: Fair Housing Issues and Contributing Factors ............................................................................................................ 6

5.3 PATTERNS OF INTEGRATION AND SEGREGATION................................................................... 6

5.3.1 Neighborhood Profiles by Block Group & Tract................................................... 7

5.3.2 Zoning & Historic Fair Housing Conditions.......................................................... 8

5.3.3 Land Use and Zoning.........................................................................................10

5.3.4 Race and Ethnicity.............................................................................................10

5.3.5 Persons with Disabilities ....................................................................................12

5.3.6 Familial Status ...................................................................................................14

5.3.7 Income...............................................................................................................15

5.3.7 Poverty ..............................................................................................................17

5.3.8 Racially and Ethnically Concentrated Areas of Poverty and Affluence ...............17

5.4 DISPARITIES IN ACCESS TO OPPORTUNITY ..........................................................................19

5.4.1 Resource Areas .................................................................................................19

5.4.2 Education...........................................................................................................21

5.4.3 Access to a Healthy Environment ......................................................................23

5.4.4 Transportation....................................................................................................27

5.4.5 Economic Development and Job Access ...........................................................29

5.4.6 Housing the Workforce.......................................................................................29

5.5 DISPROPORTIONATE HOUSING NEEDS AND DISPLACEMENT .................................................32

5.5.1 Cost Burden and Severe Cost Burden ...............................................................32

5.5.2 Overcrowding.....................................................................................................34

5.5.3 Substandard Housing ........................................................................................36

5.5.4 Displacement.....................................................................................................37

5.5.5 Homelessness ...................................................................................................40

5.6 CONTRIBUTING FACTORS AND HOUSING PROGRAMS ...........................................................40

5.6.1 Ranking of Contributing Factors.........................................................................41

5.6.2 Contributing Factors and Program Actions.........................................................41

5.6.3 Housing Programs and AFFH Considerations....................................................42

5.6.4 Local Data and Knowledge ................................................................................44

5.7 FAIR HOUSING AND HOUSING SITES....................................................................................55

5.7.1 Segregation and Integration...............................................................................55

5.7.2 Racially and Ethnically Concentrated Areas of Poverty......................................58

5.7.3 Disproportionate Housing Needs Including Displacement..................................58

5.7.4 Disparities in Access to Opportunity...................................................................58

5.7.5 Improved and Exacerbated Conditions ..............................................................58

5.7.6 Sites by Access to Education.............................................................................58

5.7.7 Sites by Access to Healthy Environment............................................................59

5.7.8 Sites by Access to Transportation......................................................................60

5.7.9 Sites by Access to Jobs & Economic Development............................................60 462
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5.1 BACKGROUND
The Fair Housing Act of 1968 requires municipalities to affirmatively further fair housing (AFFH). The aim of this practice is to eliminate discriminatory practices that prevented some people, such as racial and ethnic minorities, from accessing housing. The Fair Housing Act also aims to promote fair housing practices and equal housing opportunities for all, and to create a more just and inclusive housing market. In 2015, the U.S.

Department of Housing and Urban Development (HUD) Rule to Affirmatively Further Fair Housing and California Assembly Bill 686 (2018) mandated that all jurisdictions take 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 in order to protect the jurisdictions’ most vulnerable residents.

5.1.1 HOUSING ELEMENT REQUIREMENTS
Required by Assembly Bill 686, all Housing Elements due on or after January 1, 2021 must contain a Fair Housing Assessment meeting the requirements outlined in the bill. The Fair Housing Assessment must identify key challenges to local fair housing, including 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, and propose meaningful actions in the Housing Element Programs to address them. The findings of key challenges must also be incorporated into the Sites Inventory. Finally, the Housing Element update must include a community engagement process that actively promotes the advancement of fair housing objectives.

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.

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 463
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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%. • California Government Code Sections 11135, 65008, and 65580-65589.8 prohibit discrimination in State-funded programs and in land use decisions.

Local laws in Oakdale and Stanislaus 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 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 Oakdale Municipal Code (OMC) 464
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encompasses the following sections to promote the development of affordable housing and further fair housing:
• Reasonable Accommodation for Persons with Disabilities (OMC 36-18.32) • Density Bonus and Affordable Housing Incentives Ordinance (OMC 36-18.20) Between 2013 and 2022, the City received nine total Fair Housing Outreach and Enforcement (FHEO) inquiries, one on the basis of disability and eight with no specific basis provided. Of those inquiries, the City had three Fair Housing Enforcement and Outreach cases, each with no protected class specified. According to the AFFH Data Viewer 3.0, FHEO inquiries were consistent with the demographics of Oakdale, and the limited basis of data on protected class does not identify whether inquiries were skewed toward any protected class.

The City of Oakdale complies with existing fair housing laws by ensuring that all residents have equal access to housing services, programs, and resources. The City is compliant with the following laws that promote fair housing:
• Fair Housing Act of 1968 – The City of Oakdale has adopted housing policies that prohibit housing discrimination based on protected characteristics and ensure equal access to housing programs and services.
• California Fair Employment and Housing Act (FEHA) (Part 2.8 (commencing with Section 12900) of Division 3 or Title 2) – The City complies with the Fair Employment and Housing Act by upholding policies that prohibit housing discrimination based on protected characteristics and enforces these policies by supporting residents seeking to file a complaint to the FHEO or who wish to pursue legal action. • Government Code 65008 – The City does not discriminate or deny any individual or group of individuals the right to residence, land ownership, tenancy, or other land use based on one’s membership or perceived membership in a protected class, method of financing, and/or the intended occupancy. The City has adopted housing policies that prohibit discrimination based on protected characteristics. Further, the City is committed to conducting outreach and educating residents on Fair Housing Law. Program 4-2 in this Housing Element commits the City to providing information regarding fair housing and services offered in the region and further commits the City to evaluating its efforts on this matter throughout the planning cycle (see Section 2).
• Government Code 11135 et. seq. – The City does not discriminate or deny any individual or group of individuals access to programs or activities operated, administered, or funded with financial assistance from the state, regardless of one’s membership or perceived membership in a protected class. The City included Programs 4-1, 4-2, 4-3, 4-4, 4-5, 4-6, and 5-1 in this Housing Element to promote affordable housing opportunities and resources, including Housing Choice Vouchers, tenant protections, and employee/farmworker housing resources for residents that fall within each of the protected classes (see Section 2).
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• Assembly Bill 686 – The City has included this assessment of fair housing and identifies strategies to increase housing opportunities for all residents, with specific actions to reduce housing disparities for disadvantaged communities (see Section 2).
• Density Bonus Law – The City will update its Density Bonus provisions outlined in the Municipal Code to be consistent with recent changes to the State Density Bonus Law. Program 3-1 regulates this amendment to the Code (see Section 2). • Senate Bill (SB) 35 – The City is subject to SB 35 requirements and will comply with State law as established in this Housing Element through Program 3-2 (see Section 2).
• Rehabilitation Act of 1973 – The City does not discriminate against persons with disabilities and promotes equal opportunities, accessibility, and independence for individuals with disabilities.
• American Disabilities Act – The Chapter 36 of the Oakdale’s Municipal Code establishes procedures for persons with disabilities seeking equal access to housing including reasonable accommodation for persons with disabilities. The City ensures housing developers comply with the American Disabilities Act through permit process review. Program 4-6 is included to amend the City’s Fee Schedule to codify that reasonable accommodation requests are offered at no charge (see Section 2).
• Housing Accountability Act (Gov. Code. Section 65589.5) requiring adoption of a Housing Element and compliance with RHNA allocations – The City will comply with the Housing Accountability Act by approving eligible housing development projects, including those with at least 20 percent affordable units to lower-income households.
• No Net Loss Law (Gov. Code Section 65863) requiring that adequate sites be maintained to accommodate unmet RHNA allocations – The City complies with the No Net Loss Law by identifying sites that can accommodate the City’s RHNA. • Limits on Growth Controls Law (Gov. Code. Section 65302.8) – The City complies with the Limits on Growth Controls Law. The City has not adopted any mandatory general plan elements which limit the number of housing units. • Housing Element Law (Gov. Code Section 65583(c)(5),(c)(10) – The City has included this analysis of fair housing and identifies strategies to increase housing opportunities for all residents, with specific actions to reduce housing disparities for lower-income households.
• Least Cost Zoning Law (Gov. Code. Section 65913.1) – The City complies with this State law by designating and zoning sufficient vacant land for residential use with appropriate standards, in relation to zoning for nonresidential use, and in relation to growth projections of the general plan to meet housing needs for all income categories as identified in the Housing Element.
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• Excessive Subdivision Standards Law (Gov. Code. Section 65913.2) – The City complies with this law in that the jurisdiction does not impose criteria for design, as defined in Section 66418, or improvements, as defined in Section 66419, for the purpose of rendering infeasible the development of housing for any and all economic segments of the community.

5.2.2 FAIR HOUSING SERVICES, OUTREACH, AND ENFORCEMENT

AT A LOCAL LEVEL
The City supports fair housing by collaborating with Project Sentinel, an organization that educates community members and housing providers on fair housing practices, resolves tenant-landlord disputes, and offers housing counseling.

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 that there were nine FHEO inquiries and 3 FHEO cases in Oakdale.

5.2.4 HOUSING ENFORCEMENT AND OUTREACH CAPACITY: FAIR

HOUSING ISSUES AND CONTRIBUTING FACTORS
The City of Oakdale manages fair housing disputes through Project Sentinel, as discussed in Section 6.3.2.

5.3 PATTERNS OF INTEGRATION AND SEGREGATION
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. This section of the Fair Housing Assessment 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 467
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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.

5.3.1 NEIGHBORHOOD PROFILES BY BLOCK GROUP & TRACT
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 Oakdale 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 Oakdale, offering a standardized framework to compare neighborhood conditions and to inform placebased strategies to support housing opportunity, infrastructure planning, and equitable growth patterns across the community. Quadrants identified are roughly framed by the major arterials Yosemite Avenue (north-south thoroughfare) and Highway 108 (westeast), and all include portions of unincorporated Stanislaus County outside City limits. • Northwest (NW) Oakdale – Block Groups 11-15
The northwest quadrant of the City includes five block groups including Moderate, High, and Highest Resource Areas. This quadrant includes the Crane Crossing Specific Plan Area and portions of Downtown Oakdale. • Southwest (SW) Oakdale – Block Groups 21-24
The City’s southwest quadrant includes Oak Valley Hospital. Resource areas cover a range of Moderate, High, Highest, and one block group with insufficient data.
• Northeast (NE) Oakdale – Block Groups 41-43
Northeast Oakdale includes part of Downtown Oakdale and sites within the East F Street Specific Plan Area. The three block groups are designated as Moderate Resource, Highest Resource, and one block group with insufficient data. • Southeast (SE) Oakdale – Block Groups 51-52
The City’s southeast quadrant comprises a large block group with insufficient data, comprising City and unincorporated commercial and industrial properties, and one High Resource block group.
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Table 1
Oakdale Neighborhood Profiles by Tract, Quadrant & Census Block Group Block Group Parent Tract Quadrant Resource Area Population (Block)
Population
(Tract)
060990002011
6099000201 NW
Highest 1,172
5,821
060990002012 Highest 1,970
060990002013 Moderate 741
060990002014 High 574
060990002015 Moderate 1,710
060990002021
6099000202 SW
High 836
7,963
060990002022 Moderate 1,341
060990002023 High 1,643
060990002024 Highest 3,539
060990002041
6099000204 NE
Moderate 2,316
10,201
060990002042 Moderate 914
060990002043 Highest 2,142
060990002051
6099000205 SE
Moderate 887
060990002052 High 3,846
Source: California State Treasurer, 2024 CTCAC/HCD Opportunity Map

5.3.2 ZONING & HISTORIC FAIR HOUSING CONDITIONS
The federal practice of redlining was implemented beginning in the 1930s. In the northern San Joaquin Valley, the practice of redlining was implemented exclusively in the counties of Sacramento, San Joaquin, Fresno, and Kern. Stanislaus County was substantially undeveloped at that time – Modesto contained just 6% of its present-day population – and the post-WWII development boom paved the path of drastically expanded housing in Stanislaus County through predominantly single-family patterns of development.

Stanislaus County’s largest postwar expansion of population on a percentage basis occurred in the 1940s (69.9%), but Oakdale added the most residents in the 2000s with over 5,000 additional residents compared to 1990. Oakdale experienced a slowdown in housing production and population growth over the post-Recession 2010s with a 12.1% growth in total residents, the lowest percentage growth recorded in over a century.

Despite the absence of the practice of redlining, the City of Oakdale has a high proportion of R-1 single-family zoning relative to other zones. Single-family zoning is not inherently exclusionary, yet 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, more affordable types of residential uses.

Implementation actions to incentivize missing middle housing (e.g. townhomes and 469
City of Oakdale 2023-2031 Housing Element

multiplexes) are included in Program 1-6: Missing Middle Housing through implementation of SB 684, SB 1123, and SB 9 along with consideration of an SB 10 implementation ordinance. This action was included to comply with new State laws and respond to strong support for missing middle housing types such as accessory dwelling units (ADUs) identified by the public in the Housing Needs & Opportunities Survey.

In California, one of the primary constraints to new housing development is the time and cost associated with the local entitlement process. Projects often require environmental review under the California Environmental Quality Act (CEQA), multiple discretionary approvals, and coordination among City departments, which can extend timelines and create uncertainty for applicants. To address these constraints, the City implements State housing streamlining laws throughout the Housing Strategy in a manner that establishes clear, objective, and expedited approval pathways when statutory criteria are met.

Figure 1
Historic Redlining Map, City of Stockton
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City of Oakdale 2023-2031 Housing Element