City Council and Concurrent Authorities
November 19, 2024

Housing Action Plan (HAP)
for the City of Stockton
Draft | September 2024
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 1
Housing Action Plan (HAP)
for the City of Stockton
Draft | September 2024
803 2nd Street, Suite A | Davis, CA 95616 | t (530) 750-2195 101 Parkshore Drive, Suite 200 | Folsom, California 95630 | t (916) 245-7500 | www.PlaceWorks.com Prepared by:

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN2
Acknowledgments
The City would like to thank all the individuals and groups who provided feedback and assisted City staff in preparing the Housing Action Plan and Neighborhood Action Plans.

City Council
• Mayor Kevin Lincoln II
• District 6 Vice Mayor Warmsley
• District 1 Councilmember Padilla
• District 2 Councilmember Wright
• District 3 Councilmember Blower
• District 4 Councilmember Lenz
• District 5 Councilmember Villapudua
Planning Commission
• Waqar Rizvi, Chair (District 2)
• Greg Thompson, Commissioner (At-Large)
• T erry Hull, Commissioner (District 3)
• Anne N. Mallett, Commissioner (District 4)
• Gurneel Boparai, Commissioner (District 5)
• Brenda Jones, Commissioner (District 6)
• Vacant, Commissioner (District 1)
Participants
• Central Valley Low-Income Housing (CVLIHC)
• Cort Companies (now Burns Group)
• Enterprise Community Partners
• Mahala Burns
• Little Manila Rising
• National Association for the Advancement of
Colored People (NAACP)
• Reinvent South Stockton Coalition (RSSC)
• Stocktonians Take Action to Neutralize Drugs
(STAND)
• The Housing Authority of San Joaquin County
• Visionary Home Builders
• St. Mary’s Dining Room
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 3
Table of Contents
Executive Summary 7
Main Takeaways 7
Main Solutions 8
The Intent of the Action Plans 8

1. Introduction 9
Purpose and Applicability 9
How to use this Document 9
Relationship to other Documents and Efforts 10
Public Feedback 10
Amendments 11

2. Housing Market and Needs 13
Main Takeaways 13
Main Solutions 13
Demographic Characteristics and Trends 14
Housing Market Conditions 25
Recommended Actions 36

3. Housing Supply 42
Main Takeaways 42
Main Solutions 42
Estimated Demand Versus Total Capacity 43
Undeveloped Unincorporated Areas 51
Transformative Areas 56
Priority Sites 58
Recommended Actions 66
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN4

4. The Development Process 69
Main Takeaways 69
Main Solutions 69
Housing Categories 70
Where is Housing Allowed? 70
Permanent Housing 70
Transitional Housing 80
Emergency Shelters 82
Recommended Actions 90

5. Affordability and Definitions 95
Housing Cost and Affordability 95
Governmental and Non-Governmental Constraints 96

6. Neighborhood Action Plans 98
Background 98
Neighborhood Action Plans Content 98
How to Use the Plans 98
South Airport Way Neighborhood Action Plan 99
Little Manila Gleason Park Neighborhood Action Plan 125 Cabral Station Area Neighborhood Action Plan 155
Appendices List
Appendix 1- Demographic Trends and Market Conditions Update- July 2022 Appendix 2- Residential Displacement Assessment- April 2023 Appendix 3- Adopted Local Homelessness Action Plan (LHAC) Appendix 4- Housing Type (Missing Middle) Analysis
Appendix 5- Priority Sites Analysis
Appendix 6- Tables and Maps
Appendix 7- Housing Action Plan (HAP) Action Table
Appendix 8- Neighborhood Action Plans Existing Conditions Report Appendix 9- Neighborhood Action Plans Outreach Summary
Appendix 10- Neighborhood Action Plan (NAP) Action Matrix Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 5
List of Tables and Figures
Table 1: Stockton Housing Plans Relationship 12
Figure 1: Population Growth by Jurisdiction, 2010-2020 14 Figure 2: Population Age Distribution, Change from 2010 to 2020 15 Table 2: Population and Household Growth 15
Table 3: Distribution of the Population by Race and Ethnicity, 2010 and 2020 16 Table 4: Disability Status and Disability Type, Persons Five Years and Older, 2020 17 Table 5: Homeless Point-in-Time (PIT) County, San Joaquin County, January 2022 18 Figure 3: Nominal and Inflation Adjusted Median Income, 2010 and 2020 19 Figure 4: Racially and/or Ethnically Concentrated Areas of Poverty by Census Tract, 2018 20 Figure 5: TCAC/HCD Opportunity Scores by Census Tract, 2022 21 Figure 6: Unemployment Rate, 2010 to 2021 22
Table 6: Housing Problems by Tenure and Income Level, City of Stockton, 2014-2018 Five-Year Sample 23 Table 7: Employment by Industry, 2016-2020 24
Table 8: Population, Household, Housing, and Employment Projections, 2020-2050 25 Figure 7: Housing by Units in Structure, 2016-2020 Five-Year ACS 26 Figure 8: Residential Building Permits, 2000-2021 26
Figure 9: Percent of Households by Tenure, 2010 and 2020 27 Figure 10: Percent of Housing Stock by Tenure and Units in Structure, 2020 28 Figure 11: Functional Vacancy Rate by Tenure, 2020 28
Table 9: Multifamily Residential Market Summary by Unit Size, City of Stockton, Q1 2022 29 Table 10: Affordable Rental Rates, San Joaquin County, 2022 30 Table 11: Home Sale Distribution, City of Stockton November 2021 to April 2022 31 Figure 12: Median Home Sale Price, All Unit Types, February 2012 to April 2022 32 Table 12: Affordable Home Sale Prices, 2022 33
Figure 13: Historical Mortgage Rates, 30-Year Fixed 35
Table 13: Estimated Total Housing Capacity 44
Figure 14: RHNA Housing Capacity Site Map 45
Figure 15: Underutilized Properties 47
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN6
Table 14: Adaptive Reuse Proforma 50
Figure 16: Underutilized Parcels by Neighborhood 52
Figure 17: Unincorporated Island Community (“County Islands”) and DUCs 55 Table 15: Transformation Area Summary 56
Figure 18: Transformation Areas Map 57
Table 16: Breakdown of Deficiency Cost 58
Table 17: Area, Issues, Project and Potential Funding 61 Table 18: Site Information 63
Table 19: Financial Resources for Housing Activities 74 Table 20: Local Home Builders 79
Table 21: Existing Overnight and Emergency Facilities 83 Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 7
Executive Summary
As the housing crisis in California continues,
innovative approaches and tools are needed
to achieve a prosperous and competitive
economy while preserving vibrant, sustainable
communities connected by an efficient and well-
maintained transportation network. Like many
cities in the state, Stockton’s housing crisis has
worsened in the past decade, with housing prices
and rent increasing while incomes have not kept
up. Over 115,000 households are paying more
than 30% of their income for housing, putting
them at risk of losing their homes. COVID-19 has
made the situation worse, with unemployment
rates increasing and the city seeing a decline in
pollution in 2022 for the first time in years.

Main Takeaways
While the City faces many challenges
in meeting the housing needs of its
residents, the list below highlights the five
main challenges for the City.
▶ Market constraints restricting sustain-
able housing production, leading to
separate concentrations of above-
market and below-market regions of
the City.
▶ Inadequate Infrastructure in older
urban and rural areas of the City.
▶ Financial challenges for both the
private and public sectors to fund
the necessary hard and soft cost in
producing more homes.
▶ An increase in the homeless popula-
tion and housing and supportive
needs for that increasing population.
▶ Need for clarity, focus, and collabora-
tion to achieve housing objectives.

This includes policy creation, regula-
tory standards, financing, and regional
coordination.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN8
Main Solutions
The following summarizes major steps the City
can take to address the main housing challenges.
▶ Increase Public-Private Partnerships for
policy creation and funding. Includes the use
of special financing districts, incentivized
zoning and funding, reliance of private agree-
ments (i.e., Development Agreements), and
enhanced regulations and exactions.
▶ Proactive coordination of policy with in-
frastructure planning and funding in areas
that will result in the largest public benefit
for the community. These areas include the
downtown business district, marina, as well
as south and east Stockton communities.
▶ Increase wealth building opportunities in
Disadvantage Areas. This includes job train-
ing, education, and supportive service op-
portunities, in addition to increasing property
valuation from civic and private investment.
▶ Enhance communication, both internally
for the City and externally with the public, in
defining and acting on challenges to housing
production. This includes policy direction to
staff, proactive marketing of City resources
and opportunities, enhanced communication
with residents and community groups, and
enhanced permit review coordination.
▶ More education and online tools to empower
residents, community partners, and potential
housing developers. This includes online
resources, partnerships, and training op-
portunities to empower more collaboration
in addressing the City’s housing and equity
needs.

The Intent of the Action Plans
The city utilizes multiple plans, reports,
and standards to address both current
and future housing needs. Although
some of these reports, such as the Hous-
ing Element and Consolidated Plan, are
mandatory and useful, the combination
of information and direction they contain
can often be overwhelming and difficult for
residents, developers, and staff to put into
action. T o improve the implementation of
housing efforts, the city developed a Hous-
ing Action Plan (HAP) for the entire city and
three Neighborhood Action Plans (NAP)
specifically tailored to certain communities.

These plans aim to make housing actions
more organized, comprehensible, and
direct. Although the plans do not establish
new housing objectives, regulations, or
financing, they offer suggestions and
clarification to enhance the plans and ac-
tions taken by City employees throughout a
five-year period.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 9

1. Introduction
Purpose and Applicability
Stockton is creating a Housing Action Plan (HAP)
alongside its 2023-2031 Housing Element. The
HAP will function as a guide to housing develop-
ment and increase production of new housing
through incentives and best practices. The
Housing Element will address long-term needs.

The Stockton HAP is divided into three sections
to identify strategies that will lead to housing
production. Those sections include:
▶ Housing Market and Needs: The HAP sum-
marizes the City’s housing policy framework,
including policy documents like the General
Plan and Development Code. It also provides
an overview of Stockton’s current housing
market conditions and needs, highlighting
the housing types in greatest demand and
important findings from the fair housing as-
sessment.
▶ Housing Supply: The second section of the
HAP summarizes the current inventory of land
suitable for housing development, including
properties identified as part of the Housing
Element sites inventory, plus other land that
may effectively supplement the Housing Ele-
ment sites inventory. In addition, the City also
identified a set of housing priority sites that
are intended to meet priority housing needs
and offer the potential to have transformative
impacts in underserved neighborhoods.
▶ The Development Process: The HAP’s third
section covers current regulations for building
various housing types in the city, including
development standards and financial analysis
examples. It also includes a list of resources
for constructing new housing. The section
also summarizes the stages in creating new
housing, from pre-development to stabiliza-
tion. Resources like funding, financing, and
partnerships are available for each stage.

Each section will identify specific challenges to
the respective subject material and make recom-
mended actions that further implement Housing
Element goals and policies and fill gaps in the
City’s existing policy and program framework.

How to use this Document
The HAP is structured to be useful for the public,
as well as anyone else interested in encouraging
sustainable development patterns, improving
market conditions, and housing security, reduc-
ing vehicle miles traveled (VMT), or efficiently
investing public sector dollars to maintain and
improve the existing housing stock and increase
the overall supply of housing. The following is
a recommended approach for how to best use
this document based on the reader’s goals and
interests.
▶ Homeowners/Renters/Small Businesses/
Small-Scale Developers: Use this docu-
ment to understand better how an individual
property, or group of properties, fit with
neighborhood and City housing objectives,
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN10
and to identify what types of housing are
allowed and would be the best fit for both the
property and the surrounding market.
▶ Housing Advocates/Non-Profits and
Service Providers: Use this document to
understand the City’s housing objectives and
the reader’s role in helping the City and other
local stakeholders achieve those objectives,
including opportunities to get involved with
supporting projects in specific neighbor-
hoods and on specific properties.
▶ Developers/Home Builders: Use this docu-
ment to understand the larger regulatory
context and housing policy framework within
the City of Stockton and how larger projects
may best fit within the community and help
to implement the City’s long-term vision. This
document provides information on what
the City is doing to help create a supportive
environment that can bring transformative
projects in its residential and mixed-use areas
to fruition and make them successful over the
long term.
▶ City Staff/Officials: Use this document as
a reference for decision-making that synthe-
sizes the City’s housing-related policies and
programs. In determining that a project is
consistent with, or furthers the HAP , City staff
and officials can be confident that the project
furthers the City’s overall vision for sustain-
able housing development, neighborhood
enhancement, and housing production to
meet diverse community needs.

Relationship to other Documents and
Efforts
Stockton has implemented plans and programs
to achieve its housing goals. The HAP serves as a
link between these initiatives and highlights areas
that require improvement. See Table 1 for more
information.

Public Feedback
Between Fall 2022 and Spring 2024, City staff
sent thousands of mailed notices to owners,
dozens of notices to the Record and email group,
hosted over fifteen (20) workshops, conducted
dozens of interviews, and held numerous meet-
ings with residents and stakeholders. Each of the
outreach efforts is summarized below.

Workshops
In addition to stakeholder and property owner
meetings, the following housing-related Work-
shops were scheduled that involved feedback
incorporated into the Actions Plans.
• 9/14/22: Land Inventory Public Workshop #1
(Priority Sites Discussion)
• 10/19/22: Housing Element/Housing Action
Plan Kick-Off Meeting
• 11/17/22: Neighborhood Action Plan
Workshop
• 11/30/22: Land Inventory Priority Site Owners
Meeting (Priority Sites Discussion)
• 2/28/23: Land Inventory Public Workshop #2
(Priority Sites Discussion)
• 4/19/23: Housing Action Plan Public
Workshop #2
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 11
• 6/7/23: Little Manila/Gleason Park
Neighborhood Action Plan Workshop
• 6/13/23: Cabral/East Cabral Neighborhood
Action Plan Workshop
• 6/15/23: South Airport Neighborhood Action
Plan Workshop
• 10/12/23: Action Plan Planning Commission
Workshop
• 2/25/24: Little Manila/Gleason Park Public
Workshop
• 3/20/24: South Airport Public Workshop
• 3/26/24: Action Plan Public Workshop
Interviews
T o help inform the Stockton HAP , City staff,
and the consultant team conducted various
interviews with various stakeholders ranging from
for-profit developers to non-profit housing devel-
opers, landholders, social service agencies, and
community-based organizations (CBOs). Below
is a brief list:
• Central Valley Low-Income Housing (CVLIHC)
• Cort Companies (now Burns Group)
• Enterprise Community Partners
• Grupe Huber Company
• Little Manila Rising
• National Association for the Advancement of
Colored People (NAACP)
• Reinvent South Stockton Coalition (RSSC)
• Stocktonians Take Action to Neutralize Drugs
(STAND)
• The Housing Authority of San Joaquin County
• Visionary Home Builders
Amendments
The HAP is intended to be a living document,
updated to reflect current conditions and needs.

For example, the City is updating the Develop-
ment Code to be consistent with the Envision
Stockton 2040 General Plan. The draft HAP was
prepared based on the updated draft Develop-
ment Code as of the time that the HAP was
being prepared. The HAP should be updated for
consistency once the Development Code Update
is complete.
▶ Monitoring and Implementation: Com-
munity Development staff will monitor the
need for changes to the HAP and will provide
recommendations to the Community Devel-
opment Director and/or the City Council as
needed, but not less than every five years and
within one year of each 8-year Housing Ele-
ment Update.
▶ Minor Changes: Relatively minor changes
and updates may be made to the Stockton
HAP as needed to keep the document current
with the approval of the Community Develop-
ment Director.
▶ Major Changes: Major Changes to the Stock-
ton HAP may be made with final approval
from the Stockton City Council.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN12
Table 1: Stockton Housing Plans Relationship
Document Role Relationship to HAP
Responsible
Party
General Plan
Primary policy document for the City.

Includes goals and policies for land use,
safety, community health, mobility, and
other topics. It is the legal basis for all
project decisions.

Establishes the broad framework
for where housing of different types
should be developed within the City.

The HAP recognizes that housing
development needs to be consistent
with the General Plan.
▶ Community
Development
Department
Housing Element
It is a required element of the General
Plan and is updated every 8 years.

Focuses on housing goals and policies
and maintaining property for future
housing.

The Housing Element of the General
Plan outlines the types and amount
of housing the City plans to build and
maintain, while the HAP specifies the
necessary actions to achieve these
goals.
▶ Community
Development
Department
Development Code
The primary regulatory tool for
the General Plan. Includes zoning,
housing typologies, and development
standards.

The Development Code and HAP
promote housing construction with
clear guidance and simplified methods.
▶ Community
Development
Department
Neighborhood
Action Plans
(Cabral, Little Manila/
Gleason Park, South
Airport Way)
Individual action plans tailored to the
needs of three neighborhoods.

NAPs articulate specific policies
and objectives for individual
neighborhoods, and the HAP provides
direction for development on specific
sites to help achieve those objectives.
▶ Community
Development
Department
Continuum of Care
A program to promote community-
wide discussion and commitment
to ending homelessness. The City
of Stockton participates in the San
Joaquin Continuum of Care.

The HAP provides direction to produce
housing types such as emergency
shelter, transitional and supportive
housing, and affordable housing that
address needs along key points of an
individual or family’s progression along
the continuum between homelessness
and permanent housing.
▶ Economic
Development
Department
Consolidated Plan
A City document that HUD requires
to plan for the expenditure of federal
funding from HUD for housing and
related investments.

The HAP identifies how funding
covered by the Consolidated Plan can
be coordinated with other resources
to achieve desired housing and related
outcomes.
▶ Economic
Development
Department
Regional Homeless
Action Plan (RHAP)
Adopted June 12, 2022, identifies
challenges and solutions for Stockton’s
homeless population.

The HAP does not make additional
recommendations beyond the LHAP .

The HAP outlines current development
trends and processes for establishing
emergency, transitional, and supportive
housing facilities.
▶ Economic
Development
Department
Exhibit 1 - Housing and Neighborhood Action Plans

2. Housing Market and Needs
The following chapter of the Stockton HAP summarizes current conditions and trends within the local housing market. The purpose is to provide residents (both new and existing), property owners, com- munity groups, and prospective developers with general guidance regarding the community’s needs and the conditions that may influence the feasibility of housing in the City of Stockton. Below is a summary of some of the key findings of the analysis. Additional research and information can also be found in Appendix 1’s Demographic Trends and Market Conditions Update and in the City of Stockton 2023-2031 Housing Element.

Main Takeaways
▶ Market constraints and the need
for enhanced infrastructure influ-
ence Stockton’s housing produc-
tion. Governmental constraints
do not seem to be an issue.
▶ Current development trends only
strengthen existing markets and
do not support sustainable hous-
ing or income diversity.
▶ Stockton has a higher percentage
of minorities and low-income
communities when compared to
the region and state averages.
▶ Key solutions to improve disad-
vantaged communities should
include diversifying income levels
for communities and activities
that lead to wealth creation for
lower-income households.
▶ City efforts and Private invest-
ment cannot achieve major tasks
on their own. Both groups do not
have the funding or resources to
pay for needed items.

Main Solutions
▶ While the City cannot directly change the housing market, the city can engage in activities that help to reduce the feasibility gap in projects by providing incentives, ad- equate infrastructure and partnering with private groups. ▶ The City should explore activities that provide equal access to supportive services and encourage efforts to
create wealth for residents in disadvantaged communities. ▶ Proactively engage in public-private partnerships tied directly to City projects and projects that can demonstrate direct public benefit.
▶ Explore Policy and Land Use amendments that would pro- vide more flexibility for future development, particularly in infill and brownfield locations. This includes more re- quirements and incentives to diversify housing types and income levels by changing the General Plan and zoning
requirements. This would require diversification of the housing stock in Stockton, with allowances and waivers
for projects that demonstrate alignment with documented community housing needs.
▶ Consider adoption of one or more dedicated funding
source for community housing programs, such as a parcel tax or an increase in the real estate transfer tax, among other options. The City should also aggressively target acquisition of competitive grant funding from relevant
state and federal sources.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN14
Demographic Characteristics and
Trends
Population and Household Growth
Stockton and San Joaquin County experienced
significant population and household growth
in the early- to mid-2000s, but growth slowed
after the Great Recession. Between 2010 and
2020, Stockton added 10% more residents, while
the county added 14%. Growth in the county
shifted away from Stockton to other communities
like Lathrop and Manteca. The annual rate of
population growth in Stockton between 2010
and 2020 was 0.8 percent, or nearly half the 1.8
percent experienced over the prior decade (i.e.,
2000 to 2010). While other communities in San
Joaquin County grew more rapidly in recent years
on a proportionate basis, Stockton is the largest
urban center in San Joaquin County and had the
largest absolute growth (i.e., roughly 29,100 new
residents over the decade).

Population Age Distribution
The age of residents affects their housing needs.

Younger people prefer smaller units, while
middle-aged households need more bedrooms.

Older households downsize. Younger households
usually rent, while middle-aged ones can afford
homeownership. The Stockton population is
mostly between the ages of 25 and 64, with one-
third under 18 and 12 percent over 65. There
was a decline in residents under 25 over the last
decade and an increase between 25-44 years,
indicating a shift towards prime working age.

Figure 1: Population Growth by Jurisdiction, 2010-2020
Sources: U.S. Census Bureau, Decennial Census 2000, 2010, and 2020.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 15
Table 2: Population and Household Growth
Population 2000 2010 2020 Percent Change
2000-2010
Percent Change
2010-2020
City of Stockton 243,771 291,707 320,804 19.7% 10.0%
San Joaquin County 563,598 685,306 779,233 21.6% 13.7%
Households 2000 2010 2020 Percent Change
2000-2010
Percent Change
2010-2020
City of Stockton 78,556 90,605 97,736 15.3% 7.9%
San Joaquin County 181,629 215,007 241,119 18.4% 12.1%
Sources: U.S. Census Bureau, Decennial Census 2000, 2010, and 2020.

Figure 2: Population Age Distribution, Change from 2010 to 2020 Sources: U.S. Census Bureau, Decennial Census 2000, 2010, and 2020.

-5%
0%
5%
10%
15%
20%
25%
30%
35%
Under 18 18-24 25-34 35-44 45-54 55-64 65 or older
-1.0% -4.0%

12.4% 12.3%
-0.1%

9.8%

32.0%
Percent Of Population

AGE CATEGORY
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN16
Race and Ethnicity
Stockton is a minority majority community.

Hispanics represent the largest subgroup at
44% of the population. Other significant groups
include Asians, non-Hispanic Whites, and African
Americans. The largest growth occurred among
Asians, African Americans and persons of mixed
race/ethnicity.

Table 3: Distribution of the Population by Race and Ethnicity, 2010 and 2020 Racial or Ethnic Group
2010 2020 Change
Number Percent Number Percent Number Percent
Hispanic/Latino (a) 117,590 40% 141,601 44% 24,011 20%
Not Hispanic/Latino 174,117 60% 179,203 56% 5,086 3%
White 66,836 23% 54,765 17% (12,071) -18%
Black/African American 33,507 11% 38,178 12% 4,671 14%
Native American 1,237 0% 1,237 0% - 0%
Asian 60,323 21% 67,738 21% 7,415 12%
Native Hawaiian/Pacific Islander 1,622 1% 2,440 1% 818 50% Other 470 0% 1,608 1% 1,138 242%
Two or More Races 10,122 3% 13,237 4% 3,115 31%
Total Population 291,707 100% 320,804 100% 29,097 10%
Note: (a) Includes all races for those of Hispanic/Latino background. Sources: U.S. Census Bureau, Decennial Census 2010 and 2020.

Persons with Disabilities
In Stockton, 15% of the population has a physical
or cognitive disability. The most common types
of disabilities are ambulatory, cognitive, and in-
dependent living. These individuals have specific
housing needs because of poverty and employ-
ment difficulties.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 17
Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data.

Disability Status
Stockton
Number Percentage
Persons 5 years and over 286,286 100%
Without a disability 244,579 85%
With a disability 41,707 15%
Total disabilities tallied 85,544 100%
Hearing 9,354 11%
Vision 8,669 10%
Cognitive 17,547 21%
Ambulatory 23,442 27%
Self-Care 9,407 11%
Independent Living 17,125 20%
Table 4: Disability Status and Disability Type, Persons Five Years and Older, 2020
Persons in Need of Shelter
The latest Point-In-Time (PIT) count
in San Joaquin County found 2,319
homeless individuals, with 1,355
being unsheltered. This is a 15
percent decrease from 2019. The
City of Stockton had 893 unsheltered
individuals, a three percent decrease
from 2019, but this may be due to
COVID-19 pandemic.
1 Homelessness
affects mostly White and African
American individuals, with single men
and female-headed families being
the most impacted. Female-headed
households make up 80 percent of
all homeless families with children.

Veterans are also disproportionately
affected. Homeless shelter and tran-
sitional housing facilities currently
located in Stockton have capacity for
1,172 persons at a given time.
1 This data indicates that while both San
Joaquin County and the City of Stockton saw
a decrease in the total number of individuals
observed to be experiencing homelessness, the
share of the countywide homeless population
living in Stockton increased from 61 percent
to 66 percent. This may be due, at least in
part, to the fact that Stockton hosts a majority
of the countywide inventory of homeless
service providers and associated facilities.

Nonetheless, new homeless shelters are under
development in Lodi, Manteca, and Tracy, with
a new acute care facility in French Camp.

Household Income Characteristics
Forty-three percent of households in Stockton earn less than $50,000 a year, making it difficult to afford an average- priced rental. Thirty-one percent earn between $50,000
and $99,999, and 26 percent make $100,000 or more and
can afford homeownership. The inflation adjusted median income in Stockton decreased over the last decade.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN18
Sheltered Unsheltered Total
Number Perc. Number Perc. Number Perc.

Total Households and Persons
T otal Households 637 32.0% 1,355 68.0% 1,992 100.0%
T otal Persons 964 41.6% 1,355 58.4% 2,319 100.0%
Gender
Female
432 18.6% 459 19.8% 891 38.4%
Male 530 22.9% 891 38.4% 1,421 61.3%
Ethnicity
Hispanic/Latino
315 13.6% 411 17.7% 726 31.3%
Non- Hispanic/Latino 649 28.0% 944 40.7% 1,593 68.7%
Race
Caucasian
533 23.0% 930 40.1% 1,463 63.1%
Black or African-American 248 10.7% 271 11.7% 519 22.4% Asian 31 1.3% 35 1.5% 66 2.8%
American Indian or Alaska Native 26 1.1% 23 1.0% 49 2.1% Native Hawaiian or Other Pacific Islander 19 0.8% 7 0.3% 26 1.1% Multiple Races 107 4.6% 89 3.8% 196 8.5%
Table 5: Homeless Point-in-Time (PIT) County, San Joaquin County, January 2022 Source: San Joaquin Continuum of Care PIT Count, June 2022.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 19
Racially and/or Ethnically Concentrated
Areas of Poverty (R/ECAP)
U.S. Department of Housing and Urban Develop-
ment (HUD) collects information on Racially or
Ethnically Concentrated Areas of Poverty (R/
ECAP) which have non-White populations of at
least 50 percent and where at least 40 percent
of the population lives at or below the poverty
line. R/ECAP tracts are generally concentrated
in Downtown and South Stockton, as shown in
Figure 4.

TCAC/HCD Opportunity Scores by Census
Tract
The California Fair Housing Task Force produces
Opportunity Maps that identify areas with positive
economic, educational, and health outcomes for
low-income families. These maps use 21 indica-
tors, categorizing tracts into five groups based on
index scores. Figure 5 indicates that:
▶ Areas with more resources are mainly found
in the north of Stockton, while Downtown has
high levels of segregation and poverty.
▶ Lower median household incomes and R/
ECAPs also correlate with these areas. Most
areas south of East Harding Way are either
High Segregation and Poverty or Low Re-
source.
▶ The City should encourage both low-income
and market rate housing development in
these areas to provide a diversity of housing
options.
▶ It will be important to encourage lower-in-
come housing and market rate rental housing
in High and Highest Resource areas to offer
lower-income households’ greater access to
opportunities.

For more information on fair housing topics, as
well as for resources to address fair housing
issues, please refer to the Assessment of Fair
Housing section of the 2023-2041 Housing Ele-
ment.

Figure 3: Nominal and Inflation Adjusted Median Income, 2010 and 2020 Sources: U.S. Census Bureau, American Community Survey 2006-2010 and 2016-2020 five-year sample data; California Department of Industrial Relations, Consumer Price Index, 2022.
14 $45,000
$50,000
$55,000
$60,000
$65,000
2010 2020
$47,946
$58,393 $60,285 $58,393
Nominal Dollars
Median Household Income
Inflation Adjusted ($2020)
Exhibit 1 - Housing and Neighborhood Action Plans
20 Figure 4: Racially and/or Ethnically Concentrated Areas of Poverty by Census Tract, 2018 Sources: City of Stockton, 2022; ACS, 2015-2018; US Census Bureau, 2018; HUD, 2018; ESRI, 2022; PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
Sources: City of Stockton, 2022; ACS, 2015-2018; US Census Bureau, 2018; HUD, 2018; ESRI, 2022; PlaceWorks, 2024.

Figure 5: TCAC/HCD Opportunity Scores by Census Tract, 2022 Sources: City of Stockton, 2022; California Tax Credit Allocation Committee; ESRI, 2022; PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN22
Housing Problems
HUD measures housing instability by identifying
common housing problems such as high costs,
overcrowding, and substandard conditions. Data
for Stockton, shown in Table 6, indicate that:
▶ Excessive housing cost burden is the most
common housing problem, impacting around
60 percent of households earning the median
income or less, including both renters and
owners.
▶ Overcrowding is also a concern, impacting
about 10 percent of households.
▶ Substandard housing is a problem for less
than two percent of Stockton households.
▶ Lower income households are more likely to
experience housing problems. This is espe-
cially true for renters, with over 80 percent of
those earning median income or less facing
problems.

Employment Characteristics
Stockton is the largest city in San Joaquin County
and hosts many of the county’s largest employ-
ers. The top ten employers, including the school
district, hospital, and Amazon, employ around
17 percent of the Stockton workforce. The top
three employment sectors are Education and
Health Services, Retail, and Transportation, Ware-
housing, and Utilities. Employment in Stockton
accounts for 45 percent of countywide employ-
ment. Stockton’s unemployment rate is typically
higher than the countywide average. Before
COVID-19, it had been steadily decreasing from
the historic highs caused by the foreclosure crisis
and Great Recession, though it remains elevated
at around 10 percent. Roughly 22 percent of all
households in Stockton are senior households
(i.e., headed by a person aged 65 or over) who
can often have special housing needs and can
face challenges maintaining their housing.

Figure 6: Unemployment Rate, 2010 to 2021
Sources: Bureau of Labor Statistics (BLS), Local Unemployment Statistics (LES). 5%
7%
9%
11%
13%
15%
17%
19%
2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 Unemployment rate
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 23

0-30% HAMFI (b) 31-50% HAMFI 51-80% HAMFI 81-100% HAMFI ≤ 100% HAMFI Number Percent Number Percent Number Percent Number Percent Number Percent Owner-Occupied Households ≤ 100% HAMFI (a)
Substandard Housing (c) 45 1.7% 15 0.5% 15 0.3% 20 0.4% 95 0.6% Severely Overcrowded (d) 70 2.6% 70 2.3% 110 1.9% 55 1.2% 305 1.9% Overcrowded (e) 4 0.2% 65 2.1% 390 6.7% 415 9.1% 874 5.4% Severe Housing Cost Burden (f) 1,675 63.2% 1,425 46.6% 1,420 24.5% 475 10.4% 4,995 31.1% Housing Cost Burden (g) 220 8.3% 625 20.4% 1,485 25.6% 1,280 28.0% 3,610 22.5% Zero/Negative Income 380 14.3% 0 0.0% 0 0.0% 0 0.0% 380 2.4% Subtotal, Owners w/ Problems 2,394 90.4% 2,200 71.9% 3,420 59.0% 2,245 49.2% 10,259 63.8% Total, Owners ≤ 100% HAMFI 2,649 100% 3,060 100% 5,800 100% 4,565 100% 16,074 100% Renter-Occupied Households ≤ 100% HAMFI (a)
Substandard Housing (c) 355 3.3% 165 1.7% 270 2.8% 60 1.2% 850 2.4% Severely Overcrowded (d) 230 2.2% 290 2.9% 385 3.9% 100 2.0% 1,005 2.9% Overcrowded (e) 750 7.0% 885 9.0% 960 9.8% 425 8.6% 3,020 8.6% Severe Housing Cost Burden (f) 6,920 64.7% 4,695 47.7% 870 8.9% 160 3.2% 12,645 35.9% Housing Cost Burden (g) 860 8.0% 2,930 29.8% 4,595 47.0% 1,495 30.2% 9,880 28.0% Zero/Negative Income 870 8.1% 0 0.0% 0 0.0% 0 0.0% 870 2.5% Subtotal, Renters w/ Problems 9,985 93.4% 8,965 91.1% 7,080 72.4% 2,240 45.3% 28,270 80.2% Total, Renters ≤ 100% HAMFI 10,690 100.0% 9,845 100.0% 9,780 100.0% 4,945 100.0% 35,260 100.0% Notes: (a) Problems are listed from most severe to least severe. Households may have multiple problems but are counted under the most severe problem. (b) “HAMFI” is the HUD Area Median Family Income for Stockton-Lodi, CA MSA. (c) Lacking complete plumbing or kitchen facilities.
(d) Greater than 1.5 persons per room.
(e) 1.01 to 1.5 persons per room.
(f) Housing costs greater than 50% of gross income.
(g) Housing costs greater than 30% but less than 50% of gross income.

Sources: U.S. Department of Housing and Urban Development (HUD), 2014-2018 Comprehensive Housing Affordability Strategy (CHAS) data; BAE, 2022.

Table 6: Housing Problems by Tenure and Income Level, City of Stockton, 2014-2018 Five-Year Sample Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN24
Table 7: Employment by Industry, 2016-2020
Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data.

Stockton San Joaquin County
Number Percentage Number Percentage
Agriculture, Forestry, Fishing and Hunting, and
Mining 5,010 3.9% 14,472 4.5%
Construction 9,207 7.1% 27,114 8.5%
Manufacturing 10,425 8.1% 30,223 9.5%
Wholesale Trade 3,679 2.9% 9,655 3.0%
Retail Trade 15,650 12.1% 37,996 11.9%
Transportation, Warehousing, and Utilities 12,342 9.6% 27,176 8.5% Information 1,358 1.1% 4,015 1.3%
Financial Activities 5,690 4.4% 14,579 4.6%
Professional, Scientific, and Management, and
Administrative, and Waste Management Services 10,947  8.5% 30,877 9.7% Educational and Health Services 28,702 22.3% 65,614 20.5% Arts, Entertainment, and Recreation, and
Accommodation and Food Services 11,358 8.8% 25,917 8.1% Other Services 7,090 5.5% 15,573 4.9%
Public Administration 7,494 5.8% 16,597 5.2%
Long-Range Growth Forecast
Stockton’s growth rate has been moderate since the Great Recession and is expected to continue at a similar pace. The city anticipates a demand for almost 15,000 new housing units be- tween 2020 and 2050, according to the University of the Pacific (UOP) and the San Joaquin Council of Governments (SJCOG).

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 25
2020 2025 2030 2035 2040 2045 2050
Change,
2020-2050
Avg.

Annual
Change
2020-
2050Number Percent
City of Stockton
Population 318,257 335,798 348,258 354,700 359,991 365,114 369,554 51,297 16.1% 0.5% Household 96,474 102,073 105,132 106,722 108,140 109,358 110,618 14,144 14.7% 0.5% Housing Units (a) 100,597 109,273 109,625 111,283 112,762 114,032 115,346 14,748 14.7% 0.5% Employment 157,422 175,080 179,253 182,471 187,520 193,373 200,024 30,098 19.1% 0.8% San Joaquin County
Population
773,581 833,053 882,163 917,811 951,985 987,241 1,022,228 248,647 32.1% 0.9% Household 239,143 258,347 271,810 281,984 292,147 302,229 312,902 73,759 30.8% 0.9% Housing Units (a) 249,392 269,419 283,459 294,069 304,668 315,182 326,313 76,920 30.8% 0.9% Employment 330,917 370,763 379,830 386,125 397,901 411,748 427,387 66,984 20.2% 0.9% Table 8: Population, Household, Housing, and Employment Projections, 2020-2050 Note: (a) Assumes a 4.1 percent vacancy rate to calculate housing units, based on the 2020 Decennial Census vacancy rate for the City of Stockton and San Joaquin County.

Sources: University of the Pacific Center for Business & Policy Research, San Joaquin County Demographic and Employment Forecast, 2022; U.S.

Census Bureau, Decennial Census 2020.

Housing Market Conditions
Housing by Units in Structure
Stockton should prioritize preserving naturally oc-
curring affordable housing (NOAH) units, which
are smaller and older multifamily properties that
serve as affordable housing options for lower-
and moderate-income households. These units
tend to have lower rents and sale prices, making
them beneficial for middle-class and workforce
households who may not qualify for housing
subsidies but still need assistance. By preserving
these NOAH units, the city can accommodate
different household needs and income levels.

Building Permit Trends
A graph in Figure 8 shows building permit
trends in Stockton from 2000 to 2021. Building
increased between 2001 and 2005, decreased
due to foreclosures in 2008, then rose again after
2015. Multifamily units make up 30-35 percent
of new construction, though single-family units
remain in the majority. Stockton permits construc-
tion of an average of 400 to 500 new residential
units per year, including both single- and multi-
family units. Recent trends indicate increased
multifamily building activity in Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN26
Figure 7: Housing by Units in Structure, 2016-2020 Five-Year ACS Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data.

67.1% Single Family Detached
Single Family Detached Single Family A�ached

6.0% Single Family A�ached
Mul�family 2-4 Units Mul�family 5-19 Units
Mul�family 20-49 Units Mul�family 50+ Mobile Home/Other

1.2% Mobile Home/Other

8.0% Mul�family 2-4 Units

8.5% Mul�family 5-19 Units

3.4% Mul�family 20-49 Units

5.8% Mul�family 50+
Figure 8: Residential Building Permits, 2000-2021
Sources: HUD State of the Cities Data Systems, 2022.
0 500
1,000
1,500
2,000
2,500
3,000
3,500
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 Units in Single-Family Structures
Residential Building Permits
Units in All Multi-Family Structures
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 27
Household Tenure (Renter vs. Owner)
The length of time a household stays in a unit
affects housing stability and wealth creation.

Homeowners have fixed costs, can save more,
and benefit from equity appreciation. Renters
face instability due to rising costs. Stockton’s
homeownership rate declined over the decade,
while renters increased, indicating a need for
more entry-level homeownership options and
rental housing. Detached single-family homes
make up a large portion of Stockton’s rental
inventory, accounting for 44 percent. In contrast,
only around 27 percent of rental homes in Califor-
nia are single-family homes.

Housing Vacancy
Figure 10 shows that 50 percent of vacant
housing units are single-family homes, while 48
percent are multifamily apartments (mostly with
five or more units). The rest are mobile homes
and other unconventional shelters like cars and
motorhomes. Meanwhile, Figure 11 shows that
home ownership opportunities are limited by a
vacancy rate of less than 1 percent. The overall
rental market seems notably healthier with a
vacancy rate just under 5 percent. Nonetheless,
there is a mismatch between household needs
and the characteristics of the available rental
inventory.

Figure 9: Percent of Households by Tenure, 2010 and 2020 Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data. 46%
47%
48%
49%
50%
51%
52%
Owner-Occupied Renter-Occupied
52%
48%
50% 50%
2010 2020
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Owner Renter Vacant
93%
44% 45%
9% 6%
15%
8%
31%
40% Mobile Homes & Other
Multifamily 5+ Units
Multifamily 2-4 Units
Single Family Attached
Single Family Detached

Percent of Housing Stock
Percent of Households
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN28
Figure 10: Percent of Housing Stock by Tenure and Units in Structure, 2020 Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data. 46%
47%
48%
49%
50%
51%
52%
Owner-Occupied Renter-Occupied
52%
48%
50% 50%
2010 2020
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Owner Renter Vacant
93%
44% 45%
9% 6%
15%
8%
31%
40% Mobile Homes & Other
Multifamily 5+ Units
Multifamily 2-4 Units
Single Family Attached
Single Family Detached
Percent of Housing Stock
Percent of Households
Figure 11: Functional Vacancy Rate by Tenure, 2020
Sources: U.S. Census Bureau, American Community Survey 2016-2020 five-year sample data.

0.0% 1.0% 2.0% 3.0% 4.0% 5.0%
Homeowner Vacancy Rate
Vacancy Rate
Rental Vacancy Rate

0.9%

4.9%
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 29
Rental Market Conditions
Table 9 reports data on multi-family rentals by unit size, including asking rents and vacancy rates. As of Q1 2022, Stockton’s average rent for multi-family units increased 9.4% to $1,370.

Table 10 provides affordable rent estimates for
different household sizes and income categories
based on 2022 HCD income limits and utility
allowances. By comparing these estimates to
average market-rate rents in Table 9, we can see
that moderate-income households can generally
Table 9: Multifamily Residential Market Summary by Unit Size, City of Stockton, Q1 2022 Sources: CoStar Group, 2022.

Studio 1BD 2BD 3BD 4+ BD All Units
Inventory, Q1, 2022 (Units) 1,419 7,512 6,519 1,007 9 16,466 % of Units 8.6% 45.6% 39.6% 6.1% 0.1% 100.0%
Occupied Units 1,362 7,239 6,312 979 9 15,901
Vacant Units 57 273 207 28 0 565
Vacancy Rate 4.0% 3.6% 3.2% 2.8% 3.1% 3.4%
Avg. Unit Size (sf) 516 634 925 1,220 1,232 784
Ave. Asking Rents
Avg. Asking Rent, Q1 2021 $1,004 $1,098 $1,425 $1,354 $1,341 $1,254 Avg. Asking Rent, Q1 2022 $1,065 $1,221 $1,542 $1,452 $1,381 $1,370 % Change Q1 2021 - Q1 2022 6.1% 11.2% 8.2% 7.2% 3.0% 9.3% Ave. Asking Rents Per SF
Avg. Asking Rent, Q1 2021 $2.05 $1.76 $1.55 $1.10 $1.09 $1.60 Avg. Asking Rent, Q1 2022 $2.20 $1.97 $1.68 $1.19 $1.12 $1.75 % Change Q1 2021 - Q1 2022 7.3% 11.9% 8.4% 8.2% 2.8% 9.4% afford average market-rate multifamily rental
housing. However, most low-, very low- and
extremely low-income households of all sizes may
struggle to afford an average-priced rental apart-
ment in Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN30
Table 10: Affordable Rental Rates, San Joaquin County, 2022 2022 HCD Income Limits (a)
Persons Per Household
One Two Three Four Five+
Extremely Low-Income (30% MFI) $17,400 $19,900 $23,030 $27,750 $32,470 Very Low-Income (50% MFI) $29,000 $33,150 $37,300 $41,400 $44,750 Low-Income (80% MFI) $46,350 $53,000 $59,600 $66,200 $71,500 Moderate-Income (120% MFI) $71,400 $81,600 $91,800 $102,000 $110,150 Affordable Rents (b)
Unit Size
Studio 1BD 2BD 3BD 4+BD
Extremely Low
1-Person $333 $313
2-Person   $376 $340
3-Person $418 $379
4-Person     $536 $497 $455
5-Person $615 $573
Very Low
1-Person $623 $603
2-Person   $707 $671
3-Person $775 $736
4-Person     $877 $838 $796
5-Person $922 $880
Low
1-Person $1,057 $1,037
2-Person   $1,203 $1,167
3-Person $1,332 $1,293
4-Person     $1,497 $1,458 $1,416
5-Person $1,591 $1,549
Moderate
1-Person $1,683 $1,663
2-Person   $1,918 $1,882
3-Person $2,137 $2,098
4-Person     $2,392 $2,353 $2,311
5-Person       $2,557 $2,515
Notes: (a) Income limits are based on the HCD-adjusted median family income of $85,000 ($2022). (b) Affordable rents equal to 30 percent of gross monthly income, minus a utility allowance. The utility allowance is published by the Housing Authority in 2022. Utility allowance estimates assume that all heating, cooking, and water heating would be done using natural gas. Other electricity usage is also included, accounting for lighting, refrigeration, and small appliances.

Sources: HCD, 2022; Housing Authority County of San Joaquin, 2022.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 31
For-Sale Market Conditions
From November 2021 to April 2022, 1,705 single-family homes and 88 condos were sold in Stockton.

The median sale price for a single-family home $425,000, with a median price of $195,000 for condos.

Single-Family Homes 1BD 2BD 3BD 4+BD Total Percent
Sale Price Range
Less than $300,000 9 112 61 22 204 12.0%
$300,000-$399,999 2 191 259 34 486 28.5%
$400,000-$499,999 1 28 337 141 507 29.7%
$500,000-$599,999 0 9 121 197 327 19.2%
$600,000 or more 1 6 45 129 181 10.6%
Total Units Sold 13 346 823 523 1,705 100%
Percent of Total 0.8% 20.3% 48.3% 30.7% 100%
Summary Statistics
Median Sale Price $259,000 $325,000 $420,000 $520,000 $425,000 Average Sale Price $294,577 $345,650 $435,941 $541,069 $448,788 Average Unit Size (SF) $770 $1,061 $1,543 $2,278 $1,665 Median Price per SF $373 $318 $289 $238 $279
Average Price per SF $384 $338 $288 $241 $284
Condominiums
1BD 2BD 3BD 4+BD Total Percent
Sale Price Range
Less than $150,000 11 11 0 0 22 25.0%
$150,000-$199,999 7 17 2 0 26 29.5%
$200,000-$249,999 1 11 1 0 13 14.8%
$250,000 or more 0 22 5 0 27 30.7%
Total Units Sold 19 61 8 0 88 100%
Percent of Total 21.6% 69.3% 9.1% 0.0% 100%
Summary Statistics
Median Sale Price $145,000 $215,000 $260,000 n.a. $195,000 Average Sale Price $224,926 $224,926 $224,926 n.a. $211,648 Average Unit Size (SF) $595 $991 $1,255 n.a. $929
Median Price per SF $237 $236 $220 n.a. $236
Average Price per SF $224 $224 $224 n.a. $228
Note: Data reflect full and verified sales from November 1, 2021, to April 30, 2022.

Sources: ListSource, 2022.

Table 11: Home Sale Distribution, City of Stockton November 2021 to April 2022 Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN32
Home prices in Stockton and San Joaquin
County have increased significantly over the last
decade. The median sale price increased by 264
percent countywide and 286 percent in the city,
which outpaced household income growth over
the same period, making homeownership less
achievable. While condos are a more affordable
for-sale option, there are relatively few located in
Stockton.

Figure 12: Median Home Sale Price, All Unit Types, February 2012 to April 2022 Sources: Redfin.com.
$120,000
$463,000
$155,000
$564,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
Median Home Sale Price
Stockton, CA
San Joaquin County, CA
Stockton should prioritize infill housing and
produce more small, attached, housing units to
encourage sustainable homeownership at all
income levels. Building condos and townhomes
could ease the shortage of for-sale homes and
complement the construction of market rate
and below market rate single-family homes and
apartments for a more diverse range of housing
options.

Emergency and Transitional Housing
Resources
Table 29 on page 91 and Table 32 on page 100
summarize the transitional, supportive, and emer-
gency shelter facilities in Stockton as of 2022.

The majority of facilities serve unaccompanied
males and females, adult couples without chil-
dren, and single-parent and two-parent families.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 33
Note: (a) Income limits are based on the HCD-adjusted median family income of $85,000 ($2022).
(b) Based on the following ownership cost assumptions:
% of Income for Housing Costs - 31%
Down payment - 3.50%
Annual interest rate - 5.22%
Loan term - 30
Upfront mortgage insurance - 1.75%
Annual mortgage insurance - 0.85%
Annual property tax rate - 1.21%
Annual homeowners insurance - 0.29%Sources: California Department of Housing and Community Development (HCD); California Department of Insurance, Homeowners Premium Survey; Freddie Mac.

Table 12: Affordable Home Sale Prices, 2022
2022 HCD Income
Limits (a)
Persons Per Household
One Two Three Four Five+
Extremely Low-Income
(30% MFI) $17,400 $19,900 $23,030 $27,750 $32,470
Very Low-Income (50%
MFI) $29,000 $33,150 $37,300 $41,400 $44,750
Low-Income (80% MFI) $46,350 $53,000 $59,600 $66,200 $71,500 Moderate-Income
(120% MFI) $71,400 $81,600 $91,800 $102,000 $110,150

Amount
Avail. For
Housing
Principal &
Interest Prop. Tax Prop.

Insur.

Mortgage
Insurance
Total
Monthly
Payment
Down
Payment
Affordable
Sale Price
1-Person Household
Extremely Low $450 $332 $17 $61 $41 $450 $3,171 $60,392 Very Low $749 $552 $28 $101 $67 $749 $5,277 $100,519
Low $1,197 $882 $45 $162 $108 $1,197 $8,434 $160,643
Moderate $1,845 $1,360 $70 $249 $166 $1,845 $12,999 $247,608 2-Person Household
Extremely Low $514 $379 $19 $69 $46 $514 $3,622 $68,981 Very Low $856 $631 $32 $116 $77 $856 $6,031 $114,879
Low $1,369 $1,009 $52 $185 $123 $1,369 $9,646
$183,726
Moderate $2,108 $1,553 $80 $285 $190 $2,108 $14,852 $282,904 3-Person Household
Extremely Low $595 $438 $23 $80 $54 $595 $4,192 $79,852 Very Low $964 $710 $37 $130 $87 $964 $6,792 $129,373
Low $1,540 $1,135 $58 $208 $139 $1,540 $10,850 $206,675 Moderate $2,372 $1,748 $90 $321 $214 $2,372 $16,713 $318,334 4-Person Household
Extremely Low $717 $528 $27 $97 $65 $717 $5,052 $96,225 Very Low $1,070 $788 $41 $145 $96 $1,070 $7,539 $143,599 Low $1,710 $1,260 $65 $231 $154 $1,710 $12,048 $229,490 Moderate $2,635 $1,942 $100 $356 $237 $2,635 $18,566 $353,630 5-Person Household
Extremely Low $839 $618 $32 $113 $76 $839 $5,911 $112,598 Very Low $1,156 $852 $44 $156 $104 $1,156 $8,145 $155,141 Low $1,847 $1,361 $70 $250 $166 $1,847 $13,014 $247,876 Moderate $3,463 $2,552 $131 $468 $312 $3,463 $24,399 $464,751 Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN34
underutilized land due to increasing property tax
burdens. Larger builders generally purchase land
on a speculative basis and then hold the land until
development becomes feasible. Smaller develop-
ers often have a reduced capacity to buy and hold
land long-term, making the price of land a more
important factor in their financial calculations.

According to research conducted by BAE Urban
Economics in 2023, the per acre cost for resi-
dentially zoned land in Stockton can range from
the low- to mid-$200,000’s for larger greenfield
sites and for sites zoned for low-rise multifamily
development. Smaller in-fill sites suitable for
moderately sized attached housing projects
are generally priced between $300,000 and
$400,000 per acre. Larger downtown sites suit-
able for high rise and mixed use development are
considerably more expensive at $700,000 to $1.0
million per acre.

Construction Costs
The costs associated with acquiring the materi-
als and labor to build the physical structure of a
home (i.e., foundations, walls, roofs, and internal
systems) are known in the industry as hard
construction costs. Hard costs exclude the cost
of architectural design, legal fees, developer
overhead, etc. Hard construction costs typically
vary based on the project type (e.g., single-family,
duplex/triplex, low-rise apartment, mid- or high-
rise apartment or condominium).

Hard costs associated with detached and at-
tached single-family construction generally range
from around $130 to $180 per building square
foot, with the exactly value varying based on unit
size and project scale. Hard costs for low- and
mid-rise apartment development, assuming
wood frame construction, are closer to $200 per
square foot. High-rise construction costs con-
Housing Capacity (Available Land)
The city has enough land for 53,000 to 67,000
new housing units according to the land analysis
in the HAP Housing Supply section and the
2023-2031 Housing Element. Challenges and
recommended action for the City’s entire housing
capacity and future supply are outlined in Section
4 of the HAP .

Development Costs
The following sections summarize costs related
to New Housing Construction and Preserva-
tion.

New Housing Costs
Analysis prepared by BAE Urban Economics, pre-
sented in Appendix 4, indicates that residential
development in Stockton as of 2023 cost an aver-
age of around $300,000 to nearly $600,000 per
unit, depending on the type of structure. Larger
detached single-family homes, such as those
being constructed in north Stockton, can cost up
to $580,000 per unit to construct. Meanwhile,
smaller attached housing types like cottage
courts and duplex or triplex units in in-fill locations can cost between $300,000 and $350,000 per
unit to build. The total cost for low- and mid-rise
apartments is somewhat higher at just over
$400,000 per unit.

Land Costs
One way that developers evaluate the feasibility
of new development, given prevailing construc-
tion and financing costs, is based on the residual
land value that a certain housing type can sup-
port. The value of the land is determined by
development potential, owner expectations,
and disincentives for keeping it undeveloped. In
California, Prop. 13 alleviates pressure to develop
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 35
siderably more at around $258 per square foot
due to the use of structural steel and concrete
construction methods compared to traditional
timber framing.

Construction and Permanent Financing
Interest rates also have a significant impact on
development feasibility, both in terms of the cost
to secure construction financing, as well as the
relative debt service burden that the project must
support upon stabilized occupancy. For example,
an increase in a developer’s construction loan
cost increases the amount of revenue (i.e., rents
or for-sale prices) that the project has to generate
in order to justify construction. Alternatively,
increasing financing costs can also reduce the
amount that builders are willing and able to spend
on acquiring land. Unfortunately, land prices tend
to be sticky and resistant to rapid change. Also,
for for-sale construction, increasing interest rates
Figure 13: Historical Mortgage Rates, 30-Year Fixed
Sources: Freddie Mac, Primary Mortgage Rate Survey, 2023. 2 2.5
3 3.5
4 4.5
5 5.5
Ave. Interest Rate (30 Yr. Mortgage)
6 6.5
7 have a significant impact on consumer buying
power, reducing the purchase price that buyer
households can afford at the same monthly pay-
ment amount. As illustrated below, interest rates
have been at historic lows since the mid-2000s,
but have since increased significantly in 2022 and
early-2023 in response to rising inflation. As of
July of 2023, consumer interest rates reached a
high of 7 percent.

Interest rates are high, putting downward pres-
sure on housing prices. However, low inventory in
the single-family housing market has kept prices
relatively high despite the predicted decrease.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN36
HAP-ACTION 2.3: Task Force
Create a task force of City, stakeholders, busi-
ness, and regional partners to explore identified
struggling commercial corridors in the City and
propose actions that could include analysis of
existing factors, partners, business and housing
opportunities, and residential feedback. Corridors
can include Martin Luther King/Charter Way,
Main Street, Wilson Way, and others. The group
could explore starting a comprehensive corridor
redevelopment strategy in the central area of
a community is a wise choice. The attention to
the downtown area and central city, along with
corridors and urban villages, allowed for the con-
centration of resources and a phased approach
to redevelopment, creating synergies between
the urban villages and commercial corridors. The
group could explore.
• Improving the image and identification of the
corridor
• Recruiting new businesses and reducing
vacancies
• Improving street and alley lighting
• Improving transit opportunities and
conditions, including bus stops
• Improving safety and security
• Improving maintenance of infrastructure,
including streets, alleys, and sidewalks
• Increasing the mix of land uses
• Upgrading basic streetscapes in some areas
and better maintaining existing streetscape in
other areas
Recommended Actions
The following actions expand on the Housing Ele-
ment Goals and Programs and address specific
challenges in Stockton’s Housing Market for cur-
rent and future housing needs.

COLLABORATION
The following actions shall continually be con-
ducted to improve collaboration and inventory
the needed resources and partnerships for ad-
ditional action.

HAP-ACTION 2.1: Property Owner Outreach
Conduct targeted outreach to property owners in
the Transformational Areas identified by the HAP
and communities in the Neighborhood Action
Plans to learn why they may leave a site unde-
veloped or underutilized. Explain any applicable
incentives or programs the City offers that may
assist the property owner with developing the
site.

HAP-ACTION 2.2: Implementation Tracking on
City’s Website
The city will enhance its online monitoring of the
Housing Element Program and Action Plan imple-
mentation and provide more frequent status
updates, a list of resources and links, contacts,
workshops, and hearing materials, and any quan-
titative information. This online monitoring will
be built from the City’s required annual progress
reports to accurately assess program success.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 37
HAP-ACTION 2.4: Market City Land
The City must market available land to afford-
able housing developers in accordance with the
Surplus Land Act. It can also consider relocating
public uses to make sites available for affordable
housing, particularly in high-resource areas.

Collaborating with other public agencies is impor-
tant.

Other City Actions:
• Coordinate and track federal and state
legislative changes and funding. Housing
Element
• Improve City Branding efforts. Economic
Development Strategic Action Plan
Resources
The following actions focus on exploring, captur-
ing, and maintaining funding for current and
future housing needs.

HAP-ACTION 2.5: Maintain Prohousing
Designation
The City shall strive to maintain its State Pro-
housing Designation to enhance its chances of
remaining competitive for State funding grant
programs in housing, transportation, infrastruc-
ture, and land use.

HAP-ACTION 2.6: On-Going Financial
Assistance
Should the City be unable to reduce upfront
costs, the City should explore ongoing financial
assistance for rehabilitated buildings for residen-
tial use. These ongoing cost savings are intended
to incentivize development and reduce the time
needed to break even and profit from a reuse
project. Ongoing options could include:
• Tax reductions
• Fee reductions for tenants
• Fee deferrals
HAP-ACTION 2.7: Balance requirements and
incentives to encourage income diversity in
housing projects.

The city could explore the following options to
facilitate the production of housing projects that
includes income diversity. This will also align
with areas of the City identified in the Citywide
Displacement study as being areas most likely
to suffer from Gentrification and Displacement
impacts.
▶ Establish a mixed-income ordinance that
requires housing projects to provide housing
diversity and/or affordability diversity (i.e.,
70% market, 30% affordable to low/very low
income). In addition to the standards, outline
possible waivers that would allow flexibility in
the requirement should the project provide
some public benefit or fee. This can include
land dedication for housing or civic uses,
payment of in-lieu and linkage fees, or other
public benefits provided by the project.
▶ Create informational handouts to educate
developers on the benefits made available
for projects that demonstrate housing and
income diversity.

HAP-ACTION 2.8: Explore options for Rental
Assistance Programs
The City will research affordable alternatives to
up-front payments such as low- or no-interest
loans, grants, and supportive services to reduce
housing barriers for all residents. This includes
the exploration of a Fair Chance Ordinance limit-
ing the use of criminal records by landlords when
screening tenants.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN38
HAP-ACTION 2.9: Tenant-Based Housing Choice
Vouchers
The City, with assistance from the Housing
Authority, will explore Housing Choice Vouchers
(HCVs) to provide affordable housing options for
very low- and extremely low-income households
in Stockton. This will include implementing Small
Area Fair Market Rents, a Landlord Incentive
Program based on federal funding, and providing
landlord education on program benefits. The City
will also consider other best practices to encour-
age new landlords to participate.

HAP-ACTION 2.10: Ownership Protection
Programs
The City shall promote and expand programs that
support existing homeowners in affording and
maintaining their homes, including home repairs
and foreclosure prevention, focusing on people
of color and vulnerable populations, such as low-
income households, the elderly, and people with
disabilities. This includes resources and tools for
ownership kept on the City’s website.

HAP-ACTION 2.11: Historic Preservation Fund
Promote funding sources for historic preserva-
tion, such as California’s Mills Act Property Tax
Abatement Program, Federal Historic Preserva-
tion Tax Incentives Program, and State Historic
Rehabilitation Tax Credit Program. These incen-
tivize the rehabilitation and protection of historic
resources in the Study Area.

HAP-ACTION 2.12: Increase Regulatory
Incentives
The City shall work with developers and other
stakeholders on replicable site plans or archi-
tectural plans to reduce pre-development costs
and expedite the planning approval process for
a variety of ADA-accessible housing types that
could include.
• Enhanced typologies
• State Approved Designs (modular, etc.)
• Pre-Approved duplexes, triplexes, fourplexes,
bungalow courts, and
• Other workforce housing types, that can be
used throughout the City.

HAP-ACTION 2.13: Mitigation and Linkage Fees
The city should explore additional financing op-
tions that include:
▶ Establishment of a dedicated housing
production fund that could be used to lever-
age other funding or be applied directly to
qualified housing projects or efforts. The city
could work with partners to match funds for
new development or help offset the upfront
cost of leasing or first-time home-buying
programs.
▶ Apply housing mitigation fees for discretion-
ary projects that impact housing demand.
▶ Any fee would require a nexus study prior
to adoption to indicate impacts, costs, and
anticipated exaction.
▶ New commercial or industrial development
to meet the housing demand they generate,
particularly the need for affordable housing
for lower-income workers.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 39
▶ Project seeking waivers to various standards
or fees.

HAP-ACTION 2.14: Inclusionary Housing
Explore the strategic use of inclusionary housing
for projects to provide more diversity in housing
choices. This can be applied on a case-by-case
review for projects seeking discretionary review,
Development Agreement, or financial assistance
and include the following options:
▶ Require inclusionary for select areas or when
a project requires discretionary approval.

Discretionary approvals can include tentative
subdivision maps, Master Plans, Specific
Plans, Planned Developments, general plan
changes and/or zoning designation, annexa-
tion, development agreements, and financial
assistance or fee waivers for items unrelated
to housing.
▶ Require a percentage of residential land be
higher-density housing
▶ Require a percentage of residential units to be
set aside for various income groups
▶ Require dedication of land to the City for af-
fordable housing-related projects
▶ Allow waiver of the required land/units
through the payment on an inclusionary in-
lieu fee that could be applied to future hous-
ing projects.
▶ Allow waiver of the required land/units/
dedication/fees for other items that provide
additional support to residents (parks, civic
uses, job training)
HAP ACTION 2.15: Funding Partners
Partner with the State for new dedication of
State resources A. Refers to the CA Auditor’s
report that calls for real coordination of resources
between State funding agencies and between the
State and Local jurisdictions and more efficient
use of capital subsidies.

Increase Ownership
The following actions are intended to increase
ownership opportunities.

HAP-ACTION 2.16: Increase Homeowners
Programs In areas Of low Ownership
The City shall target outreach on homeownership
programs and other housing opportunities to
residents in areas at risk of displacement and
gentrification and to populations historically
excluded from homeownership by discriminatory
mortgage lending practices.

HAP-ACTION 2.17: First-Time Homebuyer
Assistance
The City shall seek resources for local down
payment assistance programs and continue to
apply for funding to support first-time homebuyer
assistance programs. Available funding programs
currently include the following: CalHome First-
time Homebuyer Mortgage Assistance Program
(CalHome), Building Equity and Growth in
Neighborhoods Program (BEGIN), and Mortgage
Credit Certificate Program (MCC). The City shall
work with service providers and identify com-
munity partners to market these homeownership
programs to residents in areas at risk of displace-
ment and gentrification and to populations that
have historically been excluded by discriminatory
mortgage lending practices.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN40
HAP-ACTION 2.18: Down-payment
Assistance.

Work with San Joaquin County to conduct target-
ed outreach on the San Joaquin County to renters
in the Study Area to provide down-payment as-
sistance to interested and eligible lower-income,
first-time homebuyers. This includes community-
based organizations (CBOs) and other potential
community partners that are working with
interested low-income community members to
develop new forms of community-driven, col-
lective ownership models and wealth-building
strategies for lower-income residents (e.g., co-op
housing, community land trusts) to identify ways
the City can support these efforts. The City shall
work with communities at-risk of displacement to
evaluate these ownership models.

HAP-ACTION 2.19: Local Financing for
Affordable Housing
The City shall study the feasibility of developing
local financing strategies to help finance afford-
able housing. Some options could include review-
ing and evaluating the viability of creating a public
bank to help finance affordable housing, among
other public goals, and forming a consortium
of locally serving banks to develop a source of
capital for residential builders who agree to target
their housing product to the needs of the local
economy.

HAP-ACTION 2.20: Land Acquisition Assistance
Commit to a meaningful expansion of community
ownership through preservation housing acquisi-
tion which opens opportunities for community
control of land and housing, meaningful tenant
protections, and strong tenant participation.

HAP-ACTION 2.21: Support Condominium
Conversions for Low-Income Ownership
T o increase ownership opportunities in areas with
low ownership and vacant land for new home
sales, the city should partner with groups to
explore converting the apartment and multi-unit
residential properties into condominiums for
residents to lease to own or purchase outright.

The proposals would include owner participation,
possible land acquisition, building review, and
legal review.

HAP-ACTION 2.22: Community Land Trusts
Explore the option of land trust with property
owners, stakeholders, and nonprofits in the
communities. The City can provide information to
these groups via the Internet and mail notices and
attend community functions to spread educa-
tion and awareness for groups interested in the
concept.

Supportive Services
The following actions are intended to provide ad-
ditional resources to residents.

HAP-ACTION 2.23: Possible Rent Escrow
Programs
The City shall explore the feasibility and imple-
mentation of the Rent Escrow Account Program.

If implementing an ordinance is deemed infea-
sible or ineffective, the City shall coordinate with
stakeholders to identify alternative approaches to
addressing the needs of tenants.

HAP-ACTION 2.24: Workforce Training
The City shall support efforts to connect low-
income residents with financial empowerment
resources, homeownership programs, small busi-
ness assistance, living wage jobs, and workforce
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 41
training resources and services. A list of these
resources shall be placed on the City’s website.

This includes working with local high school
districts, higher educational institutions, related
non-profit agencies, and representatives of the
building trades through the creation and regular
convening of a taskforce to do outreach and
educate youth on construction job options and
benefits, develop training pathways and system
coordination, and enhance programs to ensure
sufficient, local skilled labor within our region.

HAP-ACTION 2.25: Rental Home Inspection
The City will explore the implementation of a
Rental Housing Inspection Program. Building
inspectors will inspect rental properties for com-
pliance with building codes and safety standards.

Corrective notices will be issued. The City will
annually report the number of units inspected,
violations found, and actions taken. Community-
based organizations will provide education on the
program to tenants and landlords.

HAP-ACTION 2.26: School Districts
Work with School districts to explore:
• Fee waivers for affordable housing.
• Available land for housing and civic uses.
• Educational options for underserved areas.
• Additional after-hour programs for childcare
and job training.
• Joint-Use Agreements for job training and use
of facilities.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN42
Main Takeaways
▶ The City has ample land to accommodate
existing and future housing needs.
▶ A significant amount of infrastructure (new
and improved) is needed to accommodate
development of the land. Typically, this is
accomplished through private development
when a project is proposed; however, the up-
front cost is impacting upfront costs for new
housing projects.
▶ There are additional housing resources in the
reuse of buildings; however, development
costs typically make these infeasible com-
pared to the anticipated revenues for their
locations.
▶ Financial challenges exist in both the private
and public sectors to fund the necessary hard
and soft cost in producing more homes.
▶ Increased annexations of land within the
City’s ultimate growth boundary (i.e., Sphere
of Influence) may trigger the need to annex
existing homes and nonresidential uses that
have added infrastructure needs.

3. Housing Supply
Where the Housing Element identifies sites needed to meet the mandated Regional Housing Needs Al- location (RHNA), the capacity and priority sites section of the HAP identifies additional land that may be available for residential development beyond what is needed to meet near term requirements based on the 2040 General Plan. In addition to summarizing the City’s residential development capacity, this sec- tion also identifies 10 priority housing sites that represent near-term targets for housing development and redevelopment which may function to help stabilize community conditions or which may function as catalyst projects that demonstrate the feasibility of development in transitional neighborhoods.

Main Solutions
▶ Proactive coordination of policy with in-
frastructure planning and funding in areas
that will result in the largest public benefit
for the community. These areas include
the downtown business district, marina,
as well as south and east Stockton com-
munities.
▶ Enhance communication, both internally
for the City and externally with the public
in defining and acting on challenges to
housing production. This includes policy
direction to staff, proactive marketing
of City resources and opportunities,
enhanced communication with residents
and community groups, and enhanced
permit review coordination.
▶ Increase Public-Private Partnerships for
policy creation and funding. Includes
the use of special financing districts,
incentivized zoning and funding, reliance
of private agreements (i.e., Development
Agreements), and enhanced regulations
and exactions.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 43
Estimated Demand Versus Total
Capacity
Market research prepared for the Envision Stock-
ton 2040 General Plan in 2016 identified potential
demand for roughly 18,000 to 33,000 new hous-
ing units in Stockton between 2020 and 2040.
2 The analysis estimated that around 30 percent
of the forecasted demand will be for multifamily
rental housing, based on a comparison between
projected household growth by income level
and current market housing prices. More recent
projections published in 2020 by the San Joaquin
Council of Governments (SJCOG) and the Uni-
versity of the Pacific (UOP) Center for Business
and Policy Research, reported in Table 8, indicate
that the demand outlook has shifted significantly
since preparation of the General Plan background
reports and that Stockton may add roughly
42,000 residents between 2020 and 2040.
3 If
divided by the 2020 median household size 3.2,
the projected population growth would result
in around 13,000 new households. Targeting
an average vacancy rate of around five percent
equals demand for just under 14,000 new hous-
ing units by 2040.
2 BAE Urban Economics. (July 20, 2016). Stockton
2040 General Plan Update - Existing Conditions T echnical Memorandum: Market Analysis. City of Stockton:

Stockton, CA. Available at: http://www.stocktonca.gov/files/ GP_UpdateMarketAnalysis.pdf
3 University of the Pacific (UOP), Center for Business and Policy Research. (September 10, 2020). San Joaquin
Demographic and Employment Forecast. Page 27. San
Joaquin Council of Governments; Stockton, CA. Available at:
https://www.sjcog.org/DocumentCenter/View/6007/Demographic- and-Employment-Forecast-2020
The City of Stockton features a relatively robust
supply of land available for the construction of
new housing when compared to the projected
demand discussed above. As shown in Table 13,
the Housing Element sites inventory identified
land sufficient to absorb 22,435 new housing
units at allowable densities, which is more than
projected demand through 2040. In addition to
the sites identified in the Housing Element that
would be best suited to new construction, the
City also has capacity for 6,000 to 10,000 housing
units within existing buildings within the Down-
town area, as well as on underutilized land (i.e.,
land that has not been fully developed, such as
on unused parking lots). Research conducted for
the Housing Element also identified capacity for
another 10,000 to 15,000 units on lands located
in the unincorporated area adjacent to the City of
Stockton that is also within the City’s sphere of
influence. Combined, the City estimates that the
existing planning area has the capacity to accom-
modate more than 67,000 new housing units.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN44
RHNA Housing Capacity Sites
The Regional Housing Needs Allocation (RHNA)
is the State of California–required process that
seeks to ensure cities and counties are plan-
ning for enough housing to accommodate all
economic segments of the community. Based on
State guidance, SJCOG prepared a methodology
for forecasting regional population and house-
hold growth and estimated each communities
fair share of the projected regional housing need.

Each jurisdiction is then required to identify
land resources as part of their Housing Element
update that would be adequate to allow construc-
tion of housing sufficient to accommodate the
jurisdictions’ RHNA.

Table 13: Estimated Total Housing Capacity
Capacity Type Estimate Capacity
(units)
Estima te Population
Increase1
RHNA Sites 23,168 74,832
Underutilized Properties and Buildings
(Downtown Only)
6,000-10,000 19,380-32,300
Unincorporated Properties within the City
Growth Boundary (sphere of influence)
10,000-15,000 32,300-48,450
Total 53,435- 67,435 172,595- 217,815
1 Based on General Plan population assumptions of 3.23 persons per unit.

For the 2023-2031 Housing Element, the City of
Stockton’s RHNA was 12,673 housing units. T o
meet the RHNA, the City is relying on a variety
of existing development projects that have ap-
proved plans to construct 14,592 housing units.

In addition, the City identified vacant land suf-
ficient to absorb another 8,396 housing units at
a variety of density levels. The City also expects
to receive applications for construction of at least
180 accessory dwelling units on parcels with
existing primary residences. This brings the City’s
identified near-term housing capacity to at least
23,168 units.

For a more detailed description of the City’s
proposed sites to accommodate Regional Hous-
ing Needs Allocation (RHNA), please see the
2021-2023 Housing Element. Figure 14, below,
illustrates the location of RHNA sites in Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
Figure 14: RHNA Housing Capacity Site Map
Sources: City of Stockton, 2022; ESRI, 2022; PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN46
Underutilized Properties and Downtown
Buildings
In addition to the inventory of vacant sites identi-
fied above, Stockton also features a variety of
in-fill, redevelopment, and adaptive reuse op-
portunities. These generally include underutilized
sites that have not yet been developed to their
full potential, as well as vacant and underutilized
buildings that may be repurposed or redeveloped
to provide housing.

Underutilized Properties
Property is typically considered underutilized if
the property could reasonably support additional
development under the existing development
code and considering current market conditions.

Underutilized sites are often located in already
developed areas, making in-fill development and
redevelopment of underutilized sites a powerful
strategy for strengthening existing neighbor-
hoods and promoting economic development
and community vibrancy.

By definition, underutilized sites feature at least
some existing development, which often covers
a portion of the site, but leaves a large portion
undeveloped. Common examples include retail
buildings that take up only a portion of a site, with
the remainder undeveloped or simply paved over
with an excess of surface parking spaces. One
way of quantifying the extent to which a property
is underutilized is to compared the value of the
improvements to the value of the underlaying
land; though this approach has limitations in
California where assessed values are influenced
by Proposition (Prop.) 13.

As part of the Envision 2040 General Plan
update process, the City of Stockton prepared
an improvement-to-land (I/L) value ratio analysis
using County Assessor data to identify under-
utilized properties. For example, if a lot is worth
$100,000 and has a building worth $40,000, its
I/L ratio is 0.4. In this analysis, properties with an
I/L ratio of less than 1.0 were considered under-
utilized. Using this approach, the City identified
1,606 underutilized parcels covering 909 acres.

Exhibit 1 - Housing and Neighborhood Action Plans
Figure 15: Underutilized Properties
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN48
Underutilized Buildings
An underutilized building refers to a structure
that is either empty or mostly empty. The City has
numerous underutilized buildings throughout the
City which have been used for a variety of past
uses ranging from office to commercial, and even
industrial use. While many newer underutilized
buildings are currently being marketed for oc-
cupancy by new tenants or users, there are many
in the City deemed “chronically” vacant that have
not been used or occupied for extended periods,
often many years. These properties and the
neighborhoods that surround them may often
benefit from adaptive reuse and/or redevelop-
ment of these properties.

Potential Challenges:
• Deferred maintenance
• Seismic retrofitting
• Environmental contamination and toxic
materials
• Systems retrofitting and upgrades.
• Architectural reconfiguration
• On- and off-site utility upgrades
• Parking requirements
What are Redevelopment and Adaptive Reuse?
The term ‘redevelopment’ refers to the construc-
tion of new buildings or structures on a site
with previous or existing uses. In some cases,
redevelopment can also include adapting existing
structures for new uses by selectively modifying
and updating the structure to be conducive for
the new use. Redevelopment often includes
projects being undertaken within existing urban
neighborhoods that have already been signifi-
cantly built out, but can also include the reuse of
property in less developed areas. Development
of vacant previously undeveloped sites in existing
urban areas is known as in-fill development, while
construction of new buildings on sites where
prior development has already been cleared is
often referred to as brownfield development. The
demolition of existing structures to make way for
the near-term construction of new buildings is
typically referred to simply as ‘redevelopment, ’
while the repurposing of existing structures for
a new use or uses through modifications to the
structure and building systems is known as ‘adap-
tive reuse’ . While redevelopment and adaptive
reuse can be undertaken by anyone, ranging
from private property owners to neighborhood
associations, most redevelopment and adaptive
reuse is undertaken by private and not-for profit
developers due to the significant financial and
technical skills needed to successfully complete
such a project. The City of Stockton aims to facili-
tate activity in all of these categories to facilitate
the provision of housing.

Inventory of Underutilized Buildings
The City of Stockton has many underutilized
buildings, with many located in the historic Down-
town and surrounding areas. These buildings
range in size but include single story, low-rise,
and mid-rise buildings of varying sizes. The City
estimates that these buildings could potentially
accommodate hundreds of new housing units,
though the exact yield will depend on the final
mix of uses envisioned for each building, as well
as the number of units that may be reasonably
accommodated based on the architectural and
systems upgrades that are feasible within the
existing structures.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 49
Conversion to Residential
Stockton’s current zoning standards allow mul-
tifamily residential and mixed-used residential
in all commercial zoning designations except
for Commercial-Auto (CA) zones. This may
change as part of the current Development Code
overhaul, with updates likely aimed at facilitating
adaptive reuse and redevelopment. Nonetheless,
there are significant barriers to successful adap-
tive reuse beyond the requirements imposed
by the City of Stockton. Chief among them are
the costs associated with addressing structural
and systems deficiencies of existing buildings,
particularly those that are older and which were
not developed to current building codes (e.g.,
seismic retrofitting and repairs to unreinforced
masonry buildings; providing for multiple fire exits
in buildings not designed for them; addressing
shared walls and structural supports between
buildings; providing for the required amount of
parking etc.), as well as the costs associated with
removing environmental contamination and toxic
materials (e.g., lead paint, asbestos insulation and
tiles, etc.), and the cost associated with adapting
spaces and structural elements that were not
designed for residential use to provide functional
housing that meets the needs of prospective
tenants. Nonetheless, adaptive reuse help to
reactivate the existing built environment and can
make use of historical architectural resources.

For these reasons, identifying reuse opportunities
and incentivizing associated redevelopment has
become a priority for the City of Stockton.

Table 14 provides an example costs and revenues
for the adaptive reuse of an existing 60,000
square foot civic building in the Downtown from
office to residential use. The model is based on
actual estimated costs, which have been updated
to 2023 dollars and adjusted to account for
increases in materials and labor costs. Accord-
ing to these estimates, the total cost associated
with reuse of the existing structure for residential
purposes was more than $860,000 per unit. By
comparison, the estimated per unit cost associ-
ated with new market rate apartment construc-
tion is approximately $375,000 per unit. The
main driver of the exceptional cost of adaptive
reuse in this example is the need for extensive
seismic retrofitting of the existing brick masonry
structure, remediation of lead and asbestos mate-
rials used during the building’s original construc-
tion, and adaptation of the existing floor plate to
residential use. Due to these special needs, the
estimated cost to address deferred maintenance
and seismic retrofitting totaled more than $14.0
million, or around $400,000 per residential unit,
with residential conversion costing another $7.0
million, or $200,000 per unit. As a result, adap-
tive reuse of this building would be financially
infeasible without significant subsidy.

Not all buildings that are candidates for adaptive
reuse, however, face such significant cost con-
straints. For example, there have been two adap-
tive reuse affordable housing projects proposed
in the City of Stockton within the last few years,
including the Park Center Apartments in 2023
and the Sonora Square Apartments in 2021.

Both are nine percent tax credit affordable hous-
ing projects. In both cases, the projects included
the adaptive reuse of existing one- to two-story
commercial (i.e., office or retail) buildings along
with construction of new multifamily apartments.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN50
Table 14: Adaptive Reuse Proforma
Operating Revenue
Assump
tions
Development Cost
Assumptions, Con’t. Estimated Feasibility
Number of Units
(920 sq. ft.) 35
Soft Const. Costs Assumed CAP Rate 10%
Gross Rent ($2,340/
unit/month) $982,800 Historic Consulting
Fees $125,000 Capitalized Project
Value $7,892,220
Additional Program
Income $204,000 Environmental
Analysis $12,500 Estimated Project
Cost ($30,153,938)
Less Vacancy Loss ($59,340) Surveys
(Pre- & Post-Const.) $31,000 Residual Land Value ($22,261,718) Gross Annual Rental
Income $1,127,460 Architecture/
Engineering $1,500,000
L
ess Operating
Expense (30%) ($338,238) Planning/Permitting $625,000
Net Operating
Income $789,222 Property Taxes
(1.25%) $270,000
Contingency
Account $150,000
Development Cost
Assump
tions Developer Fee $2,190,000
Hard Const. Costs T otal Soft Cost $4,903,500
On-Site
In
frastructure $650,000
Deferred
Maintenance/
Seismic Stabilization
$14,000,000
Financing Costs
Residential
Con
version $7,000,000 Construction Loan
Interest $3,001,992
Contingency $250,000 Points on
Construction Loan $348,446
Total Hard Cost $21,900,000 Total Financing
Costs $3,350,438
Total Project Cost $30,153,938
Per Unit $861,541
The estimated cost associated with
building the Sonora Square Apart-
ments (38 units) was around $14.6
million in 2021, or around $383,000
per unit, while the cost associated
with the Park Center Apartments
(51 units) was $29.9 million, or
$586,500 per unit. The increased
cost per unit for the Park Center
Apartments is likely due to increas-
es in construction costs since 2021,
as well as costs associated with
reuse of a larger office building (i.e.,
units resulting from adaptive reuse
of existing structures accounted for
45 percent of the total unit count
at Park Center compared to 32
percent at Sonora Square).

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 51
Undeveloped Unincorporated Areas
Data from the San Joaquin County Assessor’s Office was utilized to pinpoint unused and underutilized parcels. The County Assessor has flagged nearly 7,000 acres as vacant land within the Sphere of Influence (SOI). Other opportunities for development on these parcels are considered underutilized because they have not been used to their maximum potential under current zoning regulations. This may include areas where only a portion of a parcel has been developed.

Developed Unincorporated Areas
While these areas should not be included when
discussing potential new residential housing
units, based on State Law and policy direction
from the San Joaquin Local Agency Formation
Commission (LAFCO) and the City’s policies,
incorporation of these developed areas could
become a reality due to development pressure to
annex land around existing communities in the
City’s Sphere of Influence. The following includes
an analysis of two main types of areas that could
potentially be annexed into the City in conjunction
with private development.

Disadvantaged Unincorporated Community
(DUC)
A “disadvantaged unincorporated community, ”
or DUC, is a fringe, island, or legacy community
in which the median household income is 80
percent or less than the statewide median
household income. Throughout California, there
are numerous unincorporated communities that
face economic, social, and educational inequality.

More than 200 of these communities are in the
San Joaquin Valley and many are isolated from
the rest of society. The living conditions in these
communities are cause for concern as they lack
basic infrastructure such as clean drinking water,
Exhibit 1 - Housing and Neighborhood Action Plans
Figure 16: Underutilized Parcels by Neighborhood
Sources: City of Stockton, 2022; ESRI, 2022;
PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 53
adequate sewer service, and storm drainage. The
State Legislature passed Senate Bill 244 in 2011
to address the legal, financial, and political barri-
ers that contribute to inequality and infrastructure
deficits in disadvantaged unincorporated com-
munities.

The city identified three types of DUCs, including
Census Designated Places (CDPs), Island, and
Fringe Communities. The CDPs that the City
identified are derived from San Joaquin County
local agency formation commission’s (LAFCos)
DUC analysis, the Island Communities are located
within the city boundaries and the Fringe Com-
munities are located outside of city boundaries,
but within the Sphere of Influence

5. The Stockton Metropolitan Area’s DUCs have
good fire protection and water services, but
some lack wastewater and storm drain systems.

Improvements are needed to bring deficient
areas up to modern standards and accommodate
growth. Some areas receive fire protection from
independent districts. By accounting for these
communities in the long-range planning process,
we can ensure a more efficient system for deliver-
ing services and infrastructure. This includes
water, wastewater, storm drainage, and structural
fire protection. Investing in these services and
infrastructure is crucial for the enhancement
and protection of public health and safety for
residents of these communities.
5 City of Stockton 2040 General Plan Adopted_Plan.pdf
(stocktongov.com)
Unincorporated Island Community (“County
Islands”)
Unincorporated island community means any
inhabited and unincorporated territory that is
surrounded or substantially surrounded by one or
more cities or by one or more cities and a county
boundary or the Pacific Ocean. City islands are
small areas of unincorporated land that are
mostly or entirely surrounded by incorporated
cities. They came about due to land use policies
in the 1950s and 1960s when cities were growing
rapidly. T o develop this land, cities needed to
annex neighboring county land. However, they
often skipped over nearby neighborhoods where
people didn’t want to be annexed because of
fears of higher taxes, a desire to preserve their
community identity, and the perceived benefits
of unincorporated status. Additionally, the infra-
structure in these areas was often inadequate
and expensive to upgrade. If opposition to an-
nexation was strong, cities would avoid forcing it
upon residents.

Cities offer services to urban residents while
counties provide countywide services like public
health, human services, and tax collection. Coun-
ties don’t compete with cities in providing ser-
vices to residential areas but offer some services
to island areas. Unincorporated island residents
get most services from the County rather than the
surrounding City. Poor infrastructure and unclear
jurisdictional boundaries can hinder investment
and cause confusion in service provision. Inef-
ficiencies arise when different departments pro-
vide the same service in the same area, creating
overlap and confusion. Responding to calls from
county islands can pose a challenge for Sheriff’s
Departments and fire protection districts, and
determining whether assistance is needed from
city or county residents can be time-consuming.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN54
Issues:

The following summarizes the major challenges
in annexing future land for new housing produc-
tion.
▶ Tax sharing currently benefits the County
and is lower than surrounding jurisdictions.

The State and School districts get 50% of
the property tax in new annexations. The
County gets 80% and the City gets 20% of
what remains which can impact a project’s
ability to provide enough revenue to offset the
anticipated costs associated with providing
municipal services.
▶ Annexation for new development may trigger
the annexation of Disadvantaged Unincorpo-
rated Communities (DUC) and/or Unincorpo-
rated Island Communities (“County Islands”).

Some of these areas may have significant in-
frastructure deficiencies and lower tax bases
to pay for needed infrastructure upgrades.
▶ Proximity to existing County residential and
nonresidential areas that fall within the City’s
growth boundary and that state law may
require to be annexed with new development.
▶ Upon analysis by the City’s Public Works and
Municipal Utility Department, the cost to
install services (water, sewer) to the site and
install civic improvements to meet City stan-
dards (sidewalk, lighting, stormdrain, etc.), the
anticipated cost associated with annexation
of all DUC and Island areas would be approxi-
mately $150,000 to $180,000 per lot.
▶ Current General Plan policies require new
projects not to overburden the City’s infra-
structure and services to prioritize existing
infrastructure deficiencies before expansion.
▶ Project level costs for the Island annexation
were not analyzed in the General Plan EIR
or Utility Master Plans. The City already has
areas within the City limits that do not comply
with the Complete Streets requirements and/
or have deficiencies in infrastructure. Adding
new infrastructure deficiencies would further
exacerbate this and shift resources from exist-
ing areas of the City to new areas of the City
that require improvements.
▶ As the City acknowledges the need to
incorporate these islands; however, without
a thorough analysis staff cannot determine
if the Island annexation will result in one or
more of the following:
▶ A significant impact (financially or noncon-
forming or construction) on the existing
County property owners,
▶ A legal issue (nexus and proportionality)
requesting Island incorporation be funded
solely by a private developer, and Significant
costs to the City for inclusion in City Master
Plans and increases in service demands.

Exhibit 1 - Housing and Neighborhood Action Plans
Figure 17: Unincorporated Island Community (“County Islands”) and DUCs Sources: City of Stockton, 2022; ESRI, 2022;
PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN56
Transformative Areas
Within the City of Stockton, there are five sub-
areas where the City is particularly interested in
incentivizing redevelopment, adaptive reuse,
and infill development as a method for improving
community vibrancy. These areas will require ad-
ditional investment to make them more attractive
to the development community.
• Channel Area (North + South Shores)
• Downtown
• Mormon Slough and South Stockton
• South Airport Area
• St.Joe’s Hospital and University Park
In many cases transitional areas are subject
to significant infrastructure deficiencies and
deferred maintenance of public facilities which
reduces development capacity (e.g., water and
sewer capacity) and increases the cost of devel-
opment for interested builders. Table 15 provides
an estimated total size of each transitional area
in acres as well as the estimated number of
residential units which could potentially be added
through new development, redevelopment, and
adaptive reuse. The table also highlights the total
estimated cost associated with addressing infra-
structure deficiencies and deferred maintenance.

Table 16 breaks down the estimated deficiency
cost into utility costs (i.e., stormwater, water, and
sewer infrastructure) and other off-site infrastruc-
ture costs (i.e., roadways, sidewalks, lighting,
other utilities). Lastly, Table 17 identifies the main infrastructure deficiency categories impacting
development within each transitional area, identi-
fies ongoing projects aimed at addressing at least
some of those identified deficiencies, as well as
potential funding sources that could be applied
for to address these needs.
# Area Name Approximate Size
(acres)
Estimate New
Unit Yield
Estimated
Infrastruc ture
Deficiency Cost
1 Channel Area
(North and South Shore) ±300 acres (139 parcels) 1,000-1,500 units $56,855,855 2 Downtown Core ±1,500 acres (397 parcels) 1,000-2,000 units $101,218,490.00 3 South Stockton/Mormon
Slough ±39 acres (58 parcels) 300-500 units $34,944,687 4 South Airport Way ±53 acres (57 parcels) 400-600 units $15,254,726 5 St. Joes and University Park
(CSU Stanislaus) ±170 acres (107 parcels) 400-600 units $56,483,375 Table 15: Transformation Area Summary
Exhibit 1 - Housing and Neighborhood Action Plans
Figure 18: Transformation Areas Map
Sources: City of Stockton, 2022; ESRI, 2022; PlaceWorks, 2024.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN58
Area # Area Designation Estimated Utility Costs Estimate Off-Site Infrastructure Costs Area Total
1 Channel Area (North/
South Shore) $26,417,000.00 $30,438,855.60 $56,855,855.60 2 Downtown $4,116,868.00 $97,101,622.00 $101,218,490.00 3 South Stockton/ Mormon
Slough $- $34,944,687.01 $34,944,687.01
4 South Airport Corridor $- $15,254,726.77 $15,254,726.77 5 St. Joseph/University Park $23,797,000.00 $32,686,375.64 $56,483,375.64 Totals $54,330,868.00 $210,426,267.01 $264,757,135.01
Table 16: Breakdown of Deficiency Cost
Priority Sites
In addition to identifying the five transitional
areas, the City identified ten priority sites in-
tended to be used as examples of successful
housing development in different parts of the city
as well as catalytic projects if developed near al-
lowable buildout, which are summarized in Table

18. These sites were selected by a process that
selected all “vacant and underutilized” sites and
then filtered the sites based on the site character-
istics that support robust housing development
(density, overlays), existing compliance with
policies (areas encouraging high-density hous-
ing), and financial feasibility. This section outlines
the sites, their market position, constraints to
development, and possible actions the City and
owners could take to facilitate development.

Summary of Key Findings
The development costs and revenue assump-
tions used for this analysis are based on those
summarized in the September 14, 2023,
memorandum summarizing findings from the
Residential Housing Types Development Feasibil-
ity Analysis prepared by BAE Urban Economics.

Updates were made to account for increasing
interest rates for construction loans and resi-
dential home mortgages. Additional details are
provided in Appendix 5.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 59
▶ Missing-Middle Housing: Priority site
number seven is not suitable for multifamily
development because the site is relatively
small at only 1.6 acres and is split into two
subareas by East Main Street. For the purpose
of this analysis, the site is assumed to be
developed as a cottage court project, though
the site may also be suitable for -plex and
townhome type projects. Despite increas-
ing interest and cap rates, a project could
yield around 21 market rate units and yield
a positive residual land value of $450,000
to $500,000 per acre, which would likely be
sufficient to secure the site at a market rate
land cost. While the City has indicated that
they would prefer to see site number nine on
South Airport Way develop with a multifamily
housing product, the site may be better suited
for commercial development but could also
be positioned with missing-middle housing
product. For the purpose of this analysis, the
site is assumed to build out as a compact
townhome project at a density of around 13
dua, which would yield around 21 units. As a
missing-middle housing project, the Airport
Way site could be feasibly developed with a
positive residual land of just under $230,000
per acre. However, research into recent land
sales and listings indicates that the typical
market price for land suitable for missing-
middle housing development ranges from
$300,000 to $400,000. Therefore, the South
Airport site could be developed, though the
property owner may be required to accept a
discount on the value of the land compared to
market comparable.
▶ Low-Rise Multifamily Rental: Priority sites
one through five were identified to be best
suited for low-rise multifamily apartments.

These sites are mostly located in areas with
existing low-rise or garden-style apartment
projects. Under current market conditions,
low-rise multifamily apartment construction
is not financially feasible. The primary barriers
to feasibility, assuming relatively aggressive
market rate rents, area construction costs,
interest rates and capitalization (CAP) rates.

T o achieve feasibility, CAP rates would need
to decrease to between five and six percent.

A decrease in interest rates would allow for
feasibility at somewhat higher CAP rates. With
a maximum base density of only 24 dwelling
units per acre (dua), the existing planning
framework allows a maximum density that
is below the industry standard of around
30 dua for low-rise multifamily apartments,
which is also reflected in adjacent apartment
projects. Leveraging state and local density
bonus’ would allow suitable densities. While
leveraging the density bonus allows for an
increase in total yield and a reduced per
unit development cost, the requirement to
adopt below market rents for a portion of the
developed units further reduces the potential
financial feasibility of the project. For example,
analysis for site number one indicates that
dedication of 35 percent of the units for
moderate-income households would allow for
a 30 percent density bonus. This would in-
crease the allowable density to 31.2 dua and
decrease the total cost per unit by $24,500
but would also reduce the capitalized value
by $16,500 per unit. While deed restricting
units at lower income levels can increase the
allowable density bonus, the reduced revenue
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN60
further worsens the project’s financial feasibil-
ity. Even a 100 percent density bonus, with
units restricted to moderate income, would be
insufficient to overcome the project’s negative
residual land value at current market interest
rates and CAP rates.
▶ Mid-Rise Multifamily Rental: Due to loca-
tion, underlaying zoning, and site configura-
tion, priority sites six, eight, and ten would
be best suited for mid-rise multifamily rental
housing development with base densities
ranging from 72 to 109 dua. Site number five
would also be suitable for mid-rise develop-
ment but has base zoning that allows only 24
dua. Site number nine, located at 2226 South
Airport Way, also has allowable base density
of only 24 dua, but due to location and site
configuration would require structured park-
ing in order to achieve a residential yield that
could potentially justify construction. Under
current market conditions, mid-rise multifami-
ly rental housing construction is not financially
feasible. The primary barriers to feasibility,
assuming relatively aggressive market rate
rents, are construction costs, interest rates,
and capitalization rates. T o achieve feasibility,
CAP rates would need to decrease to less
than five percent, though decreases in inter-
est rates and construction costs could allow
for feasibility at somewhat higher CAP rates.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 61
Area Issues Current Efforts/Projects: Potential Funding:

Channel
Area
(North
and South
Shore)
▶ Remediation
▶ Flood Issues
▶ Infrastructure (sewer)
▶ Market Demands
▶ Water quality
▶ Traffic (Fermont)
▶ Site control/ownership
▶ Dilapidated historic buildings
▶ Building code compliance
▶ North/South Shore Stantec
▶ Channel Zoning/Design Overlay
▶ Some Small CIP work in the area
▶ City Hall
▶ Webber and Webber point
▶ Caltrans bridge/overpass
▶ Special Tax District Needed
▶ EPA- Brownfield Grants (remediation)
▶ EPA- Building Blocks for Sustainable
Communities
▶ DOT- Transit-Oriented Planning Pilot
▶ DOT Raise
▶ San Joaquin Valley Regional
Transportation Planning Agencies
(RTPAs)
▶ CDBG
Downtown
▶ Market Demands
▶ Infrastructure (sewer/storm)
▶ Vacant Buildings
▶ Crime and Homelessness
▶ Grandview T errace
▶ Housing Action Plan- vacant building
survey, adaption resue proforma
▶ CD Zoning/Design Overlay
▶ New Cabral TOD zoning overlay
▶ New pump under moron slough
▶ New pump station would help
▶ Fiber optics with CM office
▶ Rule 20A undergrounding/joint trench
▶ Caltrans funded station area plans
▶ Downtown Infrastructure Overlay
▶ Opportunity Zones
▶ Regional Early Action Planning (REAP)

2.0 South
Stockton/
Mormon
Slough
▶ Market Demands
▶ Vacant Land
▶ Crime/homelessness
▶ Remediation
▶ Stockton Diamond Railroad
realignment
▶ Approve Percise/specific Plan Road
Plan
▶ New Zoning/Design Overlay
▶ Small CIP work
▶ California Road Diet
▶ Neighborhood Action Plan
▶ Special Tax District
▶ Community Development
Corporation (CDC) or Property and
Business Improvement District (PBID)
South
Airport
Corridor
▶ Conflicting Land Use- Industrial near
residential and Fair Grounds needs
amendments for mixed-use.
▶ Infrastructure (stormwater)
▶ Market Demands
▶ Connectivity
▶ State RFP
▶ Neigborhood Action Plan
▶ New Zoning/Design Overlay
▶ Special Tax District
▶ CDC or PBID
St. Joes
and
University
Park (CSU
Stanislaus)
▶ Vacant Space
▶ Infrastructure (stormwater)
▶ Adjacent County Boundaries/Islands
▶ Market Demands (lack of market rate)
▶ Job/Housing Balance
▶ Need for higher density (outside
greater downtown)
▶ St. Joes Expansion
▶ Pending: Gil Project, University Park
▶ CIP California Street Diet PW1805
▶ Private Development
▶ Area of Benefits (AOB)
▶ Capital Improvement Plan (CIP)
prioritization.
▶ Grants
▶ Special Tax
Table 17: Area, Issues, Project and Potential Funding
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN62
Definition of Key Terms:
• Min. Density – Minimum development
density as defined by zoning code, expressed
in dwelling units per acre (dua).
• Max. Density – Maximum development
density as defined by zoning code, expressed
in dwelling units per acre (dua).
• Realistic Yield – An estimate of what would
likely be feasible on the site, given market
and financial conditions, expressed as total
dwelling units.
• Max. Yield – An estimate of the total number
of dwelling units that would be permitted
onsite based on the zoning code.
• Median Gross Rent – The median rent for
renter-occupied units based on responses to
the American Community Survey conducted
by the U.S. Census Bureau. The value
shown is for the Census Block Group of the
immediate neighborhood containing the site.

Gross rent includes contract rent plus utilities
paid directly by the tenant.
• Median Home Value – The median home
value for owner-occupied units based on
responses to the American Community
Survey conducted by the U.S. Census
Bureau. The value shown is for the Census
Block Group of the immediate neighborhood
containing the site.
• Percent Low/Mod – The proportion of
persons of low or moderate income per
HUD definitions, based on the American
Community Survey, based on the Census
Tract where the site is located.
• Opportunity Score – A measure showing key
place-based characteristics of a Census Tract,
including educational attainment, earnings,
and economic mobility, developed by the
California Tax Credit Allocation Committed
and Housing and Community Development
department.
• R/ECAP – Racially or Ethnically Concentrated
Areas of Poverty, per a Census Tract-based
definition from the U.S. Department of
Housing and Urban Development (HUD).

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 63
Table 18: Site Information
Site Vacancy Status/ Adjacent Uses: Density/Yield: Census/HUD Variables: Market Orientation:

Site #1
March +
West
1756 E. March Ln.

APN(s): 09614055
Vacancy Status:

Vacant
Adjacent Uses:

South - Rio Calaveras Elementary School
Southwest – T orcello Apartments (~30 dua)
East – StorQuest Self Storage; 76 Gas Station; Jack in the Box
West – Supermarket-anchored shopping center
North – Weber Ranch Professional Park (office)
Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield – 105
Census/HUD Variables:

Median Gross Rent – $1,314/month
Median Home Value – $311,300
Percent Low/Mod – 57.2%
Opportunity Score – Moderate Re-
source
R/ECAP – No
Market Orientation:

Best Fit Use – Multifamily Residential
(Garden Apartments)
Likely Achievable Density - ~30 dua
(max. allowable)
Site Constraints – Possible access
issues
Market Considerations – Possibly better
positioned as a commercial site (i.e.,
an extension of shopping center to the
west; good proximity to employment
and retail; elementary school nearby.

Site #2
UOP North
940 Rose Marie Ln.

APN(s): 11022006
Vacancy Status:

Vacant
Adjacent Uses:

South – Gardemeyer Field (UOP Soccer Field)
East & Southwest – Single-family residential neighbor-
hoods; self storage
West – Multifamily apartments (2 story walkup; ~30 dua) North – Church and charter school, multifamily apart-
ments; Delta College (two blocks north)
Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield – 267
Census/HUD Variables:

Median Gross Rent – $1,426/month
Median Home Value – N/A
Percent Low/Mod – 67.9%
Opportunity Score – Low Resource
R/ECAP – No
Market Orientation:

Best Fit Use – Multifamily Residential
(Garden Apartments)
Likely Achievable Density - ~30 dua
(max. allowable)
Site Constraints – None
Market Considerations – This is an ideal
multifamily residential site; consistent
with adjacent uses; large site facilitates
high unit count; proximity to demand
driver (college campus) and retail
amenities.

Site #3
Country
Club
2142 Fontana Ave.

APN(s): 12118030
Vacancy Status:

Vacant
Adjacent Uses:

South – Utility parcel; multifamily apartments
North & West – Multifamily apartments; Safeway & Big
Lots shopping centers;
East – Interstate 5 Freeway
Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield – 74
Census/HUD Variables:

Median Gross Rent – $1,258/month
Median Home Value – $258,900
Percent Low/Mod – 34.7%
Opportunity Score – Moderate Re-
source
R/ECAP – No
Market Orientation:

Best Fit Use – Multifamily Residential
(Garden Apartments)
Likely Achievable Density - ~30 dua
(max. allowable)
Site Constraints – Major floodplain/SB5
Market Considerations – This is an ideal
multifamily residential site; consistent
with adjacent uses; large site facilitates
high unit count; proximity to retail
amenities; unlikely for higher density
for-sale housing due to proximity to
freeway and surrounding multifamily
uses.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN64
Site #4
Eastland
North
740 N. Wilson Wy.

APN(s): 14107022, 14104018, 14104017
Vacancy Status:

Vacant
Adjacent Uses:

South – Supermarket-anchored shopping center
East – Industrial/warehouse
North – Used car sales, auto repair, single-family residen- tial
West – Used car sales lots
Density/Yield:

Min. Density – 17.5
(two of the three
parcel)
Max. Density – 30
Max. Yield –191
Census/HUD Variables:

Median Gross Rent – $1,097/month
Median Home Value – $153,500
Percent Low/Mod – 45.3%
Opportunity Score – Low Resource
R/ECAP – No (adjacent to the west)
Market Orientation:

Best Fit Use – Multifamily Residential
(Garden Apartments); for-sale town-
homes or small lot single-family
Likely Achievable Density - ~30 dua
(max. allowable)
Site Constraints – Possible environ-
mental contamination due to recycling
activity
Market Considerations – Large site
facilitates high unit count; proximity
to retail amenities; adjacent to older
single-family neighborhoods; relatively
low home values/rents.

Site #5
Gill Property
APN(s): 12718049, 12718048, 12718034, 12718033,
12718032, 12718031, 12718030, 12718029, 12718022,
12718018, 12714018
Vacancy Status:

Surface parking
Adjacent Uses:

South – Older shopping center with mixed medical uses;
new Starbucks/Subway
North – Multistory medical office building; single-family residential
East – St. Joseph’s Medical Center (Check Development
Plans)
West – Single-family residential
Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield –74
Census/HUD Variables:

Median Gross Rent – $1,095/month
Median Home Value – $194,400
Percent Low/Mod – 58.7%
Opportunity Score – High Resource
R/ECAP – No (two blocks to the south)
Market Orientation:

Best Fit Use – Multifamily residential
oriented towards hospital system
employees; mid-market townhomes
possible on the west/north sides, either
at market or set aside for employees
and/or patient families
Likely Achievable Density - ~30 dua
(max. allowable)
Site Constraints – Possible utility capac-
ity issues
Market Considerations – Medium site
facilitates higher unit count; proximity
to employment; high resource area;
single-family on two sides; question of
hospital system plans.

Site #6
Fremont
Site
N/A
APN(s): 13719033, 13719030
Vacancy Status:

Surface parking on the north side of West Fremont Street, across from the Waterfront Hotel, along with the EDD
building w surface parking
Adjacent Uses:

South – Stockton Arena
North – Single-family residential
East – Stockton Memorial Civic Auditorium
West – Single-family residential; underutilized commercial Density/Yield:

Min. Density – 20
Max. Density – 136
Max. Yield – 522
Census/HUD Variables:

Median Gross Rent – $813/month
Median Home Value – $240,400
Percent Low/Mod – 65.4%
Opportunity Score – High Segregation
& Poverty
R/ECAP – Yes
Market Orientation:

Best Fit Use – Depending on the long-
term strategy for the waterfront district,
this site would likely be most appropri-
ate for mixed retail and entertainment
uses and/or high density multifamily
Likely Achievable Density – Unclear;
financial feasibility within the district is
uncertain.

Site Constraints – Unknown
Market Considerations – Adjacent to
major entertainment uses; sites best
positioned for retail/entertainment
uses; relatively low-rent/income
neighborhood; could offer potential in
coordination with broader district-wide
redevelopment efforts.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 65
Site #7
East Main
Street
3002 East Main Street
APN(s): 15710318, 15709035, 15709034, 15709033,
15709032, 15709031, 15709030
Vacancy Status:

Vacant
Adjacent Uses:

South – Single-family residential
West/South – Vacant & underutilized commercial
West – Retail/commercial, single-family residential
North/East - Single-family residential; retail/commercial Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield – 48
Census/HUD Variables:

Median Gross Rent – $1,118/month
Median Home Value – $187,500
Percent Low/Mod – 71.3%
Opportunity Score – High Segregation
& Poverty
R/ECAP – Yes
Market Orientation:

Best Fit Use – Garden style multifamily;
duplexes or cottage court
Likely Achievable Density – Unclear;
likely below the maximum allowable
Site Constraints – Utility capacity?
Market Considerations – Identified as
a “commercial corridor revitalization
opportunity”; site is divided between
two sites of ~1 acre (6 parcels) and

0.63 acres (1 parcel); site aggregation
is required on the northern portion of
the site.

Site #8
Lafayette
411 South Stanislaus Street
APN(s): 14926120, 14909518, 14909504, 14909503,
14909502
Vacancy Status:

Vacant
Adjacent Uses:

South – Gleason Park Apartments (Affordable); Eden
Gleason Park
North – Crosstown Freeway
East – Two story garden apartments; single-family resi- dential
West – Automotive service-related; Chapel of the Palms; Filipino Community Building
Density/Yield:

Min. Density – 20
Max. Density – 90
Max. Yield – 205
Census/HUD Variables:

Median Gross Rent – $810/month
Median Home Value – N/A
Percent Low/Mod – 94.04%
Opportunity Score – High Segregation
& Poverty
R/ECAP – Yes
Market Orientation:

Best Fit Use – Medium or garden style
multifamily
Likely Achievable Density – Ap-
proximately 23 units per acre, similar to
Gleason Park
Site Constraints – Unknown
Market Considerations – Difficult
market area for market rate multifam-
ily; close proximity to the freeway;
visibility from the freeway as signal of
revitalization; could be an affordable
site, though the Downtown is already
overconcentrated.

Site #9
East 8th+
Airport
2226 South Airport Way
APN(s): 16916301, 16915101
Vacancy Status:

Vacant
Adjacent Uses:

South – Family dollar store; single-family residential
North – Southside Market; single-family residential
East – Single-family residential
West – Used tire store; auto repair shop, vacant lot; bus stop
Density/Yield:

Min. Density – 17.5
Max. Density – 30
Max. Yield – 48
Census/HUD Variables:

Median Gross Rent – $996/month
Median Home Value – $189,700
Percent Low/Mod – 71.86%
Opportunity Score – High Segregation
& Poverty
R/ECAP – Yes
Market Orientation:

Best Fit Use – Strip commercial; garden
style multifamily
Likely Achievable Density – 15-30 dua
Site Constraints – Unknown
Market Considerations – Site is likely
best positioned for a stand-alone retail
use; may be too small to achieve unit
totals to facilitate financial feasibility for
residential; could potentially be part of a
scattered sites approach to low-income
housing; difficult market area for
market rate housing, but on border of
higher price area; reasonable proximity
to residential amenities.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN66
Site #10
Miner +
Stanislaus
744 East Miner Avenue
APN(s): 13929011
Vacancy Status:

Beas Auto Sales
Adjacent Uses:

South – Channel & Community Medical Centers; Silver-
crest Apartments (Low-Income)
North – Vacant commercial; DGS affordable housing site
East – Auto sales lot; Omax Auto Sales; vacant auto repair West – Community Medical Center; auto sales lot
Density/Yield:

Min. Density – 20
Max. Density – 136
Max. Yield – 77
Census/HUD Variables:

Median Gross Rent – $526/month
Median Home Value – N/A
Percent Low/Mod – 94.04%
Opportunity Score – High Segregation
& Poverty
R/ECAP – Yes
Market Orientation:

Best Fit Use – Deed restricted low-
income or special needs housing
Likely Achievable Density – Unknown
Site Constraints – Unknown
Market Considerations – Site is unlikely
to be developable with market-rate
housing in the near to medium term as
units would be largely unmarketable
under current market conditions; best
positioned for deed-restricted low-in-
come or special needs housing, though
such development would contribute to
further concentrated poverty within the
Downtown core; site lacks amenities
and quality of life factors needed to
facilitate market-rate development.

Recommended Actions
The following actions expand on the Housing Ele-
ment Goals and Programs and address specific
challenges in Stockton’s Housing Market for cur-
rent and future housing needs.

COLLABORATION
The following actions shall continually be con-
ducted to improve collaboration and inventory
the needed resources and partnerships for ad-
ditional action.

HAP-ACTION 3.1: Property Owner Outreach
Conduct targeted outreach to property owners in
the Transformational Areas identified by the HAP
and communities in the Neighborhood Action
Plans to learn why they may leave a site unde-
veloped or underutilized. Explain any applicable
incentives or programs the City offers that may
assist the property owner with developing the
site.

City Initiated Efforts
The following actions shall continually be
conducted to improve resources for residents,
stakeholders, and developers proposing housing
in the City.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 67
HAP-ACTION 3.2: Increase Base Densities
▶ Consider increasing the allowable maximum
base density on sites positioned for low-rise
multifamily residential development. Aim
to provide a base density that is in line with
the current industry standard for market
rate garden style multifamily development
of around 30 dua or more. This would allow
developers to build rental housing that is con-
sistent with existing development in the area
without the need for discretionary approvals
or incorporation of income-restricted units.

Note, however, that achievable densities are
also limited by consumer expectations.

HAP-ACTION 3.3: Lot Consolidation
▶ In some cases, the priority sites are comprised
of multiple sites. The City should work to facili-
tate lot consolidation to provide site control.

HAP-ACTION 3.4: Missing Middle
Demonstration
▶ Work with property owners of sites seven
and nine to facilitate construction of missing
middle housing demonstration projects. This
may include coordination and streamlining for
project design, planning, and approval.

HAP-ACTION 3.5: Fee Waivers and Deferrals
▶ While the funding gaps associated with new
multifamily residential construction are typi-
cally larger than the fee burdens imposed by
the City of Stockton, fee waivers or deferrals
may contribute to improved financial feasibil-
ity. In locations where the required infrastruc-
ture already exists with adequate capacity,
consider providing fee credits, waivers, and/
or deferrals to reduce development costs.

HAP-ACTION 3.6: Annexations
▶ Amend the General Plan and Municipal Code
(Title 16) to grant staff flexibility in processing
annexations that may require the inclusion of
Disadvantaged Unincorporated Communities
(DUC) and Unincorporated Island Communi-
ties (“County Islands”).
▶ Staff will continue to explore options with the
County and LAFCO for the orderly annexation
of these areas. This process could include the
following process:
● Parcel and Land-Use Survey: This
includes an analysis of all properties, land
uses (zoning), and existing uses (current
use of property) for all parcels within the
Unincorporated Islands and Disadvantage
Unincorporated Communities (DUC).
● Impact Studies: Staff would seek as-
sistance from qualified professionals
to conduct studies that could include
Fiscal Impact Analysis, Economic Impact
Analysis, Standards of Coverage analysis,
and others when needed. The cost of this
type of analysis can be between $20,000
to $30,000 dollars per Island and Disadvan-
taged Unincorporated Community.
● Coordination with Regional Partners:

This can include County and Council of
Government coordination for infrastructure
improvements, levels of services, tax shar-
ing agreements, and eventual processing.
● Public Outreach: Once a land inven-
tory, fiscal impact analysis, and regional
partnerships can be better understood,
Staff would seek community feedback and
present the pros and cons of an annexation
request to the existing county residents.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN68
While their support is not required per
Lafco policy, Staff would seek their support
and understanding to minimize potential
impacts (upfront and ongoing costs) and
seek additional infrastructure financing
options that require owner approval (i.e.,
assessment district).
● Hearing Reports: This includes a formal
review by the City with neighborhood
meetings, Planning Commission review,
City Council approval, and Lafco submit-
tal. This could include a Memorandum of
Understanding (MOU), Joint-Powers Au-
thority, or other form of mutual agreement
for the processing and annexation of these
areas.

Funding
The following actions shall continually be con-
ducted to improve funding capabilities and lever-
age new resources when available.

HAP-ACTION 3.7: Low-Cost Mezzanine Debt
▶ Consider offering low-cost mezzanine debt
to bridge the funding gap between debt and
traditional construction and permanent debt
sources.

HAP-ACTION 3.8: Tax Credit Affordable
▶ In some cases, development may be acceler-
ated through pursuit of tax-credit financing for
deed restricted affordable housing. However,
the City would like to see more market rate
development in key locations recognizing the
goals of avoiding the overconcentration of
poverty and promoting economic develop-
ment.

HAP-ACTION 3.9: Actively Market
Opportunities
▶ Recognizing that many of these sites are
well positioned for development but are con-
strained by recent increases in construction
costs and financial performance expectations
(i.e., cap rates), BAE recommends that the
City continue active dialogue with local and
regional developers regarding these sites to
develop interest in anticipation of future inter-
est and cap rate decreases.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 69

4. The Development Process
The following section summarizes information on planning and approval processes, development standards, available resources and funding, and potential partnerships to facilitate housing production in the City of Stockton.

Main Solutions
• The City continues to work with
stakeholders and industry leaders to
discuss what is needed to improve the
development standards and process.

This includes working with consultants to
better understand changes to state law,
market feasibility, and best practices.
• Continued pursuit of performance
management and data analytics.
• Explore Policy and Land Use amendments
that would provide more flexibility for
future development and help target more
funding opportunities.
• Provide more requirements and
incentives to diversify housing types and
income levels by changing the General
Plan and zoning requirements. This
would require diversification of housing in
Stockton, with allowances and waivers for
projects that demonstrate.
• Increased customer support for
navigating the development process.

Main Takeaways
• Governmental constraints do not seem
to be a major constraint to housing
production. The City allows various
residential and mixed-use housing in
residential and commercial zoning.
• While the City permits various types of
housing at various income levels, the two
most prominent new construction types
are market rate single family detached
housing and low-income apartments.
• The State has enacted various mandates/
legislation that supersede local land use
authority for Emergency and Transitional.
• While the code allows for various Missing
Middle housing types (i.e., duplex, cottage
courts, etc.) it does not explicitly indicate
that permittance in the code.
• While most residential uses are permitted
by-right, the design review for those units
remains ministerial without the need for
state preemption of design review (i.e.,
SB35, SB330). This means the approval
of new units is not subject to discretionary
review or public hearings.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN70
Housing Categories
Here are the three main housing categories in
Stockton, organized for easy reference instead of
density/zoning classification (i.e., low, medium,
high) or housing type (i.e., duplex, apartment).

They cover a broad range of housing types
intended to implement the Housing Element by
meeting current and future housing needs. The
three categories include:
▶ Permanent Housing – Includes the housing
types that most people think of, ranging from
traditional single-family homes to multifamily
apartments, as well as -plex units, town-
homes, and accessory dwelling units (ADUs)
among other types of housing.
▶ Transitional and Supportive Housing -
Includes a range of housing types ranging
from housing for persons transitioning from
homelessness to support housing for the
elderly and those suffering from a disability
(physical, mental, substance) that impacts
their ability to find and secure adequate
and affordable housing and/or supportive
services. Commonly referred to as Residential
Care Facilities, as well as Supportive and
Transitional Housing.
▶ Emergency Housing – Includes emergency
shelters, homeless shelters, low-barrier
navigation centers, and social service facilities
like drug abuse, alcohol recovery/treatment
facilities, and feeding centers, among others.

Where is Housing Allowed?
As discussed above, the City of Stockton’s
General Plan Land Use Element and Zoning Code
specify what types of housing are allowed within
different zones or parts of the city. For more
detailed information on each of the City’s zoning
districts, as well as to identify the zoning associ-
ated with a specific property, please refer to the
City of Stockton Development Code and the City
of Stockton Interactive Zoning Map, respectively.

Digital Map of the General Plan Land Use Map
and Citywide Zoning map can be found in the
links below.

General Plan Land Use Plan General_Plan_Land_
Use_Map.pdf (stocktonca.gov)
Zoning Map: ZoningDistrictMap.pdf (stocktonca.
gov)
Permanent Housing
Applicability and Definitions
The permanent housing category includes the
housing types that most people think of when
they think of housing, ranging from single-family
detached homes (the most common housing
type in Stockton) to high density apartments and
condominium projects. Units of permanent hous-
ing are designed as primary residences intended
for full-time occupancy. Permanent housing
units may be rented or owned by the occupying
household at either market or below-market rates.

The City of Stockton Development Code further
subdivides the category of permanent housing
into two main subcategories, including:

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 71
▶ Single-Family
● Detached (SFD)– A dwelling unit that is
designed for occupancy by one household
with a private yard(s) on all sides and lo-
cated on a separate lot from any other unit
(except an accessory dwelling unit, where
permitted). This subclassification includes
individual manufactured housing units.
● Single-Family Attached (SFA) – A dwell-
ing unit that is designed for occupancy by
one household located on a separate lot
from any other unit (except an accessory
dwelling unit, where permitted), yet is
attached through common walls to more
than one dwelling on an abutting lot(s).
▶ Multi-Unit Dwelling (MUD)
● Multi-Unit - Two or more attached or
detached dwelling units on a single lot.

Types of multi-unit dwellings can include
lots with multiple detached residential units
(except as described above), like cottage
courts, but can also include attached units,
such as duplexes, triplexes, quadplexes,
rowhouses, townhouses, apartment build-
ings, condominium buildings, mixed use
facilities, and other similar buildings.

In addition, the Development Code also provides
standards for development of other special hous-
ing types, including:
▶ Accessory Dwelling Units (ADU) – An at-
tached or detached residential dwelling unit
which provides complete independent living
facilities for one or more persons, including
permanent provisions for living, sleeping,
eating, cooking, and sanitation on the same
parcel as a single-family or multi-unit dwelling
(where permitted).
▶ Junior Accessory Dwelling Unit (JADU)
- An ADU that is no more than 500 square
feet in size and contained entirely within a
single-family or multi-unit dwelling (where
permitted). A junior accessory dwelling unit
may include separate or shared sanitation
facilities within the existing structure.
▶ Live-Work Space – A unit that combines
a workspace and a residential living space
which are occupied and used by a single
household that has been constructed for
such use or converted from commercial or
industrial use and structurally modified to ac-
commodate residential occupancy and work
activity. The working space is reserved for and
regularly used by one or more occupants of
the unit.
▶ Co-Living Facilities - A residential facility
where living accommodations are individual
secure rooms, with or without separate kitch-
en or bathroom facilities. Co-living units may
be rented or sold often under condominium
or land trust type models. This use clas-
sification also includes extended stay hotels
intended for long-term occupancy (more than
30 days), but excludes Hotels and Motels, and
Residential Care Facilities.
▶ Mobile or Manufactured Home Park – A
development occupied by a manufactured
housing unit(s), including facilities and
amenities used in common by residents who
rent, lease, or own spaces for manufactured
housing units through a subdivision, coopera-
tive, condominium, or other form of resident
ownership.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN72
Other Special Standards
Mobile Homes
▶ Mobile and manufactured homes are subject
to the “Mobilehome Parks Act” (California
Health and Safety Code, commencing with
section 18200) as most of the permitted con-
struction and operations fall under the juris-
diction of the California Department of Hous-
ing and Community Development (HCD). Sec-
tions 65852.3 and 65852.4 of the California
Government Code specify that a jurisdiction
shall allow the installation of manufactured
homes on a foundation on all “lots zoned for
conventional single family residential dwell-
ings. ” Except for architectural requirements,
the jurisdiction is only allowed to “subject the
manufactured home and the lot on which it is
placed to the same development standards to
which a conventional single family residential
dwelling on the same lot would be subject. ”
The architectural requirements are limited to
roof overhang, roofing material, and siding
material. The only two exceptions that local
jurisdictions are allowed to make to the
manufactured home siting provisions are if:
(1) there is more than 10 years difference
between the date of manufacture and the
date of the application for the issuance of an
installation permit; or (2) if the site is listed on
the National Register of Historic Places and
regulated by a legislative body pursuant to
Government Code Section 37361. Section
69852.7 of the California Government Code
specifies that mobile home parks shall be a
permitted use on “all land planned and zoned
for residential land use. ” However, local juris-
dictions are allowed to require use permits for
mobile home parks..

Group Homes
▶ State law requires group residential facilities
of six or fewer persons to be considered a
single-family dwelling for the purpose of any
law or zoning ordinance related to residential
property use (California Health and Safety
Code Sections 1267.8, 1566.3, 1568.08). The
Housing Element includes Program 15 to
amend the Development Code to allow group
homes for six persons or fewer in the RE
zone. The Commission Use Permit process
is the only restriction to family care homes
with more than six individuals. Group homes
in single-family or two-family structures are
exempt from Title 24 requirements. The
Commission Use Permit has not been used
to deny a family care home of seven or more
individuals in Stockton. According to the
Health and Safety Code Sections 1267.8,
1566.3, and 1568.08, residential care facilities
with seven or more must be allowed without a
use permit.

Farmworkers and Employee Housing
▶ State law asserts that employee housing for
six persons or less shall be allowed in the
same way residential structures are allowed
in zones allowing residential uses and that
employee housing for up to 12 units or 36
beds shall be deemed an agricultural use and
must be subject to the same regulations as
any other agricultural use in the same zone.
“No Conditional Use Permit, zoning variance,
or other zoning clearance shall be required
of this employee housing that is not required
of any other agricultural activity in the same
zone” (Employee Housing Act, California
Health and Safety Code Sections 17021.5 and
17021.6). Farm labor housing is considered
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 73
an agricultural activity and is permitted by
right in all zones allowing agricultural uses,
which complies with State law (Health and
Safety Code Section 17021.6). Program 15
is included to update the Development Code
to allow employee housing for six persons or
less in the same way residential structures are
allowed in zones allowing residential uses.

Co-Living (Single-Room Occupancy) Units
▶ Co-living units can provide affordable hous-
ing for lower-income individuals, seniors,
and persons with disabilities, and can serve
as an entry point into the housing market
for formerly homeless people. A co-living
unit is usually small, between 200 to 350
square feet, for 1(-2) person(s) and utilizes
shared bathrooms and kitchens. As the city
of Stockton has aged, downtown hotels
serving overnight visitors became residential
hotels, or co-living units, renting rooms by
the day, week, or month to very low-income
individuals or couples. According to the
City of Stockton, as of 2023, there were five
residential hotels operating in the downtown
central business district of Stockton. There
are numerous residential hotels currently
vacant due to habitability, housing, and other
code violations. It is unlikely that these hotels
will be reopened and operated as hotels since
there is significant work needed to get the
residential hotels operational for overnight
accommodations. There is a mix of one-,
two-, and three-bedroom apartments that
include both affordable and market-rate units.

The City performs annual inspections of the
remaining residential hotels to make sure that
these hotels meet minimum health and safety
standards.

Resources
The following outlines existing funding options
and other resources to facility the construction of
new housing units.

Funding Options
Table 19 outlines existing fundings sources ap-
plicable to permanent housing. This list may not
represent every existing funding source and ad-
ditional funding recommendations are discussed
in the Actions and Recommendations section of
the HAP .

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN74
Program Name Description Eligible Activities
Federal Programs
Community
Development Block
Grant (CDBG)
Grants available to the County on a competitive basis for a variety of housing and community development activities. County competes for funds through the State’s application process.
▶ Acquisition/Rehabilitation
▶ Home Buyer Assistance
▶ Homeless Assistance
Housing Choice
Voucher Program
(Section 8)
Assistance program that provides direct funding for rental subsidies for very low-income families.
▶ Rental Assistance
Home Investment
Partnership
Program (HOME)
Grants available to the County on a competitive basis for a variety of housing activities. County competes for funds through the State’s application process.
▶ Home Buyer Assistance
▶ Housing Rehabilitation
▶ New Housing Construction
▶ Rental Assistance
Section 202
Grants to private nonprofit developers of supportive housing for very low-income seniors.
▶ New Housing Construction
Housing
Rehabilitation
Program
Provides financial assistance to low-income homeowners for health and safety improvements.
▶ Housing Rehabilitation
Emergency Shelter
Grants
Competitive grants to help local governments and nonprofits finance emergency shelters, transitional housing, and other supportive services.
▶ New Housing Construction
▶ Housing Rehabilitation
▶ Homeless Assistance
Homeless
Emergency
Assistance and
Rapid Transition to
Housing (HEARTH)
Funding through the HEARTH Act of 2009 to provide necessary resources for development of programs to assist homeless individuals and families.
▶ Homeless Assistance
▶ New Construction
Housing
Opportunities for
Persons with AIDS
(HOPWA)
The HOPWA program provides housing assistance and supportive services for low-income people with HIV/AIDS and their families. ▶ Rental Assistance
Table 19: Financial Resources for Housing Activities
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 75
Program Name Description Eligible Activities
State Programs
Affordable Housing
and Sustainable
Communities
(AHSC) Program
Funds Projects that implement land-use, housing, transportation, and agricultural land preservation practices that reduce greenhouse gas (GHG) emissions. Funding for the AHSC Program is provided from the Greenhouse Gas Reduction Fund (GGRF), an account established to receive Cap-and-Trade auction proceeds.
▶ New Housing Construction
▶ Housing-Related Infrastructure
▶ Transportation Infrastructure
Local Housing Trust
Fund Matching
Grant Program
Provides matching grants to local housing trust funds that are funded on an ongoing basis from private contributions or public sources that are not otherwise restricted in use for housing programs.
▶ New Housing Construction
▶ Homebuyer Assistance
Single-Family
Housing Bond
Program (Mortgage
Revenue Bonds)
Bonds issued to local lenders and developers so that below-market interest rate loans can be issued to first-time homebuyers. ▶ Homebuyer Assistance
Mortgage Credit
Certificates (MCC)
Provides qualified first-time homebuyers with a federal income tax credit that reduces the borrower’s federal tax liability, providing additional income, which can be used for mortgage payments. ▶ Homebuyer Assistance
Prop 63 Mental
Health Services Act
Funds
Funding for capital improvements and operating subsidies for supportive housing for formerly homeless or at-risk individuals with mental disabilities.
▶ Special-Needs Programs
▶ New Housing Construction
CalHome Program
Grants awarded to jurisdictions for owner-occupied housing rehabilitation and first-time homebuyer assistance.
▶ Homebuyer Assistance
▶ Housing Rehabilitation
Low-Income
Housing Tax Credit
(LIHTC)
A 4 percent annual tax credit that helps owners of rental units develop affordable housing.
▶ New Housing Construction
Affordable Housing
Partnership
Program (AHPP)
Provides lower-interest California Housing Finance Agency (CHFA) loans to homebuyers who receive local secondary financing. ▶ Homebuyer Assistance
Permanent Local
Housing Allocation
(PLHA)
PLHA provides a permanent source of funding for all local governments in California to help cities and counties implement plans to increase the affordable housing stock. The two types of assistance are: formula grants to entitlement and nonentitlement jurisdictions, and competitive grants to nonentitlement jurisdictions. ▶ Predevelopment/Development
▶ Acquisition/Rehabilitation
▶ Housing Preservation
▶ Matching Funds
▶ Homelessness Assistance
▶ Accessibility Modifications
▶ Homeownership Assistance
▶ Fiscal Incentives
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN76
Program Name Description Eligible Activities
Local Early Action
Planning (LEAP)
Grants
The LEAP grants provide over-the-counter grants complemented with technical assistance to local governments for the preparation and adoption of planning documents and for process improvements that accelerate housing production.

Facilitate compliance to implement the sixth-cycle Regional Housing Needs Assessment.
▶ Housing Element Updates
▶ Updates to Zoning, Plans,
or Procedures to Accelerate
Housing Production
▶ Preapproved Arch./Site Plans
▶ Establishing State-Defined
Pro-housing Policies
▶ Complete List in Program
Materials
Senate Bill
2 Technical
Assistance Grants
Financial and technical assistance to local governments to update planning documents and the development code to streamline housing production, including, but not limited to, general plans, community plans, specific plans, implementation of sustainable communities’ strategies, and local coastal programs.
▶ T echnical Assistance
▶ Planning Document Updates
Housing and
Disability Advocacy
Program (HDAP)
Services to assist disabled individuals experiencing homelessness apply for disability benefit programs while also providing housing assistance. HDAP has four core requirements: outreach, case management, disability advocacy, and housing assistance. ▶ Rental Assistance
No Place Like Home
Loans to counties or developers in counties for permanent supportive housing for those with mental illness who are homeless or at risk of homelessness.
▶ New Housing Construction
Homeless
Emergency Aid
Program (HEAP)
A block grant program designed to provide direct assistance to cities, counties, and continuums of care to address the homelessness crisis throughout California.
▶ Homelessness Needs
▶ Capital Improvements
▶ Rental Assistance
California
Emergency
Solutions and
Housing (CESH)
Provides funds for activities to assist persons experiencing or at risk of homelessness. Program funds are granted in the form of five-year grants to eligible applicants.
▶ Service System Administration
▶ New Housing Construction
▶ Rental Assistance
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 77
Program Name Description Eligible Activities
Local Programs
Stockton Economic
Stimulus Plan
(SESP)
Provides fee reductions for some of the Public Facility Fees (PFF) for both single-family and multi-family residential projects. A reduction of PFF up to a total of $19,997 or 100%, whichever is less, for single- family residential and $14,080 per unit for multi-family residential for these fee categories: City Office Space, Libraries, Fire Stations, Parks, Community Recreation Centers, Police Stations, and Street Improvements. T o participate in the residential component of SESP , a developer must comply with the local hire and disadvantaged individual requirements as stated in Stockton Economic Stimulus Plan Brochure.
▶ Single-family residential
development
▶ Multifamily development (local
hire not required)
▶ Only projects within City Limits
Other Resources
The following outlines existing State allowances
and items that can assist in the construction of
new housing units.
▶ Senate Bill 330: Senate Bill (SB) 330, the
Housing Crisis Act of 2019, allows housing
developments for which a preliminary ap-
plication is submitted that complies with
applicable general plan and zoning standards
is subject only to the development standards
and fees that were applicable at the time of
submittal. This applies to all projects unless
the project square footage or unit count
changes by more than 20 percent after the
preliminary application is submitted. The City
of Stockton offers a pre-application confer-
ence for any application for new development
or redevelopment which is required to go
before the Planning Commission and any
subdivision map for five or more lots, to
ensure that the applicant is aware of issues
and requirements related to the project.
▶ Senate Bill 35: Currently, the City of Stockton
does not have a process established for
processing projects under SB 35; however,
the City complies with state law regarding
SB 35. The City has included Program 14 to
establish a process that specifies the SB 35
streamlining approval process and standards
for eligible projects.
▶ Senate Bill 9: The City has prepared
supplemental requirements and established
a process for approving two unit and urban
lot splits consistent with SB9. Applicant can
download the forms on the Community
Development’s website at HERE. The City
will codify these changes as part of the
Development Code (zoning) Overhaul to be
completed in 2024.
▶ Senate Bill 10: Authorizes local governments
to adopt an ordinance to zone any parcel for
up to 10 units of residential density per parcel,
at a height specified in the ordinance, if the
parcel is located in a transit-rich area or an
urban infill site, as those terms are defined.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN78
Partnerships
Table 20 is not meant promote any group, but
to provide a list of commonly known groups and
agencies in the San Joaquin region that assist in
the creation, maintenance, or funding of perma-
nent housing in the City. For more information
please contact the groups directly.

AFFH and Equity Partners
• The Housing Authority of San Joaquin County
• San Joaquin Fair Housing
• Reinvent South Stockton Coalition (RSSC)
• Valley Mountain Regional Center, San Joaquin
County
• Disability Rights California
• Faith in the Valley
• Community Partnership for Families / The
Community Foundation of San Joaquin
• National Association for the Advancement of
Colored People (NAACP)
• Little Manila Rising
Examples of Permanent Housing Types
Rural
Single Family (Attached/Detached)
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 79
Contact Contact Information
Stocktonians Taking Action to Neutralize Drugs (STAND) – STAND often buys blighted single-family homes, fully rehabilitates them and sells them to low- and moderate-income families. The organization maintains a listing of available homes for sale. STAND also provides Home Loan Counseling for first time home buyers. STAND also owns five homes which it maintains as rentals, listed here. Finally, STAND owns three apartment buildings, renting units to very low-income families.
1209 E. 8th Street Stockton, CA 95206
(209) 937 7625
http://standaffordablehousing.org/
Visionary Homebuilders of California – Visionary Home Builders is a non-profit developer of affordable family and senior housing targeted towards low- and moderate-income households. Visionary Home Builders is headquartered in Stockton and has developed and operates multiple properties throughout the City.
315 N. San Joaquin Street, Stockton, CA
95202
(209) 466-6811
https://visionaryhomebuilders.org/
Housing Authority of the County of San Joaquin – Delta Community Developers Corporation (DCDC) is the 501c3 non-profit development arm of the Housing Authority of the County of San Joaquin. DCDC develops affordable and permanent supportive and senior housing communities throughout San Joaquin County, including in the City of Stockton.
2575 Grand Canal Boulevard, Suite 100,
Stockton, CA 95207
(209) 460-5000 or (800) 855-7100
https://hacsj.org/development/
AG Spanos Companies – Spanos Companies is a Stockton-based developer of multifamily and master planned residential communities. 10100 Trinity Parkway, 5th Floor, Stockton,
CA 95219
(209) 478-7954
https://agspanos.com/
Grupe Huber Co. – Grupe develops commercial and residential real estate, including market rate multifamily rental housing. The firm currently has two projects in Stockton, including the Stonebrier Apartments and the Eight Mile Apartments.
1203 N. Grant Street, Stockton, CA 95202
(209) 490-2663
https://grupehuber.com/
Enterprise Community Partners – Enterprise is a national non-profit that develops affordable low- and moderate-income housing, manages housing preservation programs, and provides technical assistance to local communities.
101 Montgomery Street, San Francisco,
CA 94104
(415) 395-9405
https://www.enterprisecommunity.org/
Table 20: Local Home Builders
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN80
Transitional Housing
Transitional housing is commonly defined to
include housing intended for temporary oc-
cupancy ranging from a number of months to a
number of years, and is typically associated with
public services designed to aid in the transition of
persons experiencing homelessness, substance
abuse, physical abuse, or other similar issues
from homelessness or homeless shelter facilities
into permanent market rate or affordable hous-
ing, rental or for-sale.

Applicability and Definitions
Pursuant to California Government Code Section
65583(c)(3), transitional and supportive housing
constitute a residential use and are subject only
to those restrictions that apply to other residential
uses of the same type in the same zoning district,
as re-stated in the Stockton Development Code
and Use Regulations.
▶ Transitional Housing – Transitional housing
is designed to help homeless individuals and
families move beyond emergency shelter to
permanent housing (California Health and
Safety Code Section 50675.2). Transitional
housing includes buildings configured as
rental housing, but which are operated under
program requirements that call for the termi-
nation of assistance and recirculation of the
assisted unit to another eligible program re-
cipient. Typical occupancy is no less than six
months. The City of Stockton’s Development
Code defines transitional housing as a “use
by right” that shall have the same meaning as
defined in subdivision (i) of Government Code
Section 65583.2.
▶ Supportive Housing – Permanent supportive
housing has no limit on length of stay and is
occupied by a target population, and is linked
to onsite or offsite services that assist the
resident in retaining housing, improving their
health, and maximizing their ability to live
and, when possible, work in the community
(California Health and Safety Code Section
50675.14; California Government Code Sec-
tion 65650). Target populations often include
those exhibiting certain risk factors like home-
lessness, mental illness, and/or substance use
and addiction. Supportive housing comes in
all shapes and sizes. It could be a renovated
motel offering furnished co-living apartments;
a multifamily development where tenants
with disabilities live alongside other families
with low incomes; a small, service-intensive
cohousing project; or scattered-site apart-
ments.

Existing Transitional and Supportive
Housing Resources
Several transitional or supportive housing pro-
grams are offered in San Joaquin County, mostly
in the City of Stockton. Transitional and perma-
nent supportive housing programs are provided
by Central Valley Low Income Housing Corpora-
tion (CVLIHC), New Directions, Women’s Center –
Youth and Family Services, Gospel Center Rescue
Mission, Dignity’s Alcove, Stockton Shelter for the
Homeless, Lutheran Social Services, and HOPE
Family Shelter.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 81
Applicable Standards
The following sections summarize the zoning
and development standards for the uses defined
above. This summary is meant to provide clar-
ity on the overall process and items required.

Please contact the Community Development
Department at 209-937-8266 or at Planning@
stocktonca.gov for more information on process-
ing and approval.

Allowable Zones and Areas
California Government Code Section 65651
requires supportive housing developments with
up to 50 units to be permitted by right in all zones
where multi-family and mixed-use residential de-
velopments are permitted, provided the project
satisfies all of the following requirements:

1. All supportive housing units within the devel-
opment are subject to a recorded affordability
restriction for 55 years.

2. One hundred percent of the units, excluding
managers’ units, within the development
are dedicated to lower income households
(California Health and Safety Code Section
50079.5) and are receiving public funding to
ensure affordability.

3. At least 25 percent of the units in the develop-
ment, or 12 units, whichever is greater, are
restricted to residents in supportive housing
who meet criteria of the target population. If
the development consists of fewer than 12
units, then 100 percent of the units, excluding
managers’ units, shall be restricted to sup-
portive housing.

4. The developer provides the information
required by California Government Code Sec-
tion 65652 to the Planning Division.

5. Nonresidential floor area shall be used for
onsite supportive services as follows:
a. At least 90 square feet for a development
with 20 or fewer total units.
b. At least 3 percent of the total nonresiden-
tial floor area for a development with more
than 20 units.

6. The developer replaces any dwelling units on
the site of the supportive housing develop-
ment in the manner as prescribed in Gov.

Code Section 65915 (3)(c).

7. Excluding managers’ units, units include at
least one bathroom and a kitchen or other
cooking facilities, including, at minimum, a
stovetop, a sink, and a refrigerator.

8. The City shall, at the request of the project
owner, reduce the number of residents
required to live in the project if the project-
based rental assistance or operating subsidy
is terminated through no fault of the project
owner if all of the following conditions have
been met:
a. A good faith effort is made to find other
sources of financial support.
b. Any change in the number of supportive
service units is restricted to the minimum
necessary to maintain a project’s financial
feasibility.
c. Any change to the occupancy of the sup-
portive housing units is made in a manner
that minimizes tenant disruption and only
upon vacancy.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN82
Process
The following outlines the general process for
approval and construction of Transitional and
Supportive Housing.

Transitional Housing
While SB 2 (Cedillo – 2007) added specific new
requirements for local governments to meet in
terms of planning for emergency shelter facilities,
Government Code Section 65583(a)(5) also
states that “transitional housing and supportive
housing shall be considered a residential use
of property and shall be subject only to those
restrictions that apply to other residential dwell-
ings of the same type in the same zone. ” State law
requires cities and counties to allow transitional
and supportive housing in all zones that allow
residential uses.

Supportive Housing
Government Code Section 6565 (a)) requires
cities and counties to consider supportive hous-
ing as a residential use allowed in all zones that
allow residential uses and mixed use and only
subject supportive housing projects to those
restrictions that apply to other residential uses
of the same type in the same zone. Additionally,
supportive housing must be permitted by-right in
multi-family, mixed-use, and nonresidential zones
allowing multi-family. Therefore, supportive
housing is allowed in the city wherever single-
family and multi-family residential is allowed.

Specific Standards
As the law requires cities to permit Transitional
and Supportive Housing uses subject to the
same regulations as similar residential develop-
ments in the same zone, the Stockton Municipal
Code does not contain separate development
standards for Transitional and Supportive Hous-
ing; rather, Transitional and Supportive Housing
developments will be subject to the applicable
residential development standards for each zone
where these uses are permitted.

Emergency Shelters
Existing Shelter Resources
Table 21 on the following page identifies and
summarizes the characteristics of the existing
shelter facilities available in the City of Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 83
Facility/Provider Location Description Address
Gospel Center Rescue
Mission (GCRM) Stockton
GCRM operates an emergency shelter for 100 homeless men, women, and children as well as a 50 bed Recuperative Care Program (RCP) that provides 24-hour shelter beds for people who are too well to be in the hospital, but too sick to recuperate on the streets.

Stockton Shelter for
the Homeless (SSH) Stockton
SSH provides temporary shelter for up to 357 single adults and families at two facilities and HOPW (Housing Opportunities for Persons with Aids) homes. The shelter assists clients in obtaining permanent housing.

Women’s Center -
Y outh and Family
Services, Safe House
Stockton Safe House offers up to 21 days of shelter and supportive services for up to 10 runaway and homeless youth ages 12-17 and their children.

Haven of Peace French Camp
The Haven of Peace is a two-week shelter for up to 35 women and their children offering case management and life skills classes with transitional housing stays lasting up to six months.

Hope Family Shelter Manteca The Hope Family Shelter can house 8 families. Food, clothing, utilities, and counseling are provided.

Raymus House (Hope
Family Shelter) Manteca
An emergency shelter that services up to 10 families consisting of women and children who have been displaced for up to 60-90 days. Women may bring their children, girls ages 0-18 and boys 0-12.

Hope Harbor Shelter Lodi
Hope Harbor is the largest shelter in Lodi, which can accommodate women with children, men, and single-family units. It is also the only shelter in the area that can house single fathers with children. Clients may stay 56 nights per calendar year with an option for a 28-day extension should they enter into case management.

Lodi House Lodi Lodi House is a shelter for women and their children. The facility houses approximately seven adults and their children.

McHenry House Tracy
The McHenry House provides shelter and meals for single women, women with children, and couples, up to 18 people for a maximum stay of 15 days. The shelter typically serves seven families at a time.

Women’s Center
- Family and Y outh
Services, Serenity
House
Tracy
Serenity House is an emergency shelter for battered women and their children.

Serenity House offers a comprehensive 60-day program with the capacity to serve up to 12 women and their children at a given time.

Table 21: Existing Overnight and Emergency Facilities
Source: PlaceWorks; contacted agency or facility, October 2022.

Notes: The majority of facilities serve unaccompanied males and females, adult couples without children, and single-parent and two-parent families. The Women’s Center – Youth and Family Services (YFS) Safe House is the only shelter that specifically serves unaccompanied youth under 18. Stockton Shelter for the Homeless (SSH) and Gospel Center Rescue Mission (GCRM) have the greatest capacity at 357 and 240 beds, while the remaining shelters have an average capacity of 30 beds.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN84
Applicability and Definitions
The emergency housing residential use category
includes emergency and homeless shelters,
low-barrier navigation centers, and social service
facilities, like drug abuse and alcohol recovery
and treatment facilities, among other uses. Ex-
amples of emergency housing may include new
purpose-built facilities, new or existing residential
structures (single-family, multi-unit, or multifamily
units), repurposed hotel or motel properties,
or repurposed commercial or civic structures.

Emergency housing facilities may offer a range of
services, ranging from facilitating the bare neces-
sities of daily living to in-patient residential treat- ment programs. The City Development Code
further subdivides the category into three main
subcategories based on definitions established
under the California Government Code, including:
▶ Emergency Shelter – (California Health and
Safety Code Section 65582) Housing with
minimal supportive services for homeless
persons that is limited to occupancy of six
months or less by a homeless person. No
individual or household may be denied emer-
gency shelter because of an inability to pay.
● T emporary Shelter (Shelter Crisis, as de-
fined by local ordinance) - facilities operat-
ing for up to 24 months.
● Permanent Emergency Shelters: facilities
operating longer than 24 months.
▶ Low Barrier Navigation Center – (California
Government Code Section 65660) A housing
first, low-barrier, service-enriched shelter
focused on moving people into permanent
housing that provides temporary living facili-
ties while case managers connect individuals
experiencing homelessness to income, public
benefits, health services, shelter, and housing.
“Low Barrier” means best practices to reduce
barriers to entry, and may include, but is not
limited to, the following:
● The presence of partners if it is not a
population-specific site, such as for survi-
vors of domestic violence or sexual assault,
women, or youth.
● Accommodations for clients and their pets.
● The storage of possessions.
● Privacy, such as partitions around beds
in a dormitory setting or in larger rooms
containing more than two beds, or private
rooms.

Applicable Standards
The following sections summarize the zoning and
development standards for the emergency shel-
ter uses defined above. This summary is meant
to provide clarity on the overall process and
items required. Please contact the Community
Development Department at 209-937-8561 or at
[email protected] for more information
on processing and approval.

Allowable Zones and Areas
State Housing Element law (California Govern-
ment Code Sections 65582, 65583, and 65589.5)
requires local jurisdictions to identify one or more
zoning designations that allow residential uses,
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 85
including mixed uses, where emergency shelters
– and other similar uses like navigation centers,
bridge housing, and respite or recuperative care
– are allowed without a conditional use permit or
similar discretionary permit.
6 Under Government
Code Section 65662, low barrier navigation cen-
ters must be allowed by right in areas zoned for
mixed use and nonresidential zones permitting
multifamily uses.
7 6 The zoning designation(s) that allow emergency shelters without a conditional use permit must have estimated land capacity sufficient to accommodate the projected need, as documented in the jurisdictions’ Housing Element. Each jurisdiction must have at least one zoning designation with capacity to accommodate at least one year-round emergency shelter or navigation center. Once these requirements are met, jurisdictions may also identify other zoning designations where emergency shelters and related facilities are permitted with a conditional use permit.
7 Per California Government Code Section 65662, a
jurisdiction is required to permit a low barrier navigation center if it meets the following requirements:

It offers services to connect people to permanent housing through a services plan that identifies staffing.

It is linked to a coordinated entry system, so that staff in the interim facility or staff who co-locate in the facility may conduct assessments and provide services to connect
people to permanent housing. “Coordinated entry system” means a centralized or coordinated assessment system
developed pursuant to Section 576.400(d) or Section
578.7(a)(8), as applicable, of Title 24 of the Code of Federal Regulations, as those sections read on January 1, 2020, and any related requirements, designed to coordinate program participant intake, assessment, and referrals.

It complies with Chapter 6.5 starting with Section 8255) of Division 8 of the Welfare and Institutions Code.

It has a system for entering information regarding client stays, client demographics, client income, and exit destination through the local Homeless Management Information
System as defined by Section 578.3 of Title 24 of the Code of Federal Regulations.

Stockton allows emergency shelters in the
Residential High-Density, Commercial Office,
Commercial General, Commercial Downtown,
and Industrial Limited districts with a Commission
Use Permit. The Development Code does not
place any further restrictions or requirements
on these uses. The City also allows emergency
shelters “by right” (i.e., without a Commission
Use Permit or other discretionary approval) in
the Industrial Limited (IL), Industrial General (IG),
and Public Facilities (PF) districts. While the IL
and IG zones allow industrial uses, the zones are
reserved for operations that are totally conducted
indoors. The PF zone allows numerous other
residential uses, including single-family homes
and multifamily units, and is therefore suitable for
emergency shelters.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN86
Specific Standards
The following are specific standards pertaining to
Emergency Housing and Low Barrier Navigation
Centers.

Emergency Shelters
SMC Section 16.80.155 (Emergency Shelters)
and California Government Code Section 65583
specify that emergency shelters may be subject
to only the following objective standards above
those required of other residential or commercial
development in the same zone:
▶ Maximum number of beds or persons permit-
ted to be served nightly.
▶ Parking sufficient to accommodate all staff
working at the facility, provided that the
requirement does not exceed that of other
residential or commercial uses in the zone.
▶ The size and location of exterior and interior
onsite waiting and client intake areas.
▶ The provision of onsite management.
▶ Proximity to other emergency shelters, (not
required to be more than 300 feet apart).
▶ Allowed length of stay.
▶ Lighting.
▶ Security during hours that the emergency
shelter is in operation.

The City’s municipal code determines the
maximum number of beds for an emergency
shelter by Building and Fire Codes. Development
standards for emergency shelters are:

A. Separation Between Structures. Develop-
ments with multiple structures shall provide a
12-foot separation between those structures.

B. Physical Characteristics.

C. Compliance with applicable State and Local
Uniform Housing and Building Code require-
ments.

D. The facility shall have on-site security during
all hours when the shelter is open.

E. Facilities shall provide exterior lighting on
pedestrian pathways and parking lot areas on
the property. Lighting shall reflect away from
residential areas and public streets.

F. Facilities shall provide secure areas for per-
sonal property.

G. Maximum Number of Beds per Facility. The
maximum number of beds per facility shall be
determined and as allowed by Building and
Fire Codes.

H. Limited T erms of Stay. The maximum term of
staying at an emergency shelter is six months
in a consecutive 12-month period.

I. Parking. The emergency shelter shall provide
off-street parking at a ratio of two spaces per
facility for staff plus one space per 10 occu-
pants allowed at the maximum capacity.

J. Emergency Shelter Management. A man-
agement plan is required for all emergency
shelters to address management experience,
good neighbor issues, transportation, client
supervision, client services, and food services.

Such plan shall be submitted to and approved
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 87
by the Director prior to operation of the emer-
gency shelter. The plan shall, at minimum,
identify the property owner’s and operator’s
names and contact information, on-site
security, and anti-loitering measures. The plan
shall include a floor plan that demonstrates
compliance with physical standards of this
chapter. The operator of each emergency
shelter shall annually submit the management
plan to the Director with updated information
for review and approval. The City Council
may establish a fee by resolution to cover the
administrative cost of review of the required
management plan.

K. Waiting Area. T o prevent queuing of shelter
residents off-site, an on-site intake waiting
area shall be provided that is adequate to ac-
commodate all incoming residents.

L. Proximity. The proximity of an emergency
shelter next to another emergency shelter
shall be at minimum 300 feet.

In addition, Government Code 65583(a)(4) (SB
2) limits parking requirements for Emergency
Shelters to no more than an amount sufficient to
accommodate all staff working in the emergency
shelter provided that the standards do not require
more parking for emergency shelters than other
residential or commercial uses within the same
zone. Currently, the SMC requires providing off-
street parking at a ratio of two spaces per facility
for staff plus one space per 10 occupants allowed
at the maximum capacity. In addition, other
standards, including the proximity standard, need
to be updated for consistency with State law.

The City has included Program 12 in the Housing
Element to revise the standards to ensure compli-
ance with State law.

Low Barrier Navigation Centers
Government Code Section 65662 requires that
Low-Barrier Navigation Centers be developed
as a use by right in zones where mixed uses are
allowed or in nonresidential zones that permit
multifamily housing. For a navigation center to
be considered “low barrier, ” its operation should
reduce barriers to entry, which may include, but
are not limited to, the following:
• Permitting the presence of partners if it not a
population-specific site, such as for survivors
of domestic violence or sexual assault,
women, or youth.
• Providing accommodations for clients and
their pets.
• Providing space for storing possessions.
• Providing privacy, such as private rooms or
partitions around beds in a dormitory setting
or in larger rooms with multiple beds.

Temporary Shelters
In the event that the City Council declares a
shelter crisis, pursuant to California Government
Code Section 8698.2, the following apply to tem-
porary housing (SMC section 16.80.155):

1.  Temporary Housing. T emporary structures
for habitation, including, but not limited to, trail-
ers, recreational vehicles, manufactured homes,
tiny homes, and similar configurations are permit-
ted on parcels with the approval of a temporary
activity permit.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN88

2.  Application Filing and Processing.
a. General. In zoning districts that permit
emergency shelters by-right, an application for
temporary housing shall be filed and processed
in compliance with Section 16.164.030(B) (T em-
porary activities). It is the responsibility of the
applicant to provide evidence in support of the
findings required by subsection (J)(4) (Findings
and decision), below.
b. Multiple Temporary Units. For proposals
that include multiple temporary housing units on
a single parcel, the application shall also include
details of the operations of the use, including, but
not limited to, a description of the following:
i. Number of proposed units.
ii. Cooking facilities.
iii. Sanitation facilities and management thereof.
iv. Power source and associated noise mitiga-
tion.
v. Site lighting.
vi. Site security and management, including the
number of staff on site at any given time.
vii. Location of proposed parking.
viii. On-going site maintenance.
ix. Duration of temporary housing.
x. Clean-up/returning the site to its original con-
dition following termination of the use.

3. Development Standards.
a. Number of Units Permitted. The number
of temporary housing units, either individual, or
single-family units, permitted on a parcel shall be
determined through the temporary activity permit
process.
b. Lighting. Adequate external lighting shall be
provided for security purposes in compliance
with Section 16.32.070.
c. On-Site Management. For proposals that in-
clude multiple temporary housing units, with five
(5) or more units on a single parcel, at least one
(1) facility manager shall be on-site during hours
of operation.
d. Sanitation Facilities. The number of bath-
rooms and showers required on site shall be
determined through the building permit process,
and shall be consistent with the California Build-
ing Code.
e. Parking. No parking is required for temporary
housing.
f. Water and Wastewater Services. Water
and wastewater service shall be available on the
site proposed for temporary housing structures
unless an alternative source is approved by the
City of Stockton Municipal Utilities Department
and Cal Water (if applicable) and complies with
applicable California Building Code provisions.
i. Water. T o protect the public water system,
the appropriate approved backflow device
shall be required. Initial testing certification
of backflow devices is required and shall be
performed by an entity as determined by the
water purveyor.
ii. Wastewater. T o protect public health, con-
nection to the wastewater system is required.

The City of Stockton Municipal Utilities
Department will determine the appropriate
connection requirement.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 89
g. Electrical Service. Electrical services shall
be available on the site proposed for temporary
housing structures unless an alternate source is
approved by the Director, and is in accordance
with any applicable provisions of the California
Building and Electrical Codes. All temporary or
permanent electrical service shall be located on
the subject site.

4. Findings and Decision. The Director may
approve a temporary activity permit for temporary
housing pursuant to Section 16.164.050 (Find-
ings and decision).

5. Duration of Use. The duration of a temporary
housing use shall be determined by the Direc-
tor. It shall be the responsibility of the property
owner to ensure that temporary housing units
are vacated in accordance with law on or before
expiration of the temporary activity permit. (Ord.
2020-06-09-1501 C.S. § 21; Ord. 2016-04-12-
1602 § IV)
Funding Options
The following outlines existing funding sources
applicable to Emergency Shelter facilities. This list
may not represent every existing funding source
and additional funding recommendations are
discussed in the Actions and Recommendations
section of the HAP .
▶ Community Development Block Grant
(CDBG)- Grants available to the County on a
competitive basis for a variety of housing and
community development activities. County
competes for funds through the State’s ap-
plication process.
▶ Emergency Shelter Grants- Competitive
grants to help local governments and non-
profits finance emergency shelters, transi-
tional housing, and other supportive services.
▶ Continuum of Care/Homeless Emer-
gency Assistance and Rapid Transition to
Housing (HEARTH)- Funding through the
HEARTH Act of 2009 to provide necessary
resources for development of programs to
assist homeless individuals and families.
▶ Permanent Local Housing Allocation
(PLHA)- PLHA provides a permanent source
of funding for all local governments in Cali-
fornia to help cities and counties implement
plans to increase the affordable housing
stock. The two types of assistance are:
formula grants to entitlement and non entitle-
ment jurisdictions, and competitive grants to
non entitlement jurisdictions.
▶ Homeless Emergency Aid Program
(HEAP)- A block grant program designed to
provide direct assistance to cities, counties,
and continuums of care to address the home-
lessness crisis throughout California.
▶ California Emergency Solutions and Hous-
ing (CESH)- Provides funds for activities
to assist persons experiencing or at risk of
homelessness. Program funds are granted
in the form of five-year grants to eligible ap-
plicants.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN90
Partnerships
The following lists are not meant to promote any
group, but to provide a list of commonly known
groups and agencies in the San Joaquin region
that assist in creating, maintaining, or funding
emergency shelter. For more information, please
contact the groups directly.
• San Joaquin Continuum of Care (SJCoC)
• The Housing Authority County of San Joaquin
(HACSJ)
• Gospel Center Rescue Mission
• Lodi Committee on Homelessness
• Central Valley Building Industry
• Catholic Charities
• City of Stockton City Manager’s Office
• SJC Behavioral Health, Public Health, Human
Services Agency
• Community medical centers
• St. Joseph’s Medical Center
• Tracy Community Connections Center
• Haven on Peace
• Family Resource and Referral Center
• St. Mary’s Dining Kitchen
Recommended Actions
The following actions expand on the Housing Ele-
ment Goals and Programs and address specific
challenges in Stockton’s Development Review
Process for current and future housing needs.

COLLABORATION
The following actions are intended to enhance
collaboration with stakeholders and developers
to improve the review process and the standards
used within those processes.

HAP-ACTION 4.1: Enhanced Neighborhood
Planning
Support neighborhood efforts to create and
implement Specific Plans, Commercial Corridor
Action Plans, and additional community plans
and strategies that address housing needs. The
City shall work to conduct neighborhood-level
planning with residents to develop responsive
engagement and investment strategies that
ensure meaningful and equitable participation
and anti-displacement solutions in areas targeted
for inclusive economic and community develop-
ment. Infrastructure and California Environmental
Quality Act (CEQA) analysis should be conducted
to facilitate and reduce the length and cost of the
development review process.

HAP-ACTION 4.2: Developer Outreach.

Hold a symposium or a series of meetings with
local and regional housing developers and land-
holders to discuss opportunities and barriers to
housing development. Provide resource educa-
tion on City programs which may incentivize de-
velopment. Work to remove barriers mentioned in
the meetings within the City’s jurisdiction.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 91
HAP-ACTION 4.3: Neighborhood Metrics
Explore data and community health metrics
within each of City’s 15 defined neighborhood
areas, to identify best practices to improve
sustainability and ensure equal access to services
and opportunities in these neighborhoods. Met-
rics can include percentage of housing diversity
and income affordability, proximity to civic ser-
vices, education facilities, and employment, and
needed goods.

HAP-ACTION 4.4: Regional Analysis of
Impediments to Fair Housing
The City shall continue to participate in a regional
collaborative approach to analyzing and address-
ing fair housing issues through the five-year
review and update of the regional Analysis of Im-
pediments to Fair Housing Choice. The City shall
take affirmative actions to further fair housing
choice in the City by implementing the solutions
developed in the Regional Analysis of Impedi-
ments to Fair Housing Choice (AI) to mitigate
and/or remove fair housing impediments.

Enhanced Standards and Process
The following actions are intended to enhance
development standards to increase the likelihood
of high-quality housing development and provide
clarity to developers and City staff.

HAP-ACTION 4.5: Corridor Revitalization
The City should consider zoning amendments
to increase the usability of commercial and
residential corridors of importance in the City and
surrounding areas. These changes should assist
in the revitalization of these corridors with the
following practices.
▶ Deter land uses and businesses that
negatively impact the area or already have
an overconcentration in the area. If the uses
cannot be discouraged, include development
standards that enhance the surrounding area
and mitigate negative impacts from the use.

An example is enhanced landscaping, light-
ing, and screening walls designed for outdoor
equipment storage.
▶ Add standards that buffer sensitive uses
from noxious or intense uses (e.g. protect
residential areas from industrial uses). This
should include standards to mitigate exces-
sive or unpleasant noise, lighting, vibration,
and odors.
▶ Deter traffic patterns that impact negatively
or disproportionately impact those areas
(example are area with heavy freight traffic).
▶ Identify areas with possible contamination
from pipelines, brownfields, or illegal dump-
ing.
▶ Continue to explore design standards to en-
hance aesthetics, reflect the corridors’ history,
and contribute to a sense of place.

HAP-ACTION 4.6: City Initiated Zoning Code
Amendments
The City will explore an annual city-initiated
zoning map and code updates to help rezone
and make regulatory changes that help com-
munities and owners at the City’s expense. These
changes would occur once a year and at the
City’s expense. Proposed changes must align
with General Plan policies and not impact on the
surrounding uses.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN92
HAP-ACTION 4.7: Increase Densities to
Increase Ridership
Since effective transit ridership typically relies on
higher densities (around 16 units/acre) to ensure
enough residents for ridership, the City should
look to increase housing densities along transit
corridors and urban areas to allow densities of a
minimum 16 units/acre to facilitate high densi-
ties that could lead to more housing units and
increase ridership.

HAP-ACTION 4.8: Increase Regulatory
Incentives
The City should explore more market-driven
zoning code reform as illustrated in the Housing
Element:
• Density allowances to spur development.
• Infill standards that streamline and add
flexibility to aid in developing smaller lots (5
acres and below).
• Environmental Streamlining through
enhanced performance measures.
• Create requirements for new development to
provide a percentage of high-density housing
and possible waivers for projects that provide
defined public benefit.

HAP-ACTION 4.9: Historic Preservation Fund
Pursue and promote historic preservation
funding sources, such as the California Mills
Act Property Tax Abatement Program, Federal
Historic Preservation Tax Incentives Program, and
State Historic Rehabilitation Tax Credit Program,
to incentivize the rehabilitation and protection of
historic resources in the Study Area.

HAP-ACTION 4.10: Housing for Large
Households
Update the Development Code to allow devia-
tions from development and design standards
for multifamily and mixed-use residential projects
that include at least 10 percent large units (three
bedrooms or more) of the total units. Deviations
may include reduced parking standards, reduc-
tion in setbacks, or reductions in landscaping
requirements, among others.

HAP-ACTION 4.11: Conversions to Affordable
Housing
The City shall explore new strategies to convert
abandoned and blighted properties into afford-
able housing.

HAP-ACTION 4.12: Homeless Protections
Work with the Economic Development Depart-
ment to use funding received from the California
Interagency Council on Homelessness, and other
resources, to create affordable housing options
for residents experiencing or at risk of homeless-
ness, through the following actions:
• Partner with qualified developers in the
development of future rounds of a Homekey
project funding applications. for Round 3 of
State funding.
• Establish a Motel Voucher program.
• Offer financial support to developers that
include housing options for extremely low-
income residents, including subsidized units
and/or single-room occupancy-living units.
• Partner with community and nonprofit
organizations to connect persons
experiencing or at risk of homelessness with
caseworkers. Develop a homeless outreach
that includes members with a variety of
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 93
specialties (e.g., mental health, medical
services, family services) to connect homeless
residents with supportive services.
• Offer transportation to the Navigation Center,
or other Stockton Shelter programs, for
interested individuals and families.
• Analyze and strengthen, if necessary, active
transportation connections to the Navigation
Center.
• Use funding received from the California
Interagency Council on Homelessness to
implement the Local Homeless Action Plan.
• Establish a local community working group
to regularly meet with residents to identify
and prioritize needed improvements in public
infrastructure, such as larger sidewalks and
bike infrastructure.

HAP-ACTION 4.13: Encourage Co-Living
Facilities
The City shall encourage micro-unit housing in
combination with significant shared community
space and new shared and intergenerational
housing models to help meet the housing needs
of aging adults, students, and lower income
individuals and families. The City will partner
with regional groups and educational institutions
to explore potential partnerships and builders
who specialize in providing and/or operating this
type of housing. This can include the creation of
a Single Room Occupancy (SRO) ordinance to
provide standards and seek funding and other
resources for the rehabilitation and creation of
SRO units.

HAP-ACTION 4.14: Movable Tiny Homes as
ADUs
The City shall consider amending the Planning
and Development Code to allow movable tiny
homes to be considered an ADU.

HAP-ACTION 4.15: Overconcentration of Non-
Urban Uses
The city should explore restrictions in specific
corridors and redevelopment areas to prohibit the
use of businesses that may impede future rede-
velopment. A market study should be conducted
in coordination with business representatives and
property owners, but land uses or businesses
for consideration to minimize overconcentration
could include Auto parts stores, New/Used car
sales, Gas stations, Payday (short-term) lending,
and Pawn shops).

HAP-ACTION 4.16: Mixed Income Housing
Ordinance
The City shall explore the use of a mixed income
housing ordinance and conduct an economic fea-
sibility study to guide any, including considering
an inclusionary housing component. The City will
engage a broad range of stakeholders to ensure
a variety of voices and interests are heard and
considered. Based on the findings of the evalua-
tion and the study, the City shall consider amend-
ments to the ordinance to increase the amount of
affordable housing built in the City while ensuring
the requirements do not constrain overall housing
production.

HAP-ACTION 4.17: Permit Review Times
Continue to explore methods to further reduce
the expense and uncertainty associated with the
Planning and Building Permit Process through
the ongoing communication with housing devel-
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN94
opers, other stakeholders, and the City’s Dev Stat
Review T eam. The Dev Stat team for form in 2021
consists of City Staff meeting routinely to explore
ways to reduce review times for entitlement and
construction permits. Some options that are cur-
rently being explored by this team include:
• Enhanced materials prior to submittal for
entitlement
• Possible waiver of entitlements
• Additional Staffing resources (consultants)
HAP-ACTION 4.18: Development Review
Process
Work with various City departments to expedite
the development review process for applications
that include housing in the Downtown Core and
areas within the Neighborhood Action Plans.

Identify one point of contact at the City that will
serve as the main contact for the project during
the City’s development review process.

HAP-ACTION 4.19: Historic Project
Development Review and Fees.

Work with the Housing Division to create a
historic resource rehabilitation program that
includes expedited review and reduced fees for
housing projects that include historic resources in
the Study Area.

HAP-ACTION 4.20: Fee Deferral Program.

Explore the feasibility of a CDD fee deferral pro-
gram for housing and mixed-use projects located
in the Greater Downtown Area and the three
Neighborhood Study Areas (Cabral/East Cabral,
Little Manila/Gleason Park, and South Airport
Corridor). This program should be monitored for
efficacy and sunset after ten years.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 95

5. Affordability and Definitions
These definitions are detailed in the 2023-2031
Housing Element.

Housing Cost and Affordability
Housing affordability can be inferred by compar-
ing the cost of renting or owning a home in
Stockton with the presumed maximum affordable
housing costs for households at different income
levels. This information can provide a picture of
who can afford what size,type, and location of
housing. It can also indicate the type of house-
holds that would likely experience overcrowding
or overpayment.

The income categories shown below are used for
the purpose of determining eligibility for hous-
ing assistance through State, federal and local
programs.
▶ Area Median Income (AMI) ($85,000)
- Housing affordability is based on AMI. Ac-
cording to HCD, the AMI for a four-person
household in the San Joaquin County was
$85,000 in 2022. Income limits for larger or
smaller households were higher or lower, re-
spectively, and are calculated using a formula
developed by state.
▶ Extremely Low-Income (ELI) Household
(less than $27,750) is one whose combined
income for a household of four is between the
floor set at the minimum Supplemental Secu-
rity Income (SSI) and 30 percent of the AMI. A
household of four is extremely low-income in
Stockton if its combined income is $27,750 or
less for the year 2022.
▶ Very Low-Income (VLI) Household
($27,751 – $41,400) - is onene whose com-
bined income for a household of four is at or
between 31 and 50 percent of the AMI for the
year 2022.
▶ Low-Income (LI) Household ($41,401 –
$62,200) is one whose combined income for
a household of four is at or between 50 and
80 percent of the AMI for the year 2022.
▶ Moderate-Income (MI) Household
($62,201 – $102,000) is one whose com-
bined income for a household of four is at or
between 81 and 120 percent of the AMI. for
the year 2022.
▶ Above Moderate-Income (AMI) Household
(exceeds $102,001) is one whose combined
income for a household of four is above 120
percent of the AMI for the year 2022.

The Regional Housing Needs Allocation
(RHNA)
The Regional Housing Needs Allocation (RHNA)
is a requirement used in the Housing Element
planning period from 2023 to 2031. The county-
wide RHNA is 52,719 units categorized into four
income categories. SJCOG is responsible for
developing a methodology to distribute the hous-
ing need to each jurisdiction within the region:
the unincorporated county areas and the cities
of Escalon, Lathrop, Lodi, Manteca, Ripon, Tracy,
and Stockton. Of the total 52,719 needed units,
12,673 are allocated to the City of Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN96
Affirmatively Furthering Fair Housing
(AFFH)
Assembly Bill (AB) 686 requires all housing
elements after Jan 1, 2021, to include an As-
sessment of Fair Housing consistent with AFFH
Final Rule. Local jurisdictions must analyze areas
of poverty, access to opportunity, and housing
needs, including displacement risk. The City of
Stockton has prepared a local assessment of fair
housing and identified factors contributing to
fair housing issues. The placement of housing in
relation to resources and opportunities is crucial
in addressing disparities in housing needs and
promoting inclusive communities where all resi-
dents have access to opportunity. This is espe-
cially significant for low-income households. AB
686 introduced a new requirement for housing
elements to analyze the geographic distribution
of projected units by income category, access
to high-resource areas, and other fair housing
indicators compared to citywide patterns to
understand how the projected locations of new
housing units will affirmatively further fair hous-
ing.

Missing Middle Housing
The term “Missing Middle” refers to a lack of op-
tions for housing types in between the two ends
of the spectrum: single-family homes (expensive)
and multifamily (less expensive). Many families
earn too much income to qualify for subsidies,
but cannot afford the single-family premium,
leaving these households with limited options.

By providing various housing “types” (e.g. duplex,
townhomes, cottage courts, etc.), Missing Middle
housing provides housing options that are more
affordable than single-family homes to address
this gap and increasing demand for walkability.

Many communities support Missing Middle hous-
ing as it can fit into existing neighborhoods and
support walkability, retail, and public transporta-
tion without changing the neighborhood’s look
and feel.

Governmental and Non-Governmental
Constraints
California law requires local governments to
assess constraints to housing production. The
2023-2031 Housing Element analysis found no
undue constraints in Stockton’s Envision 2040
plan and Development Code updates. Main take-
aways from the Housing Element include:
▶ Residential development is permitted in non-
residential and mixed-use zones, with high-
density units up to 136 per acre downtown.
▶ The City’s Affordable Housing Density Bonus
exceeds State law by allowing 100% Density
Bonuses. In addition, density waivers are
allowed for small lots to match surrounding
development and address site constraints.
▶ Parking standards are low and not a con-
straint for development, even for housing
projects like TOD, affordable, senior, and
small lots.
▶ ADUs are permitted by right and treated
equally as other housing types. Supportive
housing and low-barrier navigation centers
are also allowed without constraints in speci-
fied zoning districts.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 97
▶ In 2023, the City earned the Prohousing
Designation from California’s Housing and
Community Development Agency (HCD). This
designation indicates the City has progres-
sive policies and regulations that encourage
housing production and increase the City’s
position in competing for funding programs.

Local government agencies cannot control con-
struction costs or financing terms, which do not
count as development constraints under Califor-
nia Housing Element law. However, if the City can
assist with interest rate buy downs or cost-saving
measures like prefabricated units, it may speed
up new housing production.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN98

6. Neighborhood Action Plans
Background
In 2019, the State of California provided $250 mil-
lion to help jurisdictions with planning efforts that
accelerate housing production to meet the identi-
fied needs of each community. The funds were
allocated as a one-time award to regional planning
agencies, and the San Joaquin Council of Govern-
ments (SJCOG) was t responsible for distributing
funds to the City of Stockton. In 2021, the City of
Stockton applied for and was awarded funds to
prepare Neighborhood Action Plans focused on
furthering housing development in three areas in
Stockton:
▶ South Airport Way in South Stockton, along
the South Airport Way corridor from Dr. Martin
Luther King Jr. Boulevard to East 12th Street.
▶ Little Manila/Gleason Park in Central
Stockton, just south of the Crosstown Freeway
(Highway 4) and Downtown Stockton
▶ Cabral/East Cabral Station Area in central
Stockton, bounded by the Crosstown Freeway
(Highway 4) to the south and the University
Park campus to the north, along Park Street.

A plan was prepared for each area to ensure that
the housing-supportive objectives and actions
reflect the unique needs within each community.

Neighborhood Action Plans Content
Each Neighborhood Action Plan includes an
introduction, a description of the study area, a
summary of challenges and opportunities for new
housing development, a map of vacant sites, a pre-
sentation of potential housing types, and a list of
objectives and actions to further the development
housing.

An existing conditions report, Appendix 8, was
also prepared. It contains background information
about each study area, including community char-
acter, and demographics, plus an infrastructure
readiness analysis for vacant infill sites.

Appendix 9 contains an overview of the outreach
conducted during the prepa ration of the Neigh-
borhood Action Plans.

How to Use the Plans
The following Neighborhood Action Plans for
South Airport Way, Little Manila/ Gleason Park,
and Cabral/East Cabral Station Area are intended
to serve as a guide for City staff and decision
makers in the effort to improve housing opportuni-
ties within each study area.

Please note that since each Neighborhood Action
Plan was developed to reflect the unique needs
of each community, the action and page numbers
in each Neighborhood Action Plan are unique to
that plan (i.e., starting at page 1 in each plan).

Exhibit 1 - Housing and Neighborhood Action Plans
South
Airport Way
Neighborhood
Action Plan
for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN100 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 2 OF 26 Front cover image credit: Union Building.

Neighborhood Action Plan Table of Contents

1. Introduction 4 of 26

2. South Airport Way Study Area 7 of 26

3. Potential for New Housing 11 of 26

4. Objectives and Actions 22 of 26
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 101 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 3 OF 26 Prepared By:

101 Parkshore Drive, Suite 200
Folsom, California 95630
t 916.245.7500
ORANGE COUNTY • BAY AREA • SACRAMENTO • CENTRAL COAST • LOS ANGELES • INLAND EMPIRE www.PlaceWorks.com
South Airport Way
Neighborhood Action Plan for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans

1. Introduction
As of 2023, the entire state of California, including Stockton, faces a significant housing supply and affordability crisis spurred by high land costs, rising construction costs, and limited financing options.

In 2019, the Governor allocated $250 million to help jurisdictions with planning efforts that accelerate housing production to meet the identified needs of each community. The funds were directly allocated as a one-time award to regional governments. Stockton’s regional Council of Governments – the San Joaquin Council of Governments (SJCOG) – was the governing body responsible for distributing the funds to local jurisdictions. In 2021, the City of Stockton applied for and was awarded funds to prepare Neighbor- hood Action Plans focused on furthering housing development in three areas in Stockton, including the South Airport Way Study Area, which is the focus of this Action Plan. Separate Action Plans were also prepared for two other areas - Little Manila/Gleason Park and Cabral/East Cabral Station Area.

Purpose of This Action Plan
The City is continuously working to address housing supply issues and has adopted a number of plans and strategies that directly or indirectly support housing throughout the city. The South Airport Way Neighborhood Action Plan (Plan) builds on these plans, includ- ing the City’s Housing Action Plan and Housing Element. The Plan identifies actions to further the development of housing, achieve a variety of housing types, support neighborhood revitalization, and improve access to transit, services, and amenities within the South Airport Way Neighborhood Action Plan Area (Study Area), which is shown and described herein.

Users of the Plan include community members interested in learn- ing about the City’s efforts to further housing development in the Study Area, housing developers, City staff, decision-makers, and any other interested party.

Description of the Study Area
The South Airport Way Study Area is in South Stockton, running north to south along the South Airport Way corridor from Dr. Martin Luther King Jr. Boulevard to East 12th Street. This Study Area includes the South Airport Way corridor, which is a heavily traveled arterial in the southern portion of the city. Land use in the area includes various housing types, including single-family homes and apartments; commercial uses such as grocery stores, banks, and strip-mall retail centers; a few auto-oriented businesses; and several vacant lots. The San Joaquin County Fairgrounds is located near the Study Area, but it is not included as part of the Study Area since the Fairgrounds are owned by the State of California. The South Airport Way Study Area does not contain any federal, state, or local historic resources.

Like the Little Manila/Gleason Park and Cabral/East Cabral Station Area Study Areas, the South Airport Way Study Area was selected for a Neighborhood Action Plan because there is an elevated need for quality housing and complementing services and amenities for the surrounding community. These areas were identified in the CITY OF STOCKTON | HOUSING ACTION PLAN102 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 4 OF 26 Exhibit 1 - Housing and Neighborhood Action Plans
2040 Envision Stockton General Plan as sites in need of invest- ment. All three areas are also located within the South Stockton Promise Zone and are mapped by the State Housing and Com- munity Development Department as low-resource areas, with the need to improve access to adequate infrastructure, employment, and housing.

The objectives and actions included in this Neighborhood Action Plan may be applicable to areas outside of the Study Area boundary.

How to Use the Action Plan
The South Airport Way Neighborhood Action Plan is organized into four chapters and two appendices. The contents of each chapter are summarized here.

Chapter 1 – Introduction: This chapter provides a summary of the Plan purpose, describes the Study Area boundary, and explains the contents of the Plan.

Chapter 2 – South Airport Way Study Area: This chapter de- scribes the South Airport Way Study Area, including existing land uses, community character, and demographics, which together provide the baseline conditions the Plan will address through the actions in Chapter 4.

Chapter 3 – Potential for New Housing: This chapter explores challenges and opportunities for new housing development DRAFT | SEPTEMBER 2024 103 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 5 OF 26 S. Airport WayS. Airport Way
Dr. Martin Luther King Jr. BlvdDr. Martin Luther King Jr. Blvd San Joaquin San Joaquin
County County
FairgroundsFairgrounds
Union Union
Transfer Transfer
StationStation
Williams Williams
Brotherhood Brotherhood
ParkPark
Union Pacific RailroadUnion Pacific Railroad
Delta Delta
SpeedwaySpeedway
Study Area
0 Scale (Feet)
1,000
Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

Rancho San Miguel Rancho San Miguel
SupermarketSupermarket
1212thth Street Street
1010thth Street Street
88thth Street Street
77thth Street Street
99thth Street Street
South Airport Way Study Area
Exhibit 1 - Housing and Neighborhood Action Plans
in the Study Area. It highlights feedback from stakeholders and matches a map of vacant sites with descriptions of the types of new housing that may be well-suited for those sites.

Chapter 4 – Objectives and Actions: This chapter includes the Plan actions, which are divided under four objectives:

1. Further the development of housing

2. Provide more housing choices

3. Improve access to transit, services, and amenities

4. Support neighborhood revitalization
Appendix 8 – Neighborhood Action Plans Existing Conditions Report: This appendix contains background information about the Study Area, including community, character demographics, and infrastructure. It also includes an infrastructure readiness analysis that was completed for three vacant infill sites in the Study Area to help inform existing conditions.

Appendix 9 – Neighborhood Action Plans Outreach Summary:

This appendix contains an overview of the outreach conducted during the preparation of the Neighborhood Action Plans, including the other two Study Areas.

CITY OF STOCKTON | HOUSING ACTION PLAN104 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 6 OF 26 South Airport Way.

What is an Action Plan?
An Action Plan includes measurable steps that can be
taken to achieve a specified objective. Objectives are end- statements; they describe what the community wants to
accomplish to resolve a particular issue or problem. Actions help guide day-to-day decision making so that there will be continuing progress toward the attainment of the com- munity’s objectives. The actions in the South Airport Way Neighborhood Action Plan will serve as a guide for City staff and decision makers in the effort to improve housing oppor- tunities and access to services and amenities in the South Airport Way Study Area.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 105 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 7 OF 26 View of an affordable housing development near the Study Area.

2. South Airport Way
Study Area
The South Airport Way Study Area is in South Stockton, as shown on the Stockton City Boundary map, and includes the heavily trav- eled South Airport Way corridor. The Study Area boundary was developed on the basis of stakeholder feedback and identified as an area with elevated need for quality housing and amenities for the community. However, the Study Area boundary is not meant to serve as an official map of the neighborhood. See Appendix 8, Neighborhood Action Plans Existing Conditions Report, for more information about the Study Area.

Existing Land Use
Land uses in the Study Area includes a mix of residential, com- mercial, industrial, and institutional uses, but vacant land accounts for almost half of the Study Area acreage. Although relatively few homes line South Airport Way corridor, most of the surrounding areas feature single-family homes, and the significant amount of vacant land along South Airport Way presents major opportunities for housing development in multi-family and/or mixed-use formats.

Commercial uses in the Study Area include grocery stores, banks, strip retail centers, and a few auto-oriented businesses.

The South Airport Way Study Area contains low-income census tracts where a significant number of residents are more than a half mile from the nearest supermarket, which are tracts the U.S.

Department of Agriculture considers as having low food access.

However, the Rancho San Miguel supermarket is less than half a mile away for some of the residents near the northern part of the Study Area. There are a few auto-centered and industrial uses along the corridor. The existing land uses and additional background information about the Study Area can be found in Appendix 8.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN106 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 8 OF 26 Race/Ethnicity
►79% Hispanic or Latino
(o
f any race)
►15% Black or African American
►3% Asian
►2% White
►1%
Two or more
races
Age
VS
62% below the age of 34 in
Sou
th Airport Way area
53% below the age of 34 in Stockton
Average Household
Income
VS
$40,379 in South Airport Way area
$78,712 in Stockton
Overcrowded Housing
VS
16% overcrowded housing units in
South Airport Way area
9% overcrowded housing units
in
Stockton
Housing Tenure
VS
59% Renters 41% Owners
50% Renters 50% Owners
in South Airport Way area
in Stockton
Average Household Size
VS
4 persons per houshold in
Sou
th Airport Way area

3.2 persons per household
in
Stockton
What We Heard from the Community
About the Study Area
The South Airport Way Neighborhood Action Plan was
prepared in collaboration with the local community,
including those who live in or around the Study Area.

The primary ways community members provided input
were through four pop-up events that were located in or near the Study Area, two open house events that were
facilitated by the City, a paper survey that was available in five languages, and an online activity. These engagement methods – as well as the feedback received – are further described in Appendix 9. Key takeaways from the com-
munity feedback received are summarized below. While
the survey results received are not considered statistically significant, they help inform existing conditions within and near the Study Area.

Provide More Housing Choices
The first question in the housing paper survey and online activity asked people to identify the type of housing they would like to see built in their neighborhood. A majority of the participants who responded to the survey ques-
tion said they would like to see apartments, duplexes,
triplexes, and fourplexes built in their neighborhood. Other housing needs identified include mixed-use, live-work,
Who Lives in South Airport Way?
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 107 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 9 OF 26 townhomes, supportive and transitional housing, and single-family homes. As noted above, the survey results received for the Study Area are not considered statistically significant; however, they help provide insight on the type of housing that may be needed in the Study Area.

Housing Affordability
Affordable housing was mentioned as the number one type of housing participants would like to see in the Study Area. Housing is classified as “affordable” if households do not pay more than 30 percent of income for payment of rent (including a monthly allowance for water, gas, and electricity) or monthly homeowner- ship costs (including mortgage payments, taxes, and insurance).

As stated in Stockton’s 2023-2031 Housing Element, the rate of housing cost burden for lower-income households is slightly higher in Stockton (75 percent) than in San Joaquin County (72 percent) and California (70 percent), pointing to a need for more affordable housing units in Stockton, including within the Study Area, where the average household income is $40,379 vs. Stockton’s citywide income of $78,712. Apartments, which include market-rate apart- ments, were also mentioned as a need, and are also encouraged through the actions in this Plan.

Access to Transit, Services, and Amenities
When asked what could be added to improve the quality of life in the neighborhood, participants responded regarding a need for grocery stores or neighborhood markets that have a variety of foods, community centers, green spaces, parks, and social services.

Participants also mentioned the need for neighborhood improve- ments, such as streetlights, improved sidewalks, bike lanes, bus shelters, improving or adding crosswalks, and bathrooms. A few participants acknowledged the need for traffic-calming measures, such as placing speed bumps on residential streets or other mea- sures to deter unsafe driving. There was also mention of the need for a new school.

Neighborhood Revitalization
Community members have pointed out that there may be code en- forcement issues in the Study Area that need to be addressed, such as removing cars that have been parked on the street for a long period of time and pruning overgrown trees along the sidewalk.

Another way that this Study Area could be revitalized is through cleaning and maintaining the parks that are in the area. A sugges- tion was also made to provide free junk removal and stormwater solution services to the surrounding community.

Along with this, multiple community members had highlighted that safety is a large concern in this Study Area. Some suggestions for ways that safety can be addressed include having community safety officers and/or officers that patrol on foot. Speed bumps were another option that was discussed as a method to create safer neighborhoods in the Study Area. Other community members recommended better education, training, housing, and job opportu- nities in this area to assist in the revitalization process.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN108 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 10 OF 26 Pop-up event held at STAND on October 7, 2022.

Open House held on June 15, 2023.

Halloween Pop-up event held at STAND on October 18, 2022.

Pop-up event held at Sierra Vista on June 14, 2023.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 109 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 11 OF 26 Vacant site on South Airport Way owned by a Faith-Based Organization.

3. Potential for New
Housing
Faith-Based Housing
Places that accommodate civic and shared gathering spaces, such as faith-based organizations, are a tremendous opportunity for additional housing. Churches and other faith-based organizations often own larger parcels where a portion of the land is underutilized and/or contain structures that could be retrofitted or expanded to provide housing. Providing housing on these sites can both help supply members of these organizations with affordable places to live while also offering supplemental income to the organizations.

In the South Airport Way Study Area, potential faith-based housing sites include 1402 Twelfth Street and 2427 South Airport Way (Sites #14 and #12 on the vacant sites map shown on Page 16).

Many jurisdictions are working with local faith-based organizations to expand opportunities for housing on their sites. This includes overcoming barriers such as limited financing options, regulatory review requirements, and lack of local real estate and development experience. Opportunities unique to faith-based housing include the ability to submit a taxable donation for the sellers of the land.

The San Joaquin County Fairgrounds is located just east of the Study Area. A 110-acre portion of the fairgrounds is currently the largest California site offered for housing development under Governor Newsom’s Executive Order N-06-19, which intends to ad- dress the State’s housing affordability crisis. The fairgrounds could be a significant opportunity for the construction of new housing at varying income levels, including home ownership opportunities.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN110 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 12 OF 26 South Airport Way and 8th Street
Within the South Airport Way Study Area, there is a 76-unit af- fordable senior housing mixed-use project currently entitled. The 84,500-square-foot site, located on two vacant lots in the Study Area, is proposed to be developed with a mixed-use building that includes affordable units. The mixed-use component would include ground-floor commercial uses, likely reserved for community service providers such as STAND Affordable Housing and Com- munity Medical Centers. Also planned for the site is a clinic building that is anticipated to be constructed after the mixed-use building construction is complete. The design of the project has not been finalized, and there is currently no estimated time for completion of the project.

Challenges and Opportunities
The South Airport Way Study Area is an ideal place for the construc- tion of new housing that complements the South Airport Way corridor and the surrounding existing neighborhood. About 40% of land in the Study Area is vacant, which signifies a major opportunity for new housing development, including some sites that could ac- commodate mixed-use development that combines housing with amenities.

An infrastructure readiness analysis was conducted for three key vacant infill sites in the Study Area. The analysis found that infra- structure in the Study Area is generally adequate to support new housing, but one key site analyzed did not have fire flow sufficient to support a new mixed-use building, and sidewalk condition on side streets around Airport Way varies widely. This type of improve- ment, and any other infrastructure improvements that are neces- sary, could be costly for developers and may hinder new housing development. See Appendix 8, Neighborhood Action Plans Existing Conditions Report, for the complete infrastructure readiness analysis and for a map showing the sidewalk conditions in the Study Area.

Per the Market and Needs Assessment in the Citywide Hous- ing Action Plan, market constraints and the need for enhanced infrastructure were noted as significant challenges to constructing housing in Stockton.

Brownfields
Brownfields are sites that may have a hazardous substance, pollutant, or contaminant. Cleaning up and reinvesting in brownfield properties can increase the local tax base, facili- tate job growth, and take development pressures off of open land A variety of grants support brownfield revitalization efforts by funding assessment, cleanup, and job training, including:
▶ the EPA Brownfield Multipurpose Grant, which offers up to $800,000 to assess site reuse and market feasibility assessment; and
▶ the EPA Brownfield Cleanup Grant, which can provide up to $2 million for one or more sites.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 111 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 13 OF 26 Feedback from Stakeholders
T o help understand barriers to housing development in the Study Area, the City held one-on-one and small-group meetings with local stakeholders during July to September 2022. Key themes that emerged from these meetings surrounding challenges and oppor- tunities for new housing development, are as follows:
▶ Environmental Contamination. There is a concern about developing a few of the vacant properties in the Study Area because the ground is likely contaminated. Sites that are contaminated typically require remediation before construction can occur, which can be an impediment to new housing de- velopment due to cost and timing issues. T o help address this challenge, this Plan encourages pursuing grants for brownfield analysis, and if needed, remediation and a holistic program for cleaning up sites along the corridor.
▶ Housing and Services. Multifamily, mixed-use, and faith- based housing were recommended as an opportunity for some of the lots in the Study Area. However; it was also noted that in addition to housing, services and commercial uses are needed to support new housing development along the South Airport Way corridor. The Table on Page 17 includes a list of vacant sites and identifies the most feasible housing types that could be built on each site.
▶ Community Organizations. There is an opportunity to col- laborate with local community organizations to help improve housing choices in the Study Area. Partnering with other organizations will bring additional expertise, resources, and perspectives to solving the unique challenges presented in this neighborhood. One idea that was shared is to work with a local organization to encourage community members to participate in an educational homeownership training course or learn about other resources for first-time homebuyers. Another option could be to support the creation of a Community Land Trust.

What is a Community Land
Trust?
A community land trust (CL T) is a non-profit organization that acquires and holds land for affordable housing, agri- culture, or other community-oriented purposes. The CL T usually leases the land at affordable prices while retaining ownership. By using this model, CL Ts aim to create stable, sustainable, and equitable communities, providing housing and resources that align with the community’s needs and priorities. This approach promotes community empower-
ment and collective decision-making to ensure that the land remains a valuable asset for generations to come.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN112 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 14 OF 26 Displacement Risk
Displacement risk increases when a household is paying more for housing than their income can support. Stockton is in San Joaquin County, which is a region that has experienced significant popula- tion growth and development resulting in rising housing costs and increasing the risk of displacement in some neighborhoods.

T o study the displacement vulnerability of Stockton households, the City of Stockton prepared a Residential Displacement Assess- ment Report in 2023. This Assessment Report utilized two map- ping tools: San Joaquin County’s Gentrification and Displacement Mapping T ool and The Affirmatively Furthering Fair Housing Data Viewer, to identify the types of displacement risk that residents are facing. According to the displacement mapping tool, the South Airport Way Study Area is under the “Susceptible and Ongoing Displacement” designation.

This plan includes actions to help further the development of housing and improve access to services and amenities in the South Airport Way Study Area, which could inadvertently increase the potential for displacement. T o help mitigate this risk, the Neighbor- hood Action Plan includes strategies that support the development of affordable housing in the Study Area. The Residential Displace- ment Assessment Report also identifies the following strategies to help combat displacement: proactive code enforcement, diversify- ing the housing stock, and expanding legal-aid and tenant-landlord education programming.
▶ Housing Market. The sales price of new market rate housing in Stockton is lower than in nearby areas, which has led de- velopers to favor other communities over Stockton. However, since affordable housing development usually includes State funding, these projects tend to be relatively feasible in Stock- ton. This Plan supports affordable housing and encourages the construction of housing at varying income levels.
▶ Development Process. Timing can be a major constraint to new housing development. Market fluctuations and time from application to approval can hinder new development. This Plan supports expanding the active period for permits and entitle- ments from 12 months to 24 months to allow for flexibility by housing developers.
▶ City Fees. Fees were also identified as a barrier to new hous- ing development. This Plan explores efforts to waive or reduce certain City fees for new housing development in the Study Area. It also supports the preparation of marketing materials that highlight common improvements and costs associated with development to provide transparency.
▶ Funding. T o support housing creation, there is an opportunity to assist developers with the cost of developing housing. The City could evaluate the feasibility and benefits of adopting a financing district for the Study Area to support the develop- ment of housing, as well as neighborhood revitalization.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 113 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 15 OF 26 Vacant site along South Airport Way.

In addition to housing, stakeholders noted there are other issues in the Study Area, such as public safety concerns, limited access to healthy foods, and lack of services. There is also a need for improved transportation options. The primary objective of the Plan is to further the development of housing in the Study Area; therefore, the objectives and actions included in this Plan are housing-focused. Actions are also included to address key issues to help enhance the quality of life in the Study Area; however, there are issues unrelated to housing production that are not addressed in this Plan.

See Appendix 9, Neighborhood Action Plans Outreach Summary, for a complete summary of the feedback received.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN114 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 16 OF 26 0 Scale (Feet)
1,000
Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

Vacant Sites in South Airport Way
Dr. Martin Luther King Jr. BlvdDr. Martin Luther King Jr. Blvd San Joaquin San Joaquin
County County
FairgroundsFairgrounds
Union Union
Transfer Transfer
StationStation
Williams Williams
Brotherhood Brotherhood
ParkPark
Union Pacific RailroadUnion Pacific Railroad
Delta Delta
SpeedwaySpeedway
S. Airport WayS. Airport Way
14 13
12 10
7 5
4 2
9 6
11 8
3 1
Vacant parcels and
underutilized parking areas
Study Area
Rancho San Miguel Rancho San Miguel
SupermarketSupermarket
1212thth Street Street
1010thth Street Street
88thth Street Street
77thth Street Street
99thth Street Street
Vacant Sites
During the Plan development process, the project team
identified 14 sites within the Study Area that are vacant or have a surface parking lot that is not well-utilized.

These sites may serve as an opportunity for new housing development. The Vacant Sites in South Airport Way
map shows the location of these sites, and the table that follows identifies the most feasible housing types that could be built on each site based on the lot size and the characteristics of the surrounding neighborhood. The
most feasible housing types are listed by letter (A-I) in the table on Page 19 of the Neighborhood Action Plan to correspond with the housing type descriptions that follow.

While the City does encourage new housing development
on vacant properties, where appropriate, the City itself does not build housing unless the property is owned by
the City. Redevelopment of any of the sites that are pri- vately owned would require agreement with the property
owner, approval of a development proposal, and adequate infrastructure.

Exhibit 1 - Housing and Neighborhood Action Plans
Site
Number Street Address
Most
Feasible
Housing Types
1 1501 & 1516 South Union Street C, D, G
2 1121 Folsom Street C, F , G
3 1795 South Airport Way B, F
4 2051 South Airport Way F, G
5 2119 South Airport Way F, G
6 2135 South Airport Way D, F , G
7 2211 & 2211 South Airport Way G
8 2244 & 2226 South Airport Way C, D
9 2333 & 2319 South Airport Way I
10 2361 & 2347 South Airport Way E, F , H
11 2348 South Airport Way C, D
12 2427 & 2427 South Airport Way C, D, F
13 2482 South Airport Way C, F
14 1402 Twelfth Street C, F
High-Rise
Residential Live-Work
Mid-Rise
Apartments Multiplexes
Low-Rise
Apartments
Triplexes and
Duplexes
Mixed-Use
Cottage Courts
Townhomes
A G
B H
C I
D
E
F
DRAFT | SEPTEMBER 2024 115 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 17 OF 26 Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN116 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 18 OF 26 Vacant site north of 8th Street along South Airport Way.

Vacant site next to a bus stop along South Airport Way.

Housing Types
The following residential development types were identified based on typical housing products being built across California and were screened for appropriateness to the Study Area based on existing built form, relevant barriers to development, and characteristics of existing properties within the Study Area. Site characteristics of properties in the Study Area, including typical lot dimensions and sizes, guided the description for each housing type to ensure that appropriate housing types can be developable within the neighbor- hood context.

Mixed-use, low-rise apartments, townhomes, and live-work housing types were identified as the most feasible housing types for many of the vacant sites within the Study Area based on lot size and neighborhood characteristics. Mid-rise apartments, cottage courts, multiplexes, triplexes, and duplexes are also suitable for some of the vacant sites. High-rise apartments were not selected as a feasible housing type based on lot sizes and neighborhood form; however, this type is included in this Plan for reference in case there is a potential for its development in the future.

The following content shown in yellow describes the housing types and shows example drawings. T o learn more about each housing type, please see the citywide Housing Action Plan. The drawings do not show an actual development project; they are intended to provide a visual representation of what the housing type could look like.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 117 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 19 OF 26 A. High-Rise Residential
These are high-density apartments that are typically developed within existing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs.

They are constructed on larger lots with an active frontage provided along a public street and can be seven stories or taller. Outdoor space is provided in the form of common courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

B. Mid-Rise Apartments
These are medium-density apartments that are typically developed within or near existing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs. They are constructed on large lots with common entries oriented towards the public streets and can be four to six stories tall. Outdoor space is provided in the form of courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

C. Low-Rise Apartments
These are low-density apartments that are typically developed in low- to medium-density neighborhoods, in downtown areas, and near employment and transportation nodes.

They can be constructed on a variety of lot sizes with common entries oriented towards a public street and can be two to three stories tall. Outdoor space is provided in the form of courtyards at ground level, on rooftops, or in private open space areas such as balconies.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN118 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 20 OF 26 D. Mixed-Use
These developments contain residential uses in combination with retail and/or office spaces and can be arranged either vertically or horizontally. They are appropriate within neighborhoods of all densities, in downtown areas, and near transit stations. They can be constructed on a variety of lot sizes and can be three stories or taller. Outdoor space is provided in the form of courtyards at ground level or on parking podiums, or in private open space areas such as balconies.

E. Cottage Courts
These are homes that consist of small detached residential units surrounding a common courtyard that serves as outdoor space. Entrances to each unit are accessed off of this central court. They are appropriate within existing low- to medium-density neighborhoods and in areas transitioning out of nonresidential uses. They can be constructed on a variety of lot sizes but are typically recommended for medium to larger sized lots. Cottage courts can be one to three stories tall.

F. Townhomes
These are homes that are attached in a horizontal configuration, each with a standalone entrance. They are appropriate within neighborhoods of all densities and fit a variety of lot sizes. T ownhomes can be two to three stories tall. Entrances are oriented towards a public street and outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground-level courtyards, or by using interconnected landscape areas in multi- building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 119 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 21 OF 26 G. Live-Work
These are homes that provide a flexible ground-floor space that could be used for home- based employment or additional living space. They are appropriate within neighborhoods of all densities, within neighborhood commercial corridors, or in downtown areas. Live-Work units fit a variety of lot sizes and can be two to three stories tall. Entrances are oriented towards a public street or can be oriented towards a common interior courtyard. Outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

H. Multiplexes
These are flexible four-unit or larger multifamily developments in which units can be ar- ranged in a single structure or in multiple structures on a site. They are appropriate within existing low- to medium-density residential neighborhood or in downtown areas. They can be constructed on medium- to large-size lots and can be two to four stories tall. Outdoor space can be provided in upper-floor terraces and balconies, ground-level courtyards, or by using interconnected landscape areas in multi-building projects.

I. Triplexes and Duplexes
These are flexible development types that feature two to three attached units with sepa- rate entrances that can be arranged vertically or horizontally. They are appropriate within existing low- to medium-density residential neighborhoods or on small lots with proximity to services. They can be constructed on small to medium size lots and can be two to three stories tall. Outdoor space can be provided in upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN120 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 22 OF 26

4. Objectives and
Actions
The South Airport Way Study Area is an ideal place for the new housing that transit and complements the existing neighborhood, but the area needs infrastructure upgrades that could hinder new development due to cost. Environmental contamination, lack of funding, and abandoned buildings pose additional challenges.

The South Airport Way Neighborhood Action Plan provides feasible actions to help address these challenges and incentivize housing preservation and development based on four overarching objectives:

1. Further the Development of Housing

2. Provide More Housing Choices

3. Improve Access to Transit, Services, and Amenities

4. Support Neighborhood Revitalization
The actions will serve as a guide for City staff and decision makers in the effort to improve housing opportunities in the Study Area.

For a list of potential financial and grant sources, please see the citywide Housing Action Plan.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 121 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 23 OF 26

1. Further the Development of Housing
Action 1.1 South Airport Way and 8th Street. Identify
opportunities to support the redevelopment of
the vacant site at the southeast corner of South
Airport Way and 8th Street.

Action 1.2 Faith-Based Housing. Work with religious institu- tions to identify opportunities for housing produc-
tion on underutilized or excess land.

Action 1.3 San Joaquin County Fairgrounds. Collaborate
with the State and the Housing Authority of San
Joaquin County to encourage the inclusion of
low-income, moderate-income, and market-rate
housing in the State’s plan for the San Joaquin
County Fairgrounds site.

Action 1.4 Extend Permit and Entitlements “Active”
Period. Expand the “active” period for permits
and entitlements in the South Airport Way Study
Area from 12 months to 24 months.

Action 1.5 Economic Development Programs. Optimize
existing economic developments programs the
City already has in place to better align with the
Neighborhood Action Plan.

Action 1.6 Public Facilities Fees. Support the Public Facili- ties Fees Nexus Study which will determine if the
fees collected by the City are the right amount for
the City of Stockton. The Nexus Study is currently
in the process as of September 2023.

Action 1.7 Vacant and Underutilized Sites Inventory.

Create and regularly update a searchable/digital
inventory of vacant and/or underutilized sites in
the Study Area. Use the inventory list to conduct
targeted property owner outreach, as described in
Action 1.8.

Action 1.8 Property Owner Outreach. Conduct targeted
outreach to property owners in the Study Area to
learn why they may be leaving a site undeveloped
or underutilized. Describe any applicable incen-
tives or programs the City offers that may assist
the property owner with developing the site.

Action 1.9 Land Banking. Pursue opportunities for acquisi- tion and disposition of land that can be used for
residential and/or mixed-use projects.

Action 1.10 City Staff Support. Explore the feasibility of expanding capacity by adding City staff or seeking
staff services through consultants to implement
the actions included in the Neighborhood Action
Plan, if additional staff support is needed.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN122 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 24 OF 26

2. Provide More Housing Choices
Action 2.1 Housing for Large Households. Encourage
projects that provide large units (three bedrooms
or more) to incentivize the creation of housing for
large households.

Action 2.2 Multi-Generational Housing. Explore changes
to City codes and regulations to support multi-
generational housing.

Action 2.3 Homeownership Education. Collaborate with
local community organizations to distribute mate-
rials and conduct educational efforts centered on
homeownership education in the Study Area.

Action 2.4 Downpayment Assistance. Work with San Joa-
quin County to conduct targeted outreach on the
San Joaquin County Gap Loan Program to renters
in the Study Area to provide down-payment as-
sistance to interested and eligible lower-income,
first-time homebuyers.

Action 2.5 Community Land Trust. Support efforts, when
appropriate, by local, regional, state, federal, non-
governmental, and philanthropic organizations
to explore a Community Land Trust in the South
Airport Way Study Area.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 123 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 25 OF 26

3. Improve Access to Transit, Services, and Amenities
Action 3.1 Neighborhood-Serving Uses. Establish a pro-
gram for pop-up and short-term vendor spaces on
City-controlled property in the Study Area.

Action 3.2 Williams Brotherhood Park. Partner with com- munity organizations to conduct a park access
assessment for Williams Brotherhood Park.

Action 3.3 Stocked Full of Produce Program. Conduct
targeted outreach to store owners in the South
Airport Way Study Area to ensure they are aware
of the program’s benefits. Explore partnerships
with community-based organizations to support
healthy produce being sold in local retail establish-
ments.

Action 3.4 Alternative Modes of Transportation. Col-
laborate with local organizations to establish
a community working group to meet regularly
with residents to identify and prioritize needed
infrastructure that supports alternative modes of
transportation, such as walking, biking, and taking
the bus.

Action 3.5 Bicycle and Car Share. Coordinate with
stakeholders to place bike and car-share in key
locations to improve active transportation options
and support first and final-mile connectivity for
neighborhood residents and commuters.

Action 3.6 Conquering the Digital Divide. Pursue funding and partnerships to expand the City’s Fiber Optic
Infrastructure to help provide reliable digital
access to residents in the Study Area.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN124 SOUTH AIRPORT WAY NEIGHBORHOOD ACTION PLAN PAGE 26 OF 26

4. Support Neighborhood Revitalization
Action 4.1 Environmental Site Assessments. Conduct
Phase I and/or Phase II environmental site assess-
ments for vacant and underutilized sites in the
South Airport Way Study Area.

Action 4.2 Brownfield Cleanup Program. Pursue planning
grants for brownfields and develop a program
aimed at cleaning up sites within the South Air-
port Way Study Area to revitalize the Study Area.

Action 4.3 Financing Districts. Evaluate the feasibility and benefits of adopting a financing district for
the South Airport Way Study Area to support
the development of housing and neighborhood
revitalization.

Action 4.4 Residential Upgrades. Continue to offer solar installation, energy and water-efficiency upgrades,
drought tolerant landscaping, and tree planting
services to residents within the Study Area. Col-
laborate with Stockton Rising to inform residents
of the program’s benefits.

Action 4.5 Façade Improvement Forgivable Loan Pro-
gram. Study the feasibility of expanding the City’s
façade improvement forgivable loan program,
which currently helps fund exterior renovations of
commercial buildings to also fund façade renova-
tions of residential buildings.

Action 4.6 Owner-Occupied Rehabilitation Program.

Conduct targeted outreach in the Study Area for
the Single-Family Rehabilitation Program, which
provides qualified homeowners with financial
assistance to complete substantial interior and
exterior repairs.

Action 4.7 Sidewalk Repair and Gaps. Pursue funding to
assist property owners with repair and installation
of sidewalks in portions of the Study Area identi-
fied in Appendix 8 as “no sidewalk” or “needs
repair. ”
Action 4.8 Community Development “Review List” Mate-
rials. Prepare marketing materials that highlight
common improvements and costs associated
with development such as repair of sidewalks,
paved parking areas, etc.

Action 4.9 Local Community Groups. Identify opportunities for collaboration with neighborhood groups to
further solutions for housing issues and other
community needs.

Exhibit 1 - Housing and Neighborhood Action Plans
Little Manila/
Gleason Park
Neighborhood
Action Plan
for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN126 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 2 OF 30 Neighborhood Action Plan Table of Contents

1. Introduction 4 of 30

2. Little Manila/Gleason Park Study Area 7 of 30

3. Potential for New Housing 13 of 30

4. Objectives and Actions 24 of 30
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 127 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 3 OF 30 Prepared By:
101 P
arkshore Drive, Suite 200
Folsom, California 95630
t 916.245.7500
ORANGE COUNTY • BAY AREA • SACRAMENTO • CENTRAL COAST • LOS ANGELES • INLAND EMPIRE www.PlaceWorks.com
Little Manila/Gleason Park
Neighborhood Action Plan for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans

1. Introduction
As of 2023, the entire state of California, including Stockton, faces a significant housing supply and affordability crisis spurred by high land costs, rising construction costs, and limited financing options.

In 2019, the Governor allocated $250 million to help jurisdictions with planning efforts that accelerate housing production to meet the identified needs of each community. The funds were directly allocated as a one-time award to regional governments. Stockton’s regional Council of Governments – the San Joaquin Council of Governments (SJCOG) – was the governing body responsible for distributing the funds to local jurisdictions. In 2021, the City of Stockton applied for and was awarded funds to prepare Neighbor- hood Action Plans focused on furthering housing development in three areas in Stockton, including Little Manila/Gleason Park, which is the focus of this Action Plan. Separate Action Plans were also prepared for two other areas - South Airport Way and Cabral/East Cabral Station Area.

Purpose of This Action Plan
The City is continuously working to address housing supply issues and has adopted a number of plans and strategies that directly or indirectly support housing throughout the city. The Little Manila/ Gleason Park Neighborhood Action Plan (Plan) builds on these plans, including the City’s Housing Action Plan and Housing Ele- ment. The Plan identifies actions to further the development of housing, achieve a variety of housing types, support neighbor- hood revitalization, improve access to transit, services, and amenities, and preserve historic resources within the Little Manila/Gleason Park Neighborhood Action Plan Area (Study Area), which is shown and described herein. Users of the Plan include community members interested in learning about the City’s efforts to further housing development in the Study Area, housing devel- opers, City staff, decision-makers, and any other interested party.

Description of The Study Area
The Little Manila/Gleason Park Study Area is in Central Stockton, just south of the Crosstown Freeway (Highway 4) and Downtown Stockton. Mormon Slough, which is a seasonally dry creek bed where members of the unhoused population frequently reside, runs through the southern portion of the Study Area, and the southern boundary runs mainly along the railroad. Residential uses, including single-family homes, duplexes, triplexes, fourplexes, and apartments, occupy much of the Study Area. Corner store markets, restaurants, and religious and educational institutions, such as the Spanos Elementary School, can also be found in the Study Area.

Commercial uses include supply stores, towing services, and res- taurants. There are a number of industrial uses, such as mechanic shops and heavy equipment suppliers, in and surrounding the Study Area. This area is a thriving neighborhood with strong com- munal roots, and remnants of that history can still be found in the community.

Like the South Airport Way and Cabral/East Cabral Station neigh- borhoods, Little Manila/Gleason Park was selected for a Neighbor- hood Action Plan because there is an elevated need for quality CITY OF STOCKTON | HOUSING ACTION PLAN128 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 4 OF 30 Exhibit 1 - Housing and Neighborhood Action Plans
housing and neighborhood services and amenities for the sur- rounding community. These areas were identified in the 2040 Envi- sion Stockton General Plan as sites in need of investment. All three areas are also located within the South Stockton Promise Zone and are mapped by the State Housing and Community Develop- ment Department as low-resource areas, with the need to improve access to adequate infrastructure, employment, and housing. The objectives and actions included in this Neighborhood Action Plan may be applicable to areas outside of the Study Area boundary.

How to Use the Action Plan
The Little Manila/Gleason Park Neighborhood Action Plan is orga- nized into four chapters and two appendices. The contents of each chapter are summarized herein.

Chapter 1 – Introduction: This chapter provides a summary of the Plan purpose, describes the Study Area boundary, and explains the contents of the Plan.

Chapter 2 – Little Manila/Gleason Park Study Area: This chap- ter describes the Little Manila/Gleason Park Study Area, including existing land uses, community character, and demographics, which together provide the baseline conditions the Plan will address through the actions in Chapter 4.

Chapter 3 – Potential for New Housing: This chapter explores challenges and opportunities for new housing development in the Study Area. It highlights feedback from stakeholders and matches a map of vacant sites with descriptions of the types of new housing that may be well-suited for those sites.

DRAFT | SEPTEMBER 2024 129 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 5 OF 30 1212thth Street Street
1010thth Street Street
Little Manila/Gleason Park Study Area
Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

South El Dorado StreetSouth El Dorado Street
California StreetCalifornia Street
South Stanislaus StreetSouth Stanislaus Street
East Washington StreetEast Washington Street
East Hazelton AveEast Hazelton Ave
Mormon SloughMormon Slough
East Worth StreetEast Worth Street
Study Area
0 Scale (Feet)
1,000
Gleason Gleason
ParkPark
4 East Lafayette StreetEast Lafayette Street
Aurora Street SouthAurora Street South
Exhibit 1 - Housing and Neighborhood Action Plans
Chapter 4 – Objectives and Actions: This chapter includes the Plan actions, which are divided under five objectives:

1. Further the development of housing

2. Provide more housing choices

3. Improve access to services, amenities, and transit

4. Support neighborhood revitalization

5. Preserve historic resources
Appendix 8 – Neighborhood Action Plans Existing Conditions Report: This appendix contains background information about the Study Area, including community, character demographics, and infrastructure. It also includes an infrastructure readiness analysis that was completed for three vacant infill sites in the Study Area to help inform existing conditions.

Appendix 9 – Neighborhood Action Plans Outreach Summary:

This appendix contains an overview of the outreach conducted during the preparation of the Neighborhood Action Plans, including the other two Study Areas.

CITY OF STOCKTON | HOUSING ACTION PLAN130 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 6 OF 30 Crosstown Freeway from East Lafayette Street.

What is an Action Plan?
An Action Plan includes measurable steps that can be
taken to achieve a specified objective. Objectives are end- statements; they describe what the community wants to
accomplish to resolve a particular issue or problem. Actions help guide day-to-day decision making so that there will be continuing progress toward the attainment of the com- munity’s objectives. The actions in the Little Manila/Gleason Park Neighborhood Action Plan will serve as a guide for City staff and decision makers in the effort to improve housing opportunities and access to services and amenities in the Little Manila/Gleason Park Study Area.

Exhibit 1 - Housing and Neighborhood Action Plans

2. Little Manila/
Gleason Park Study
Area
The Little Manila/Gleason Park Study Area is just south of the Crosstown Freeway (Highway 4) and Downtown Stockton.

Mormon Slough cuts through the Study Area in an east-west direction. The Study Area boundary was developed on the basis of stakeholder feedback and identified as an area with elevated need for quality housing and amenities for the community. How- ever, the Study Area boundary is not meant to serve as an of- ficial map of the neighborhood. See Appendix 8, Neighborhood Action Plans Existing Conditions Report, for more information about the Study Area.

Existing Land Use
The Study Area contains a mix of commercial, residential, industrial, and institutional uses. Residential uses occupy almost half of the Study Area and include single-family homes, duplexes, triplexes, fourplexes, apartments, and hotels that were converted to residential. There is a shelter for the unhoused population near the Study Area. Commercial uses are the next most common land use and include corner markets, offices, retail stores, restaurants, and other businesses serving the DRAFT | SEPTEMBER 2024 131 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 7 OF 30 Who Lives in Little Manila/Gleason Park?
Race/Ethnicity
►77% Hispanic or Latino (of any race)
►10% Asian
►7% Native Hawaiian and Other
Pacific Islander
►4% White
►2% Black or African American
►1% American Indian and Alaska
Native
Average Household Size
VS
3 persons per houshold in
Little Manila/Gleason Park area

3.2 persons per household
in
Stockton
Age
VS
56% below the age of 34 in
Little Manila/Gleason Park area
53% below the age of 34 in Stockton
Average Household
Income
VS
$41,877 in Little Manila/Gleason Park
$78,712 in Stockton
Overcrowded Housing
VS
22% overcrowded housing units in
Little Manila/Gleason Park area
9% overcrowded housing units
in
Stockton
Housing Tenure
VS
50% Renters 50% Owners
in Stockton
96% Renters 4% Owners
in Little Manila/Gleason Park area
Exhibit 1 - Housing and Neighborhood Action Plans
undergo intensive public outreach and a planning process that ad- dresses the needs of the community. Any plan for Mormon Slough would need to be prepared in close collaboration with service providers for the unhoused population. In addition, the plan would need to engage local community members and organizations.

San Joaquin Street Amtrak Station
San Joaquin Street Station is the southwest part of the Study Area and is one of two train stations in Stockton. The station provides Amtrak service that connects to the Bay Area, Sacramento, and destinations in the Central Valley. There are also bus connections from the train station to other parts of northern California. Funding for affordable housing is often to promote proximity to transit, and access to the train station could be improved by enhancing the sidewalks and crosswalks, planting trees to provide more shade, and adding bicycle lanes. Safety has been noted as a concern for local residents. The City could explore options to add lighting and other safety features to encourage residents to utilize the station.

Highway 4 (Crosstown Freeway)
Highway 4 is a state route that runs east to west, including an elevated section from Interstate 5 to Highway 99. The six-lane controlled freeway that carries local and regional traffic through Stockton is a major barrier dividing the Little Manila/Gleason Park Study Area from other parts of the city, including downtown. There are several parking lots and one day care center under the freeway.

This Plan calls for improving the connection between the Study needs of local residents. There are also a number of industrial uses in and near the Study Area, including mechanic shops and trucking facilities. The Study Area includes low-income census tracts where a significant number or share of residents are more than a half mile from the nearest supermarket, which are tracts the U.S. Department of Agriculture considers as having low food access. Less than a quarter of the Study Area land is occupied by vacant land, institu- tional uses, and agricultural uses.

Mormon Slough
Mormon Slough is south of East Hazelton Avenue, in the southern portion of the Little Manila/Gleason Park Study Area (see the Study Area map). Branching off the Stockton Channel, Mormon Slough offers flood protection and a potential open space amenity in an otherwise urban area of Stockton. Presently, Mormon Slough is a seasonally dry creek bed where a heavy concentration of the un- housed population live, and in proximity to local unhoused services such as the Stockton Shelter for the Homeless and the Gospel Center Rescue Mission. Mormon Slough is surrounded primarily by industrial uses, but also commercial, vacant land, and some residential development.

There is an opportunity to revitalize the Mormon Slough into a more natural recreational corridor that meets the needs of the commu- nity. Removal of trash and debris, along with plantings and installa- tion of walking and bicycling paths, could transform a segment of the intermittent waterway into a resource for the entire community to enjoy. Any changes proposed for Mormon Slough would need to CITY OF STOCKTON | HOUSING ACTION PLAN132 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 8 OF 30 Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 133 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 9 OF 30 Mormon Slough from South Sutter Street.

Mormon Slough from San Joaquin Street.

Highway 4 (Crosstown Freeway).

San Joaquin Street Station.

Exhibit 1 - Housing and Neighborhood Action Plans
Area and downtown to benefit local residents. Since Caltrans owns areas under the freeway, they are currently gaining input from the City and the community to provide future improvements and ame- nities in this area.

What we Heard from the Community About
the Study Area
The Little Manila/Gleason Park Neighborhood Action Plan was prepared in collaboration with the local community, including those who live in or around the Study Area. The primary ways community members provided input were through two pop-up events that were located in the Study Area, two open house events that were facilitated by the City, a paper survey that was available in five languages, and an online activity. These engagement methods – as well as the feedback received – are further described in Appendix 9.

Key takeaways from the community feedback received are summa- rized below. While the survey results received are not considered statistically significant, they help inform existing conditions within and near the Study Area.

Provide More Housing Choices
The first question in the housing paper survey and online activity asked people to identify the type of housing they would like to see built in their neighborhood. A majority of the participants who responded to the survey question said they would like to see apart- ments, dwuplexes, triplexes, and fourplexes built in their neighbor- hood. Other housing needs identified include accessory dwelling units, mixed-use buildings, live-work units, townhomes, supportive and transitional housing, and single-family homes. As noted above, the survey results received for the Study Area are not considered statistically significant; however, they help provide insight on the type of housing that may be needed in the Study Area.

Housing Affordability
Affordable housing was mentioned as the number one type of housing participants would like to see in the Study Area. Housing is classified as “affordable” if households do not pay more than 30 percent of income for payment of rent (including a monthly allowance for water, gas, and electricity) or monthly homeowner- ship costs (including mortgage payments, taxes, and insurance).

As stated in Stockton’s 2023-2031 Housing Element, the rate of housing cost burden for lower-income households is slightly higher in Stockton (75 percent) than in San Joaquin County (72 percent) and California (70 percent), pointing to a need for more affordable housing units in Stockton, including within the Study Area, where the average household income is $41,877 vs. Stockton’s citywide income of $78,712. In addition to affordable units, market-rate apartments were mentioned as a need and are encouraged through the actions in this Plan.

CITY OF STOCKTON | HOUSING ACTION PLAN134 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 10 OF 30 Exhibit 1 - Housing and Neighborhood Action Plans
Access to Transit, Services, and Amenities
When asked what could be added to improve the quality of life in the neighborhood, participants responded regarding a need for grocery stores or neighborhood markets, community centers, retail stores, and social services. Participants also mentioned the need for neighborhood improvements, such as bike lanes, bus shelters, improved sidewalks, streetlights, and new crosswalks. A few par- ticipants acknowledged the need for services that would meet the needs of the unhoused population that reside in or near the Study Area.

Neighborhood Revitalization
When thinking about ways to address how to revitalize the neigh- borhood in this Study Area, community members came up with a variety of ideas. One idea that was brought up was cleaning up the parks and neighborhoods in the area and creating a youth volunteer program. Other ideas include adding cameras to the streetlights, increasing surveillance, having more events for teenagers, and relocating the unhoused from schools and parks. Some community members brought up the safety concerns in the area and that these need to be addressed so the neighborhood can be revitalized.

DRAFT | SEPTEMBER 2024 135 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 11 OF 30 Residential home in Little Manila/Gleason Park.Residential Home in Little Manila/Gleason Park.

Exhibit 1 - Housing and Neighborhood Action Plans
Along with physical improvements that could be made, community members believe that there are jobs and educational opportunities that could be expanded on to increase revitalization efforts. Com- munity members also did point out that a number of buildings in the Study Area need to be improved or rehabilitated, and lack of funding was noted as a possible reason why owners of these build- ings are not improving their property.

CITY OF STOCKTON | HOUSING ACTION PLAN136 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 12 OF 30 Pop-up held on October 27, 2022.

Open House held on June 7, 2023.

Exhibit 1 - Housing and Neighborhood Action Plans

3. Potential for New
Housing
Historic Resources
The Little Manila/Gleason Park Study Area is rooted in Filipino/a history that is still present in the community today. This history is embodied in resources like the Little Manila Historic Site and the Daguhoy Lodge which was once home to a Filipino fraternal organi- zation. The Little Manila Historic Site encompasses a four-block area surrounding the intersection of Lafayette and El Dorado Streets.

Stockton is also known for having a large Chinese and Japanese community that may have resided in or near the Study Area.

State and federal laws and programs for protecting historic resources, including the California Historical Building Code, help preserve California’s architectural heritage by ensuring that build- ings are maintained and rehabilitated in accordance with historically sensitive construction techniques. In addition, the State’s Mills Act Program provides a property tax incentive to owners of qualified, owner-occupied, historical properties to maintain and preserve the historic property in accordance with the U.S. Secretary of the Inte- rior’s Standards for the Treatment of Historic Properties. The City of Stockton does not currently offer a Mills Act program, but the City may decide to establish a program in the future.

While there are currently no historic resources listed in the National Register of Historic Places or the State Register of Historic Places within the Study Area, the City recognizes there are important historic resources that should be preserved. This Plan seeks to preserve the Study Area’s historic resources to help maintain Little Manila’s special identity and continuity with the past and supports creating housing in historic buildings, if appropriate.

DRAFT | SEPTEMBER 2024 137 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 13 OF 30 Sign in the Little Manila Historic Site.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN138 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 14 OF 30 Funding for Rehabilitation of
Historic Homes
The funding programs below would benefit historic homes and buildings that seek funding for rehabilitation.
▶ The Mills Act Program. Administered and imple-
mented by local governments, this program offers eco-
nomic incentives for rehabilitation of qualified historic buildings.
▶ The Federal Historic Preservation Tax Incentives
Program. This program encourages private sector
investment in the rehabilitation and re-use of historic buildings. This program can assist in creating moder-
ate- and low-income housing in historic buildings.
▶ The State Historic Rehabilitation Tax Credit. Signed
into law in October 2019, this program is currently
being developed. When finalized, the credit this pro-
gram offers will be applied towards the rehabilitation of certified historic structures.

Challenges and Opportunities
The Little Manila/Gleason Park Study Area is an ideal place for the rehabilitation of existing homes and the construction of new hous- ing that complements the existing neighborhood. About 16% of the land in the Study Area is vacant, which means there are opportuni- ties for new housing development, including placing new housing near Downtown and the San Joaquin Street Amtrak Station. How- ever, there are small lots in the Study Area that are not conducive to new housing development. Approximately 32% of the lots in the Study Area are less than or equal to 7,500 square feet and many of those lots are much smaller.

The Study Area is also in need of infrastructure upgrades. An infra- structure readiness analysis conducted for three key vacant infill sites in the Little Manila/Gleason Park Study Area indicates that two of these properties may not have adequate fire flow for new resi- dential buildings. Sidewalk conditions throughout the Study Area were also found to be predominantly poor with uneven paving or no sidewalk at all. Some street intersections also do not have curb ramps needed for wheelchair users. These type of improvements can be costly for developers and may hinder new housing develop- ment. See Appendix 8, Neighborhood Action Plans Existing Condi- tions Report, for the complete infrastructure readiness analysis and a map showing sidewalk conditions in the Study Area.

Per the Market and Needs Assessment in the Citywide Hous- ing Action Plan, market constraints and the need for enhanced infrastructure were noted as significant challenges to constructing housing in Stockton.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 139 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 15 OF 30 Feedback from Stakeholders
T o help understand barriers to housing development in the Study Area, the City held one-on-one and small-group meetings with local stakeholders during July to September 2022. Key themes that emerged from these meetings surrounding challenges and oppor- tunities for new housing development, are as follows:
▶ Small Lot Sizes. The small lots in the Study Area were noted as a constraint to new housing development. T o help address this challenge, the City could explore the feasibility of reducing or eliminating the lot merger or lot line adjustment fees for a certain period.
▶ New Housing and Rehabilitation of Existing Homes: Live- work units and housing types that could be accommodated on smaller vacant lots were recommended as an opportunity in the Study Area. While there are opportunities for new housing de- velopment, the preservation and rehabilitation of existing homes was also noted. This Plan supports both the creation of new housing and the rehabilitation of existing homes.
▶ Community Organizations: There is an opportunity to col- laborate with local community organizations to improve housing choices in the Study Area. Partnering with other organizations will bring additional expertise, resources, and perspectives to solving the unique challenges presented in this neighborhood.

One idea that was shared is to work with a local organization to develop an educational homeownership training course or other resources for first-time homebuyers. Another option could be to What is a Community
Development Corporation?
A Community Development Corporation is a non-profit orga- nization dedicated to making a positive impact on local com- munities. They focus on improving and revitalizing neigh- borhoods, especially those facing challenges like poverty, lack of resources and amenities, and limited educational or employment opportunities. Community Development Cor-
porations help build affordable housing, provide job training programs, create educational initiatives, and offer social services to support community members in need.
support the creation of a Community Development Corporation focused on neighborhood revitalization and the construction of housing.
▶ Housing Market. The sales price of new market rate housing in Stockton is lower than in nearby areas, which has led develop- ers to favor other communities over Stockton. However, since affordable housing development usually includes State funding, these projects tend to be relatively feasible in Stockton. This Plan supports affordable housing and encourages the construction of housing at varying income levels.
▶ Development Process. Timing can be a major constraint to new housing development. Market fluctuations and time from application to approval can hinder new development. This Plan Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN140 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 16 OF 30 Corner Market in Little Manila/Gleason Park.

Spanos Elementary School in Little Manila/Gleason Park. supports expanding the active period for permits and entitle- ments from 12 months to 24 months to allow for flexibility by housing developers.
▶ City Fees. Fees were also identified as a barrier to new housing development. This Plan explores efforts to waive or reduce certain City fees for new housing development in the Study Area. It also supports the preparation of marketing materials that highlight common improvements and costs associated with development to provide transparency.
▶ Funding. T o support housing creation, there is an opportunity to assist developers with the cost of developing housing. The City could evaluate the feasibility and benefits of adopting a financing district for the Study Area to support the development of hous- ing, as well as neighborhood revitalization.

In addition to housing, stakeholders noted there are other issues in the Study Area, such as public safety concerns, limited access to healthy foods, high asthma rates, and poor pedestrian infrastruc- ture. The primary objective of the Plan is to further the development of housing in the Study Area; therefore, the objectives and actions included in this Plan are housing-focused. Actions are also included to address key issues to help enhance the quality of life in the Study Area; however, there are issues unrelated to housing production that are not addressed in this Plan.

See Appendix 9, Neighborhood Action Plans Outreach Summary, for a complete summary of the feedback received.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 141 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 17 OF 30 View of Study Area from East Lafayette Street.

Displacement Risk
Displacement risk increases when a household is paying more for housing than their income can support. Stockton is in San Joaquin County, which is a region that has experienced significant popula- tion growth and development resulting in rising housing costs and increasing the risk of displacement in some neighborhoods.

T o study the displacement vulnerability of Stockton households, the City of Stockton prepared a Residential Displacement Assess- ment Report in 2023. This Assessment Report utilized two mapping tools: the San Joaquin County’s Gentrification and Displacement Mapping T ool and The Affirmatively Furthering Fair Housing Data Viewer, to identify the types of displacement risk that residents are facing. According to this mapping tools, the Little Manila/Gleason Park Study Area is under the “Varying Levels of Displacement” designation.

This plan includes actions to help further the development of housing and improve access to services and amenities in the Little Manila/Gleason Park Study Area, which could inadvertently increase the potential for displacement. T o help mitigate this risk, the Neighborhood Action Plan includes strategies that support the development of affordable housing in the Study Area. The Residen- tial Displacement Assessment Report also identifies the following strategies to help combat displacement: proactive code enforce- ment, diversifying the housing stock, and expanding legal-aid and tenant-landlord education programming.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN142 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 18 OF 30 California StreetCalifornia Street
South Stanislaus StreetSouth Stanislaus Street
East Washington StreetEast Washington Street
East Hazelton AveEast Hazelton Ave
Mormon SloughMormon Slough
East Worth StreetEast Worth Street
South El Dorado StreetSouth El Dorado Street
0 Scale (Feet)
1,000
Gleason Gleason
ParkPark
4 East Lafayette StreetEast Lafayette Street
Aurora Street SouthAurora Street South
Vacant parcels and
underutilized parking areas
Study Area
26 16
1 5
1510
21 24
22 35
34 33
32 28 30
18 2
6 11
12 13
3 4
7 148 9
19 20
25 17
23 29
27 31
Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

Vacant Sites in Little Manila/Gleason Park
Vacant Sites
During the Plan development process, the project
team identified 35 sites within the Study Area that are vacant or have a surface parking lot that is not well-
utilized. These sites may serve as an opportunity for
new housing development. The Vacant Sites in Little
Manila/Gleason Park map shows the location of these
sites, and the table that follows identifies the most
feasible housing types that could be built on each site based on the lot size and the characteristics of the
surrounding neighborhood. The most feasible housing
types are listed by letter (A-I) in the table on Page 21 to correspond with the housing type descriptions that
follow. While the City does encourage new housing
development on vacant properties, where appropriate,
the City itself does not build housing unless the prop- erty is owned by the City. Redevelopment of any of the
sites that are privately owned would require agreement
with the property owner, approval of a development
proposal, and adequate infrastructure.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 143 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 19 OF 30 High-Rise
Residential
A
Live-Work
G
Mid-Rise
Apartments
B
Multiplexes
H
Low-Rise
Apartments
C
Triplexes and
Duplexes
I
Mixed-Use
D
Cottage
Courts
E
Townhomes
F
Site
Number Street Address
Most
F easible
Housing
T
ypes
1 348 South El Dorado Street I
2 111 East Sonora Street I
3 125 & 119 East Sonora Street I
4 329 South San Joaquin Street I
5 231 East Sonora Street I
6 331 South San Joaquin Street I
7 318 East Lafayette Street I
8 Assessor’s Parcel Number: 14909107 G, I
9 412 East Lafayette Street and
Parcel Number: 14909303
G, H
10 320 South Sutter Street G, I
11 328 South Sutter Street C, D, F , G, H
12 310 South California Street G, I
13 528, 548, & 534 East Lafayette Street,
317 South American Street, and
411 South Stanislaus Street
B
14 712 East Lafayette Street F , G, I
15 315 South Grant Street and
745 East Sonora Street

E, F , G
16 430 South El Dorado Street D, F , H
17 134 East Sonora Street I
18 121 East Church Street I
19 Assessor’s Parcel Number: 14906410 G, H, I
20 421 South Sutter Street I
Site
Number Street Address
Most
F easible
Housing
T
ypes
21 319 East Hazelton Avenue I
22 518 South Sutter Street I
23 539 South California Street I
24 547 South California Street C, F , G, H
25 Assessor’s Parcel Number: 14907041 C, D, G
26 Assessor’s Parcel Number: 14722011 F
27 Assessor’s Parcel Number: 14722012 C, D
28 302 East Hazelton Avenue E, H
29 702 South San Joaquin Street E, H
30 432 East Hazelton Avenue &
701 South California Street
E, H
31 713 South California Street G
32 760, 816, 822, 826, 830, 850 East
Hazelton Avenue & 635, 635 South
Aurora Street

B, C, D, F
33 720 South Stanislaus Street F, G
34 747 South Grant Street G, H
35 817 & 825 South Grant Street E, F , G
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN144 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 20 OF 30 Vacant site on East Lafayette Street.

Housing Types
The following residential development types were identified based on typical housing products being built across California and were screened for appropriateness to the Study Area based on existing built form, relevant barriers to development, and characteristics of existing properties within the Study Area. Site characteristics of properties in the Study Area, including typical lot dimensions and sizes, guided the description for each housing type to ensure that appropriate housing types can be developable within the neighbor- hood context.

Triplexes, duplexes, and live-work housing types were identified as the most feasible housing type for more than half of the vacant sites within the Study Area based on lot size and neighborhood charac- teristics. Multiplexes, townhomes, low-rise apartments, mixed-use, cottage courts, and mid-rise apartments are also suitable for some of the vacant sites. High-rise apartments were not selected as a feasible housing type based on lot sizes and neighborhood form; however, this type is included in this Plan for reference in case there is a potential for its development in the future.

The following content shown in yellow describes the housing types and shows example drawings. T o learn more about each housing type, please see the citywide Housing Action Plan. The drawings do not show an actual development project; they are intended to provide a visual representation of what the housing type could look like.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 145 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 21 OF 30 A. High-Rise Residential
These are high-density apartments that are typically developed within existing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs.

They are constructed on larger lots with an active frontage provided along a public street and can be seven stories or taller. Outdoor space is provided in the form of common courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

B. Mid-Rise Apartments
These are medium-density apartments that are typically developed within or near exist- ing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs. They are constructed on large-sized lots with common entries oriented towards the public streets and can be four to six stories tall. Outdoor space is provided in the form of courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

C. Low-Rise Apartments
These are low-density apartments that are typically developed in low- to medium-density neighborhoods, in downtown areas, and near employment and transportation nodes.

They can be constructed on a variety of lot sizes with common entries oriented towards a public street and can be two to three stories tall. Outdoor space is provided in the form of courtyards at ground level, on rooftops, or in private open space areas such as balconies.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN146 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 22 OF 30 D. Mixed-Use
These developments contain residential uses in combination with retail and/or office spaces and can be arranged either vertically or horizontally. They are appropriate within neighborhoods of all densities, in downtown areas, and near transit stations. They can be constructed on a variety of lot sizes and can be three stories or taller. Outdoor space is provided in the form of courtyards at ground level or on parking podiums, or in private open space areas such as balconies.

E. Cottage Courts
These are homes that consist of small detached residential units surrounding a common courtyard that serves as outdoor space. Entrances to each unit are accessed off of this central court. They are appropriate within existing low- to medium-density neighborhoods and in areas transitioning out of nonresidential uses. They can be constructed on a variety of lot sizes but are typically recommended for medium to larger sized lots. Cottage courts can be one to three stories tall.

F. Townhomes
These are homes that are attached in a horizontal configuration, each with a standalone entrance. They are appropriate within neighborhoods of all densities and fit a variety of lot sizes. T ownhomes can be two to three stories tall. Entrances are oriented towards a public street and outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground-level courtyards, or by using interconnected landscape areas in multi- building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 147 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 23 OF 30 G. Live-Work
These are homes that provide a flexible ground-floor space that could be used for home- based employment or additional living space. They are appropriate within neighborhoods of all densities, within neighborhood commercial corridors, or in downtown areas. Live-Work units fit a variety of lot sizes and can be two to three stories tall. Entrances are oriented towards a public street or can be oriented towards a common interior courtyard. Outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

H. Multiplexes
These are flexible four-unit or larger multifamily developments in which units can be arranged in a single structure or in multiple structures on a site. They are appropriate within existing low- to medium-density residential neighborhoods or in downtown areas.

They can be constructed on medium to large size lots and can be two to four stories tall.

Outdoor space can be provided in upper-floor terraces and balconies, ground-level court- yards, or by using interconnected landscape areas in multi-building projects.

I. Triplexes and Duplexes
These are flexible development types that feature two to three attached units with sepa- rate entrances that can be arranged vertically or horizontally. They are appropriate within existing low- to medium-density residential neighborhoods or on small lots with proximity to services. They can be constructed on small to medium size lots and can be two to three stories tall. Outdoor space can be provided in upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN148 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 24 OF 30

4. Objectives and
Actions
The Little Manila/Gleason Park Study Area is an ideal place for the rehabilitation of existing homes and the construction of new housing that complements the existing neighborhood, but the area needs infrastructure upgrades that could hinder new development due to cost. Small lot sizes, environmental contamination, lack of funding, and market constraints pose additional challenges.

The Little Manila/Gleason Park Neighborhood Action Plan provides feasible actions to help address these challenges and incentivize housing preservation and development based on five overarching objectives:

1. Further the Development of Housing

2. Provide More Housing Choices

3. Improve Access to Transit, Services, and Amenities

4. Support Neighborhood Revitalization

5. Preserve Historic Resources
The actions will serve as a guide for City staff and decision makers in the effort to improve housing opportunities in the Study Area. For a list of potential financial and grant sources, please see the citywide Housing Action Plan.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 149 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 25 OF 30

1. Further the Development of Housing
Action 1.1 Encourage Site Assembly. Explore the feasibility of reducing or eliminating the “lot merger” and “lot
line adjustment” fees in the Little Manila/Gleason
Park Study Area for a three year period.

Action 1.2 Economic Development Programs. Optimize
existing economic developments programs the
City already has in place to better align with the
Neighborhood Action Plan.

Action 1.3 Extend Permit and Entitlements “Active”
Period. Expand the “active” period for permits
and entitlements in the Little Manila/Gleason Park
Study Area from 12 months to 24 months.

Action 1.4 Public Facilities Fees. Support the Public Facili- ties Fees Nexus Study which will determine if the
fees collected by the City are the right amount for
the City of Stockton. The Nexus Study is currently
in the process as of September 2023.

Action 1.5 Vacant and Underutilized Sites Inventory.

Create and regularly update a searchable/digital
inventory of vacant and/or underutilized sites in
the Study Area. Use the inventory list to conduct
targeted property owner outreach, as described in
Action 1.6.

Action 1.6 Property Owner Outreach. Conduct targeted
outreach to property owners in the Study Area to
learn why they may be leaving a site undeveloped
or underutilized. Describe any applicable incen-
tives or programs the City offers that may assist
the property owner with developing the site.

Action 1.7 Land Banking. Pursue opportunities for acquisi- tion and disposition of land that can be used for
residential and/or mixed-use projects.

Action 1.8 City Staff Support. Explore the feasibility of expanding capacity by adding City staff or seeking
staff services through consultants to implement
the actions included in the Neighborhood Action
Plan, if additional staff support is needed.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN150 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 26 OF 30

2. Provide More Housing Choices
Action 2.1 Commercial Neighborhood Rezoning. Rezone
properties currently zoned as Commercial General
in the Little Manila/Gleason Park Study Area to
Commercial Neighborhood and explore hybrid
commercial industrial zoning regulations to
encourage and support housing in transitioning
industrial areas along Mormon Slough.

Action 2.2 Housing for Large Households. Encourage
projects that provide large units (three bedrooms
or more) to incentivize the creation of housing for
large households.

Action 2.3 Multi-generational Housing. Explore changes
to City codes and regulations to support multi-
generational housing.

Action 2.4 Homeownership Education. Collaborate with
local community organizations to distribute mate-
rials and conduct educational efforts centered on
homeownership education in the Study Area.

Action 2.5 Down-payment Assistance. Work with San Joa-
quin County to conduct targeted outreach on the
San Joaquin County Gap Loan Program to renters
in the Study Area to provide down-payment as-
sistance to interested and eligible lower-income,
first-time homebuyers.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 151 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 27 OF 30

3. Improve Access to Transit, Services, and Amenities
Action 3.1 Mormon Slough Plan. Explore the feasibility of creating a plan for Mormon Slough that addresses the needs of the community.

The plan process should include a housing strategy, workforce development, and extensive community outreach and collabora- tion with service providers for the unhoused in the area. The plan may include recreational uses along the slough, such as a bike and/or walking trail, residential and/or commercial develop- ment, and other features prioritized by the community.

Action 3.2 Transit-Oriented Development Feasibility Study. Analyze op- portunities for transit-oriented development in the Little Manila/ Gleason Park Study Area, including parking capacity, regulatory incentives, financial feasibility, funding opportunities, and con- ceptual design options.

Action 3.3 Transit-Oriented Development Funding. Partner with transit agencies to pursue funding for transit-oriented development.

Action 3.4 Stockton Diamond Project. Support San Joaquin Regional Rail Commission’s efforts to secure additional state, federal, and local funding to complete improvements contributing toward the enhancement of the surrounding area or that provide other community benefits.

Action 3.5 Stocked Full of Produce Program. Conduct targeted outreach to store owners in the Little Manila/Gleason Park Study Area to ensure they are aware of the program’s benefits. Explore partnerships with community-based organizations to support healthy produce being sold in local retail establishments.

Action 3.6 Bicycle and Car Share. Coordinate with stakeholders to place bike and car-share in key locations to improve active transportation options and support first and
final-mile connectivity for neighborhood residents and
commuters.

Action 3.7 Alternative Modes of Transportation. Collaborate with local organizations to establish a community work- ing group to meet regularly with residents to identify
and prioritize needed infrastructure and programming
that supports alternative modes of transportation, such as walking, biking, and taking the bus.

Action 3.8 Conquering the Digital Divide. Pursue funding and partnerships to expand the City’s Fiber Optic Infrastruc- ture, to help provide reliable digital access to residents in the Study Area.

Action 3.9 Connect Study Area to Downtown. Explore options to better connect the Little Manila/Gleason Park Study
Area with Downtown Stockton.

Action 3.10 Amtrak Station. Pursue funding for the planning and construction of connectivity and public realm improve-
ments to the San Joaquin Street Amtrak Station.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN152 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 28 OF 30

4. Support Neighborhood Revitalization
Action 4.1 Environmental Site Assessments. Conduct Phase I and/or Phase II environmental site assessments for
vacant and underutilized sites in the Little Manila/
Gleason Park Study Area.

Action 4.2 Community Development Corporations. Work
with community organization(s) to support a
Community Development Corporation focused on
neighborhood revitalization and building housing in
the Little Manila/Gleason Park Study Area.

Action 4.3 Financing Districts. Evaluate the feasibility and benefits of adopting a financing district for the
Little Manila/Gleason Park Study Area to support
the development of housing and neighborhood
revitalization.

Action 4.4 Cultural District. Pursue designation as a Cali- fornia Cultural District to support the Study Area’s
history and cultural resources and activities.

Action 4.5 Residential Upgrades. Continue to offer solar installation, energy and water-efficiency upgrades,
drought tolerant landscaping, and tree planting
services to residents within the Study Area. Collabo-
rate with Stockton Rising to inform residents of the
program’s benefits.

Action 4.6 Façade Improvement Forgivable Loan Program.

Study the feasibility of expanding the City’s façade
improvement forgivable loan program, which
currently helps fund exterior renovations of com-
mercial buildings to also fund façade renovations
of residential buildings.

Action 4.7 Owner-Occupied Rehabilitation Program.

Conduct targeted outreach in the Study Area for
the Single-Family Rehabilitation Program, which
provides qualified homeowners with financial
assistance to complete substantial interior and
exterior repairs.

Action 4.8 Sidewalk Repair and Gaps. Pursue funding to
assist property owners with repair and installation
of sidewalks in portions of the Study Area identified
in Appendix 8 as “no sidewalk” or “needs repair. ”
Action 4.9 Community Development “Review List” Materi-
als. Prepare marketing materials that highlight
common improvements and costs associated with
development such as repair of sidewalks, paved
parking areas, etc.

Action 4.10 Downtown Stockton Alliance. Collaborate with the Downtown Stockton Alliance to explore the
inclusion of the Little Manila/Gleason Park Study
Area within the business improvement district.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 153 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 29 OF 30

5. Preserve Historic Resources
Action 5.1 Historic Resources Context Statement. Prepare a historic context statement for the Study Area to
identify individually eligible resources and historic
districts.

Action 5.2 Historic Resources Survey and Inventory.

Establish and maintain an up-to-date inventory
of historic resources in the Study Area. Prepare
the historic context statement prior to the historic
resources survey.

Action 5.3 Historic District. Explore the formation of a his- toric district that designates the Study Area as a
unified historic resource due to the concentration
of historic resources, which may include build-
ings, sites, structures, landmarks, and objects of
historic merit.

Action 5.4 Development Review and Fees. Work with the
Cultural Heritage Board to explore the feasibility
of a historic resource rehabilitation program that
includes expedited review and reduced fees for
housing projects that include historic resources in
the Study Area.

Action 5.5 Public Awareness. Prepare educational materials that explain available funding for rehabilitation of
historic resources and describe the demolition
process if demolition of the historic resource is
permissible by the City.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN154 LITTLE MANILA GLEASON PARK NEIGHBORHOOD ACTION PLAN PAGE 30 OF 30 This page intentionally left blank.

Exhibit 1 - Housing and Neighborhood Action Plans
Cabral/
East Cabral
Station Area
Neighborhood
Action Plan
for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN156 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 2 OF 26 Neighborhood Action Plan Table of Contents

1. Introduction 4 of 26

2. Cabral/East Cabral Station Study Area 7 of 26

3. Potential for New Housing 11 of 26

4. Objective and Actions 21 of 26
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 157 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 3 OF 26 Prepared By:
101 P
arkshore Drive, Suite 200
Folsom, California 95630
t 916.245.7500
ORANGE COUNTY • BAY AREA • SACRAMENTO • CENTRAL COAST • LOS ANGELES • INLAND EMPIRE www.PlaceWorks.com
Cabral/East Cabral Station Area
N
eighborhood Action Plan
for the City of Stockton
September 2024
Exhibit 1 - Housing and Neighborhood Action Plans

1. Introduction
As of 2023, the entire state of California, including Stockton, faces a significant housing supply and affordability crisis spurred by high land costs, rising construction costs, and limited financing options.

In 2019, the Governor allocated $250 million to help jurisdictions with planning efforts that accelerate housing production to meet the identified needs of each community. The funds were directly allocated as a one-time award to regional governments. Stockton’s regional Council of Governments – the San Joaquin Council of Governments (SJCOG) – was the governing body responsible for distributing the funds to local jurisdictions. In 2021, the City of Stockton applied for and was awarded funds to prepare Neighbor- hood Action Plans focused on furthering housing development in three areas in Stockton, including the Cabral/East Cabral Station Area, which is the focus of this Action Plan. Separate Action Plans were also prepared for two other areas: South Airport Way and Little Manila/Gleason Park.

Purpose of This Action Plan
The City is continuously working to address housing supply issues and has adopted a number of plans and strategies that directly or indirectly support housing throughout the city. The Cabral/East Cabral Station Area Neighborhood Action Plan (Plan) builds on these plans, including the City’s Housing Action Plan and Housing Element. The Plan identifies actions to further the development of housing, achieve a variety of housing types, support neighbor- hood revitalization, and improve access to transit, services, and amenities within the Cabral/East Cabral Station Action Plan Area (Study Area), which is shown and described herein.

Users of the Plan include community members interested in learn- ing about the City’s efforts to further housing development in the Study Area, housing developers, City staff, decision-makers, and any other interested party.

Description of the Study Area
The Cabral/East Cabral Station Study Area is in central Stockton, bound by the Crosstown Freeway (Highway 4) to the south and the University Park campus to the north, along Park Street. A portion of the Study Area is within Stockton’s Downtown. The Robert J. Cabral Train Station, which serves passenger rail along an active freight line, is at the center of the Study Area. Residential uses, including single-family homes, duplexes, fourplexes, apartments, and mixed- use housing, occupy a large portion of the area. Commercial uses, including restaurants, grocery stores, retail stores, medical offices, offices, and auto-oriented businesses, can be found in the Study Area. Industrial uses can also be found throughout the Study Area.

Located on the eastern side of the Study Area is the Jane Frederick Continuation High School. There are several historic resources in the area, including two federal, one state, and 17 local historic sites and landmarks. These range from sites like the Elks Building, the Benjamin Holt Home, and the Childrens Home of Stockton.

Like the South Airport Way and Little Manila/Gleason Park areas, Cabral/East Cabral Station was selected for a Neighborhood Action CITY OF STOCKTON | HOUSING ACTION PLAN158 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 4 OF 26 Exhibit 1 - Housing and Neighborhood Action Plans
Plan because there is an elevated need for quality housing and complementing services and amenities for the surrounding com- munity. These areas were identified in the 2040 Envision Stock- ton General Plan as sites in need of investment. All three areas are also located within the South Stockton Promise Zone and are mapped by the State Housing and Community Development De- partment as low-resource areas, with the need to improve access to adequate infrastructure, employment, and housing. The objec- tives and actions included in this Neighborhood Action Plan may be applicable to areas outside of the Study Area boundary.

How to use the Action Plan
The Cabral/East Cabral Station Neighborhood Action Plan is organized into four chapters and two appendices. The contents of each chapter are summarized here.

Chapter 1 – Introduction: This chapter provides a summary of the Plan purpose, describes the Study Area boundary, and explains the contents of the Plan.

Chapter 2 – Cabral/East Cabral Station Study Area: This chapter describes the Cabral/East Cabral Station Study Area, including existing land uses, community character, and demo- graphics, which together provide the baseline conditions the Plan will address through the actions in Chapter 4.

Chapter 3 – Potential for New Housing: This chapter explores challenges and opportunities for new housing development in the Study Area. It highlights feedback from stakeholders and DRAFT | SEPTEMBER 2024 159 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 5 OF 26 North Wilson WayNorth Wilson Way
Sutter StreetSutter Street
California StreetCalifornia Street
North Airport WayNorth Airport Way
S. Stanislaus StreetS. Stanislaus Street
Study Area
0 Scale (Feet)
1,000
East Washington StreetEast Washington Street
East Weber AveEast Weber Ave
East Miner StreetEast Miner Street
East Oak StreetEast Oak Street
Park StreetPark Street
East Lafayette StreetEast Lafayette Street
Robert J. Robert J.

Cabral StationCabral Station
4 Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

Cabral/East Cabral Station Study Area
Exhibit 1 - Housing and Neighborhood Action Plans
includes a map of vacant sites with descriptions of the types of new housing that may be well-suited for those sites.

Chapter 4 – Objectives and Actions: This chapter includes the Plan actions, which are divided under four objectives:

1. Further the development of housing

2. Provide more housing choices

3. Improve access to transit, services, and amenities

4. Support neighborhood revitalization
Appendix 8 – Neighborhood Action Plans Existing Conditions Report: This appendix contains background information about the Study Area, including community, character demographics, and infrastructure. It also includes an infrastructure readiness analysis that was completed for three vacant infill sites in the Study Area to help inform existing conditions.

Appendix 9 – Neighborhood Action Plans Outreach Summary:

This appendix contains an overview of the outreach conducted during the preparation of the Neighborhood Action Plan.

CITY OF STOCKTON | HOUSING ACTION PLAN160 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 6 OF 26 Incoming Train at the Robert J. Cabral Train Station.

What is an Action Plan?
An Action Plan includes measurable steps that can be
taken to achieve a specified objective. Objectives are end- statements; they describe what the community wants to
accomplish to resolve a particular issue or problem. Actions help guide day-to-day decision making so that there will be continuing progress toward the attainment of the com- munity’s objectives. The actions in the Cabral/East Cabral Station Area Action Plan will serve as a guide for City staff and decision makers in the effort to improve housing oppor- tunities and access to services and amenities in the Cabral/ East Cabral Station Area Study Area.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 161 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 7 OF 26

2. Cabral/East Cabral
Station Study Area
The Cabral/East Cabral Station Study Area is in central Stockton, between the Crosstown Freeway and the University Park campus, and bisected by the Union Pacific railroad line, as shown on the Study Area map (Page 5 of the Neighborhood Action Plan). A portion of the Study Area is in Downtown Stockton and includes the Robert J. Cabral Train Station. The Altamont Corridor Express operates four daily roundtrips originating at the Cabral Train Station, traveling through the Tri-Valley area, and into downtown San Jose. The Study Area boundary was developed on the basis of stakeholder feedback and identified as an area with elevated need for quality housing and amenities for the community. How- ever, the Study Area boundary is not meant to serve as an official map of the neighborhood. See Appendix 8, Neighborhood Action Plans Existing Conditions Report, for more information about the Study Area.

Existing Land Use
The Study Area includes a mix of housing, commercial, mixed- use, industrial, institutional uses, and vacant land. Almost half of the land in the Study Area is occupied by single-family homes, duplexes, fourplexes, apartments, and mixed-use housing. Com- mercial and industrial uses comprise about a quarter of the land Who Lives in Cabral/East Cabral Station Area?
Average Household Size
VS
2 persons per houshold in
Cabral/East Cabral Station area

3.2 persons per household
in
Stockton
Age
VS
46% below the age of 34 in
Cabral/East Cabral Station area
53% below the age of 34 in Stockton
Average Household
Income
VS
$35,518 in Cabral/East Cabral Station
$78,712 in Stockton
Overcrowded Housing
VS
16% overcrowded housing units in
Cabral/East Cabral Station area
9% overcrowded housing units
in
Stockton
Race/Ethnicity
►63% Hispanic or Latino (of any race)
►14% Black or African American
►12% White
►8% Asian
►2% Two or more races
►1% Native Hawaiian and Other
Pacific Islander alone
Housing Tenure
VS
50% Renters 50% Owners
in Stockton
90% Renters 10% Owners
in Cabral/East Cabral Station area
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN162 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 8 OF 26 uses in the Study Area and include restaurants, grocery stores, retail stores, medical services, offices, and auto-oriented businesses. The Study Area includes low-income census tracts where a significant number or share of residents is more than a half mile from the nearest supermarket, which are tracts the U.S. Department of Agriculture considers as having low food access. Vacant land and institutional uses cover roughly a quarter of the Study Area.

What We Heard from the Community About
the Study Area
The Cabral/East Cabral Station Neighborhood Action Plan was prepared in collaboration with the local community, including those who live in or just around the Study Area. The primary ways community members provided input were through three pop-up events that were in the Study Area, two open house events that were facilitated by the City, a paper survey that was available in five languages, and an online activity. These engagement methods – as well as the feedback received – are further described in Appendix 9.

Key takeaways from the community feedback received are summa- rized below. While the survey results received are not considered statistically significant, they help inform existing conditions within and near the Study Area.

Provide More Housing Choices
The first question in the housing paper survey and online activity asked people to identify the type of housing they would like to see built in their neighborhood. A majority of the participants who responded to the survey question said they would like to see mixed- use buildings, apartments, duplexes, triplexes, and fourplexes built in their neighborhood. Other housing needs identified include live-work units, townhomes, supportive or transitional housing, tiny homes, housing with smaller units, and single-family homes. As noted above, the survey results received for the Study Area are not considered statistically significant; however, they help provide in- sight on the type of housing that may be needed in the Study Area.

Housing Affordability
Affordable housing was mentioned as the number one type of housing participants would like to see in the Study Area. Housing is classified as “affordable” if households do not pay more than 30 percent of income for payment of rent (including a monthly allowance for water, gas, and electricity) or monthly homeowner- ship costs (including mortgage payments, taxes, and insurance).

As stated in Stockton’s 2023-2031 Housing Element, the rate of housing cost burden for lower-income households is slightly higher in Stockton (75 percent) than in San Joaquin County (72 percent) and California (70 percent), pointing to a need for more affordable housing units in Stockton, including within the Study Area, where the average household income is $35,518 vs. Stockton’s citywide income of $78,712. Market-rate apartments were also mentioned as a need and are also encouraged through the actions in this Plan.

Access to Transit, Services, and Amenities
When asked what could be added to improve the quality of life in the neighborhood, participants responded regarding a need for grocery stores or neighborhood markets, community centers, green Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 163 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 9 OF 26 Pop-up event held at the Golden Villa Farmers Market on October 29, 2022.

Open House held on June 13, 2023.
spaces and parks, and social services. There is also a need for com- mercial spaces where people can visit while waiting for the train, such as restaurants and boutique shops. In addition, participants mentioned the need for neighborhood improvements such as bike lanes, streetlights, improved sidewalks, and the installation of mid-block pedestrian crossings. More bus routes that resemble the current express routes which go back and forth on a single line rather than a one-way loop was also mentioned as a suggestion for the Study Area.

Neighborhood Revitalization
In addition to housing and the need for services and amenities, the maintenance of rental units was brought up during the outreach effort as a concern in the Study Area. Maintenance and vandalism were also noted as an issue for property owners. Safety within and around the parks was also brought up, as well as an increased need for outreach efforts and social services dedicated to the unhoused population. Other comments received about the Study Area include increasing police patrols, providing community gardens and shuttles, and encouraging carpools.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN164 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 10 OF 26 Pop-up event held at the Full Moon Riders Event on
October 8, 2022
Pop-up event held at the Makers on Main Street Event on June 27, 2023
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 165 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 11 OF 26 Downtown Transit Center in Downtown Stockton.

3. Potential for New
H
ousing
Transit-Oriented Development
Transit-oriented development (TOD) focuses on placing new hous- ing and services around existing or future public transportation stations where other modes of transportation like walking or bicy- cling are prioritized. The result of TOD is a more dense, walkable, mixed-use style of development near transit, which attracts people and adds to vibrant and connected communities. TOD generally provides a mix of residential and commercial development and is specifically designed to make public transportation more successful and enhance the convenience and safety of walking and bicycling.

Therefore, TOD is a common tool for reducing reliance on single- occupant vehicles, reducing greenhouse gas emissions and vehicle miles traveled, and building resilient communities in existing urban areas.

The Cabral/East Cabral Station Study Area has various public transportation facilities that would make TOD a sustainable option for future housing and mixed-use development. The Study Area includes the Robert J. Cabral Train Station served by the Altamont Corridor Express (ACE), linking residents with the Tri-Valley area and ultimately downtown San Jose. This station is the first before heading west into the Bay Area and is within five blocks of the San Joaquin Regional Transit District Downtown Transit Center, allowing Additional benefits of TOD include providing places where residents can live, work, and play in the same area, stimulat- ing the local economies, protecting green space, and provid- ing better access to jobs.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN166 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 12 OF 26 ACE riders to use public transportation to get to the train station.

The San Joaquin Regional Rail Commission (SJRRC) is working to open new passenger rail service, called Valley Rail, between Stock- ton and Sacramento in 2024/2025.

Due to the abundance of regional and local public transportation connections in the Study Area, there is an opportunity for incentiv- izing TOD housing projects near the Robert J. Cabral Train Station.

Such projects could boost the local economy and revitalize the community by providing much-needed housing near affordable public transportation. Implementation of TOD opens funding op- portunities through various federal, state, and regional grants that can help fund new housing developments in the Study Area. For instance, the Affordable Housing and Sustainable Communities Program funds affordable housing developments and transporta- tion related amenities.

Challenges and Opportunities
The Cabral/East Cabral Station Study Area is an ideal place for the construction of new housing that supports access to transit and complements the existing neighborhood. About 14% of the land in the Study Area is vacant, which means there are opportunities for new housing development, including placing new housing in Down- town, near the Robert J. Cabral Train Station and Transit Center, and in close proximity to bus stops.

While there are opportunities for housing development, the Study Area is in need of infrastructure upgrades. An infrastructure readiness analysis conducted for three key vacant infill sites in the Cabral/East Cabral Station Area indicates that these properties may not have adequate fire flow for new residential buildings. Sidewalk conditions in the Study Area were also found to be poor, primarily north of Miner Avenue and east of the railroad. Many street inter- sections also do not have curb ramps needed for wheelchair users.

These type of improvements can be costly for developers and may hinder new housing development. See Appendix 8, Neighborhood Action Plans Existing Conditions Report, for the complete infra- structure readiness analysis and a map showing sidewalk condi- tions in the Study Area.

Per the Market and Needs Assessment in the Citywide Hous- ing Action Plan, market constraints and the need for enhanced Brownfields
Brownfields are sites that may have a hazardous substance, pollutant, or contaminant. Cleaning up and reinvesting in brownfield properties can increase the local tax base, facili- tate job growth, and take development pressures off of open land A variety of grants support brownfield revitalization efforts by funding assessment, cleanup, and job training, including:
▶ the EPA Brownfield Multipurpose Grant, which offers
up to $800,000 to assess site reuse and market feasi-
bility assessment; and
▶ the EPA Brownfield Cleanup Grant, which can provide
up to $2 million for one or more sites.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 167 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 13 OF 26 infrastructure were noted as significant challenges to constructing housing in Stockton.

Feedback from Stakeholders
T o help understand barriers to housing development in the Study Area, the City held one-on-one and small-group meetings with local stakeholders during July to September 2022. Key themes that emerged from these meetings surrounding challenges and oppor- tunities for new housing development, are as follows:
▶ Environmental Contamination. There is a concern about devel- oping some of the vacant properties in the Study Area because the ground is likely contaminated. Sites that are contaminated typically require remediation before construction can occur, which can be an impediment to new housing development due to cost and timing issues. T o help address this challenge, this Plan encourages pursuing grants for brownfield analysis, and if needed, remediation and a holistic program for cleaning up sites in the Study Area.
▶ Abandoned Buildings and Vacant Sites. Nonresponsive
owners of abandoned buildings and vacant sites were identified as a barrier to new housing development in the Study Area. This Plan encourages targeted outreach to property owners in the Study Area to learn why they may be leaving a site undeveloped.

Identifying opportunities for acquiring land that may be suitable for housing and offering the land to housing developers or resell- ing the land(s) acquired, which is known as land banking, is also supported in this Plan.
▶ Housing. Multifamily, mixed-use, live-work, and homeowner- ship housing were recommended as an opportunity for some of the lots in the Study Area. However, it was also noted that in addition to housing, amenities and commercial uses are needed to support new housing development. The Table on Page 16 of the Neighborhood Action Plan includes a list of vacant sites and identifies the most feasible housing types that could be built on each site.
▶ Community Organizations. There is an opportunity to collabo- rate with local community organizations to help improve housing choices in the Study Area. Partnering with other organizations will bring additional expertise, resources, and perspectives to solving the unique challenges presented in this neighborhood.

One idea that was shared is to work with a local organization to encourage community members to participate in an educational homeownership training course or learn about other resources for first-time homebuyers.

What is Land Banking?
Land banks can be created by local jurisdictions to acquire and hold abandoned, vacant, or tax-delinquent properties for future development. Land banking can create opportuni- ties for new housing by consolidating fragmented parcels to accommodate multifamily projects. Land banking can be used specifically to reserve land for affordable housing.

Source: Habitat for Humanity, “Why Land Banks Matter” , August 2023, https://www.habitat.org/costofhome/why-they-matter-land-banks Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN168 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 14 OF 26 Displacement Risk
Displacement risk increases when a household is paying more for housing than their income can support. Stockton is in San Joaquin County, which is a region that has experienced significant popula- tion growth and development resulting in rising housing costs and increasing the risk of displacement in some neighborhoods.

T o study the displacement vulnerability of Stockton households, the City of Stockton prepared a Residential Displacement As- sessment Report in 2023. This Assessment Report utilized two mapping tools: the San Joaquin County’s Gentrification and Displacement Mapping T ool and The Affirmatively Furthering Fair Housing Data Viewer, to identify the types of displacement risk that residents are facing. According to the mapping tools, the Cabral/ East Cabral Station Area Study Area is under the “Varying Levels of Displacement” designation.

This plan includes actions to help further the development of housing and improve access to services and amenities in the Cabral/East Cabral Station Study Area, which could inadvertently increase the potential for displacement. T o help mitigate this risk, the Neighborhood Action Plan includes strategies that support the development of affordable housing in the Study Area. The Residen- tial Displacement Assessment Report also identifies the following strategies to help combat displacement: proactive code enforce- ment, diversifying the housing stock, and expanding legal-aid and tenant-landlord education programming.
▶ Development Process. Timing can be a major constraint to new housing development. Market fluctuations and time from applica- tion to approval can hinder new development. This Plan supports expanding the active period for permits and entitlements from 12 months to 24 months to allow for flexibility by housing developers. ▶ City Fees. Fees were also identified as a barrier to new housing development. This Plan explores efforts to waive or reduce certain City fees for new housing development in the Study Area. It also supports the preparation of marketing materials that highlight common improvements and costs associated with development to provide transparency.
▶ Funding. T o support housing creation, there is an opportunity to assist developers with the cost of developing housing. The City could evaluate the feasibility and benefits of adopting a financing district for the Study Area to support the development of housing, as well as neighborhood revitalization.

In addition to housing, stakeholders noted there are other issues in the Study Area, such as public safety concerns, limited access to healthy foods, high asthma rates, and poor pedestrian infrastructure.

The primary objective of the Plan is to further the development of housing in the Study Area; therefore, the objectives and actions included in this Plan are housing-focused. Actions are also included to address key issues to help enhance the quality of life in the Study Area; however, there are issues unrelated to housing production that are not addressed in this Plan.

See Appendix 9, Neighborhood Action Plans Outreach Summary, for a complete summary of the feedback received.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 169 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 15 OF 26 Vacant Sites
During the Plan development process, the project team identified several sites within the Study Area that are vacant or have a sur- face parking lot that is not well-utilized. These sites may serve as an opportunity for new housing development. The Vacant Sites in Cabral/East Cabral Station map shows the location of these sites, and the table that follows identifies the most feasible housing types that could be built on each site based on the lot size and characteristics of the surrounding neighborhood. The most fea- sible housing types are listed by letter (A-I) in the table on Page 18 of the Neighborhood Action Plan to correspond with the housing type descriptions that follow. While the City does encourage new housing development on vacant properties, where appropriate, the City itself does not build housing unless the property is owned by the City. Redevelopment of any of the sites that are privately owned would require agreement with the property owner, ap- proval of a development proposal, and adequate infrastructure.

North Wilson WayNorth Wilson Way
Sutter StreetSutter Street
California StreetCalifornia Street
0 Scale (Feet)
1,000
East Washington StreetEast Washington Street
East Weber AveEast Weber Ave
East Miner StreetEast Miner Street
East Oak StreetEast Oak Street
Park StreetPark Street
East Lafayette StreetEast Lafayette Street
Robert J. Robert J.

Cabral Station Cabral Station
4 Vacant parcels and
underutilized parking areas
Study Area
North Airport WayNorth Airport Way
9 1
8 10
5 40
45 41
36 2827
22 21
16 11
12 14
20 15
1918
24 25
26 32 33
43 47 48
17 23
30 35
2 764
13 29 31 34
39 42 44
3 37
38 46
Vacant Sites In Cabral/East Cabral Station
Source: Google Earth Professional, 3/2/2023. PlaceWorks, 2023.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN170 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 16 OF 26 Site
Number Street Address
Most
Feasible
Housing
Types
1 622 North Stanislaus Street G, I
2 815 & 801 East Oak Street G, I
3 831 & 821 East Oak Street G, H, I
4 845 East Oak Street G, H, I
5 Assessor’s Parcel Number: 15108036 C, F
6 647 North Union Street B, C, F ,
7 640 North Union Street &
1121 East Oak Street C, F ,
8 1221 East Oak Street I
9 604 East Oak Street G, I
10 545 North Wilson Way &
1444 East Oak Street

C, F , H
11 442 North Sutter Street G, I
12 519 East Lindsay G, I
13 537 & 535 East Lindsay Street G, H, I
14 413 North Aurora Street G, I
15 1025 East Lindsay Street &
425 North Union Street
B, F
16 437 East Miner Avenue B, D
17 622 East Lindsay Street B, D, E, F , G
18 319 North Sacramento Street B
19 1004 East Lindsay Street &
Assessor’s Parcel Number: 15112054
B, D
20 336 North Airport Way G, I
21 242 North Sutter Street A, B, D
22 206 North Sutter Street A, B
23 544 & 532 East Miner Avenue A, B, D, G
High-Rise
Residential
A
Live-Work
G
Mid-Rise
Apartments
B
Multiplexes
H
Low-Rise
Apartments
C
Triplexes and
Duplexes
I
Mixed-Use
D
Cottage
Courts
E
Townhomes
F
Site
Number Street Address
Most
Feasible
Housing
Types
24 830 East Miner Avenue G, I
25 1206, 1208, 1220 East Miner Avenue &
220 North Pilgrim Street F , G, H
26 225 North Sierra Nevada Street G, I
27 621 East Weber Avenue B, C, D, F , G
28 145 North Grant Street B, C, D, F , G
29 820 Channel Street I
30 836 Channel Street G, H
31 128 North Aurora Street G, I
32 1230 Channel Street G, I
33 1328 Channel Street I
34 139 North Sierra Nevada Street I
35 1339 & 1327 East Weber Avenue I
36 721 East Main Street D, G, H
37 11 North Grant Street I
38 1102 East Weber Avenue B, C, D
39 1405 East Main Street C, D, F
40 Assessor’s Parcel Number: 14920017 G, I
41 20 & 26 South Union Street G, I
42 20 South Pilgrim Street G, I
43 1348 East Main Street I
44 34 South Sierra Nevada Street G, I
45 1120 East Market Street I
46 1134 East Market Street
121 South Pilgrim Street

E, F , H
47 1346 East Market Street I
48 101 South Wilson Way I
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 171 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 17 OF 26 Vacant site south of Channel Street.

Housing Types
The following residential development types were identified based on typical housing products being built across California and were screened for appropriateness to the Study Area based on existing built form, relevant barriers to development, and characteristics of existing properties within the Study Area. Site characteristics of properties in the Study Area, including typical lot dimensions and sizes, guided the description for each housing type to ensure that appropriate housing types can be developable within the neighbor- hood context.

Mixed-use, mid-rise apartments, live-work units, townhomes, triplexes, and duplexes were identified as the most feasible housing types for many of the vacant sites within the Study Area based on lot size and neighborhood characteristics. High-rise apartments, low-rise apartments, multiplexes, and cottage courts are also suit- able for some of the vacant sites.

The following content shown in yellow describes the housing types and shows example drawings. T o learn more about each housing type, please see the citywide Housing Action Plan. The drawings do not show an actual development project; they are intended to provide a visual representation of what the housing type could look like.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN172 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 18 OF 26 A. High-Rise Residential
These are high-density apartments that are typically developed within existing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs.

They are constructed on larger lots with an active frontage provided along a public street and can be seven stories or taller. Outdoor space is provided in the form of common courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

B. Mid-Rise Apartments
These are medium-density apartments that are typically developed within or near exist- ing medium- to high-density neighborhoods, in downtown areas, and near employment or transit hubs. They are constructed on large sized lots with common entries oriented towards the public streets and can be four to six stories tall. Outdoor space is provided in the form of courtyards at ground level, above parking podiums, on rooftops, or in private open space areas such as balconies.

C. Low-Rise Apartments
These are low-density apartments that are typically developed in low- to medium-density neighborhoods, in downtown areas, and near employment and transportation nodes.

They can be constructed on a variety of lot sizes with common entries oriented towards a public street and can be two to three stories tall. Outdoor space is provided in the form of courtyards at ground level, on rooftops, or in private open space areas such as balconies.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 173 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 19 OF 26 D. Mixed-Use
These developments contain residential uses in combination with retail and/or office spaces and can be arranged either vertically or horizontally. They are appropriate within neighborhoods of all densities, in downtown areas, and near transit stations. They can be constructed on a variety of lot sizes and can be three stories or taller. Outdoor space is provided in the form of courtyards at ground level or on parking podiums, or in private open space areas such as balconies.

E. Cottage Courts
These are homes that consist of small, detached residential units surrounding a common courtyard that serves as outdoor space. Entrances to each unit are accessed off of this central court. They are appropriate within existing low- to medium-density neighborhoods and in areas transitioning out of nonresidential uses. They can be constructed on a variety of lot sizes but are typically recommended for medium to larger sized lots. Cottage courts can be one to three stories tall.

F. Townhomes
These are homes that are attached in a horizontal configuration, each with a standalone entrance. They are appropriate within neighborhoods of all densities and fit a variety of lot sizes. T ownhomes can be two to three stories tall. Entrances are oriented towards a public street and outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground-level courtyards, or by using interconnected landscape areas in multi- building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN174 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 20 OF 26 G. Live-Work
These are homes that provide a flexible ground-floor space that could be used for home- based employment or additional living space. They are appropriate within neighborhoods of all densities, within neighborhood commercial corridors, or in downtown areas. Live-work units fit a variety of lot sizes and can be two to three stories tall. Entrances are oriented towards a public street or can be oriented towards a common interior courtyard. Outdoor space can be provided in front or rear yards, upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

H. Multiplexes
These are flexible four-unit or larger multifamily developments in which units can be ar- ranged in a single structure or in multiple structures on a site. They are appropriate within existing low- to medium-density residential neighborhood or in downtown areas. They can be constructed on medium to large size lots and can be two to four stories tall. Outdoor space can be provided in upper-floor terraces and balconies, ground-level courtyards, or by using interconnected landscape areas in multi-building projects.

I. Triplexes and Duplexes
These are flexible development types that feature two to three attached units with sepa- rate entrances that can be arranged vertically or horizontally. They are appropriate within existing low- to medium-density residential neighborhoods or on small lots with proximity to services. They can be constructed on small to medium size lots and can be two to three stories tall. Outdoor space can be provided in upper-floor terraces and balconies, ground- level courtyards, or by using interconnected landscape areas in multi-building projects.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 175 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 21 OF 26

4. Objective and
Actions
The Cabral/East Cabral Station Study Area is an ideal place for new housing that has access to transit and complements the existing neighborhood, but the area needs infrastructure upgrades that could hinder new development due to cost. Environmental contamination, lack of funding, and abandoned buildings pose ad- ditional challenges.

The Cabral/East Cabral Station Area Neighborhood Action Plan provides feasible actions to help address these challenges and incentivize housing preservation and development based on four overarching objectives:

1. Further the Development of Housing

2. Provide More Housing Choices

3. Improve Access to Transit, Services, and Amenities

4. Support Neighborhood Revitalization
The actions will serve as a guide for City staff and decision makers in the effort to improve housing opportunities in the Study Area.

For a list of potential financial and grant sources, please see the citywide Housing Action Plan.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN176 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 22 OF 26

1. Further the Development of Housing
Action 1.1 Extend Permit and Entitlements “Active”
Period. Expand the “active” period for permits
and entitlements in the Cabral/East Cabral Station
Area from 12 months to 24 months.

Action 1.2 Economic Development Programs. Optimize
existing economic developments programs the
City already has in place to better align with the
Neighborhood Action Plan.

Action 1.3 Public Facilities Fees. Support the Public Facili- ties Fees Nexus Study which will determine if the
fees collected by the City are the right amount for
the City of Stockton. The Nexus Study is currently
in the process as of September 2023.

Action 1.4 Vacant and Underutilized Sites Inventory.

Create and regularly update a searchable/digital
inventory of vacant and/or underutilized sites in
the Study Area. Use the inventory list to conduct
targeted property owner outreach, as described in
Action 1.5.

Action 1.5 Property Owner Outreach. Conduct targeted
outreach to property owners in the Study Area to
learn why they may be leaving a site undeveloped
or underutilized. Describe any applicable incen-
tives or programs the City offers that may assist
the property owner with developing the site.

Action 1.6 Land Banking. Pursue opportunities for acquisi- tion and disposition of land that can be used for
residential and/or mixed-use projects.

Action 1.7 City Staff Support. Explore the feasibility of expanding capacity by adding City staff or seeking
staff services through consultants to implement
the actions included in the Neighborhood Action
Plan, if additional staff support is needed.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 177 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 23 OF 26

2. Provide More Housing Choices
Action 2.1 Housing for Large Households. Encourage
projects that provide large units (three bedrooms
or more) to incentivize the creation of housing for
large households.

Action 2.2 Multi-Generational Housing. Explore changes
to City codes and regulations to support multi-
generational housing.

Action 2.3 Homeownership Education. Collaborate with
local community organizations to distribute ma-
terials and conduct educational efforts centered
on homeownership education in the Study Area.

Action 2.4 Down-payment Assistance. Work with San
Joaquin County to conduct targeted outreach
on the San Joaquin County Gap Loan Program
to renters in the Study Area to provide down-
payment assistance to interested and eligible
lower-income, first-time homebuyers.

Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN178 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 24 OF 26 Action 3.1 Transit-Oriented Development Feasibility
Study. Analyze opportunities for transit-oriented
development in the Cabral/East Cabral Station
Study Area, including parking capacity, regula-
tory incentives, financial feasibility, funding op-
portunities, and conceptual design options.

Action 3.2 Transit-Oriented Development Funding. Part-
ner with transit agencies to pursue funding for
transit-oriented development.

Action 3.3 Downtown Stockton Multimodal Transporta-
tion Network and Land Use Compatibility
Action Plan. Identify opportunities to support
the Downtown Stockton Multimodal Transporta-
tion Network and Land Use Compatibility Action
Plan.

Action 3.4 Train Station Parking Structure. Work with the San Joaquin Regional Rail Commission to sup-
port development of a parking structure near the
Robert J. Cabral train station to reduce the need
for on-site parking in new housing developments
near the train station, lower development costs,
and serve train commuters.

Action 3.5 Stockton Diamond Project. Support San
Joaquin Regional Rail Commission’s efforts to
secure additional state, federal, and local funding
to complete improvements contributing toward
the enhancement of the surrounding area or that
provide other community benefits.

Action 3.6 Incubator Space. Collaborate with the San
Joaquin Regional Rail Commission and local
institutions to create an incubator/permanent
retail space at the Robert J. Cabral train station for
entrepreneurs to provide services and micro-retail
opportunities for rail commuters and neighbor-
hood residents.

Action 3.7 Stocked Full of Produce Program. Conduct tar- geted outreach to store owners in the Cabral/East
Cabral Station Area Study Area to ensure they are
aware of the program’s benefits. Explore partner-
ships with community-based organizations to
support healthy produce being sold in local retail
establishments.

3. Improve Access to Transit, Services, and Amenities
Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 179 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 25 OF 26 Action 3.12 Conquering the Digital Divide. Pursue funding and partnerships to expand the City’s Fiber Optic
Infrastructure to help provide reliable digital
access to residents in the Study Area.

Action 3.13 Miner Avenue Streetscape – Phase II. Pursue funding for a “Phase II” of the Miner Avenue Com-
plete Streets project, extending eastward from the
Union Pacific Railroad tracks to Wilson Way.

Action 3.14 East Channel Street Streetscape Connectivity Project. Identify funding and partnership op-
portunities to support efforts to convert Channel
Street into a premiere pedestrian corridor.

Action 3.15 Main Street Complete Streets Project. Identify funding and partnership opportunities to sup-
port Public Works’ Main Street Complete Streets
project.

Action 3.8 Healthcare Accessibility and Employment. Col- laborate with healthcare organizations to expand
access to health services within or near the
Cabral/East Cabral Station Study Area and explore
housing opportunities for resident doctors and
other healthcare professionals.

Action 3.9 Downtown Wayfinding. Develop a wayfinding
plan for Downtown Stockton to connect residents,
employees, and visitors with the Robert J. Cabral
train station and the Downtown Transit Center.

Action 3.10 Alternative Modes of Transportation. Col-
laborate with local organizations to establish
a community working group to meet regularly
with residents to identify and prioritize needed
infrastructure and programming that supports
alternative modes of transportation, such as walk-
ing, biking, and taking the bus.

Action 3.11 Bicycle and Car Share. Coordinate with
stakeholders to place bike and car-share in key
locations to improve active transportation options
and support first and final-mile connectivity for
neighborhood residents and commuters.

3. Improve Access to Transit, Services, and Amenities (Continued) Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLAN180 CABRAL STATION AREA NEIGHBORHOOD ACTION PLAN PAGE 26 OF 26

4. Support Neighborhood Revitalization
Action 4.1 Environmental Site Assessments. Conduct
Phase I and/or Phase II environmental site as-
sessments for vacant and underutilized sites in
the Cabral/East Cabral Station Area Study Area.

Action 4.2 Financing Districts. Evaluate the feasibility and benefits of adopting a financing district for
the Cabral/East Cabral Station Area Study Area
to support the development of housing and
neighborhood revitalization.

Action 4.3 Residential Upgrades. Continue to offer
solar installation, energy and water-efficiency
upgrades, drought tolerant landscaping, and
tree planting services to residents within the
Study Area. Collaborate with Stockton Rising to
inform residents of the program’s benefits.

Action 4.4 Owner-Occupied Rehabilitation Program.

Conduct targeted outreach in the Study Area
for the Single-Family Rehabilitation Program,
which provides qualified homeowners with
financial assistance to complete substantial
interior and exterior repairs.

Action 4.5 Façade Improvement Forgivable Loan Program.

Study the feasibility of expanding the City’s façade
improvement forgivable loan program, which cur-
rently helps fund exterior renovations of commercial
buildings to also fund façade renovations of residen-
tial buildings.

Action 4.6 Sidewalk Repair and Gaps. Pursue funding to
assist property owners with repair and installation of
sidewalks in portions of the Study Area identified in
Appendix 8 as “no sidewalk” or “needs repair. ”
Action 4.7 Community Development “Review List” Materi-
als. Prepare marketing materials that highlight
common improvements and costs associated with
development such as repair of sidewalks, paved
parking areas, etc.

Action 4.8 Neighborhood Identity. Work with community
stakeholders to establish a process for identifying
“East Cabral” identity, building upon commonly used
neighborhood names, history, arts, murals, and other
defining features.

Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024 A-1
Appendices List
Appendix 1- Demographic Trends and Market Conditions Update- July 2022 Appendix 2- Residential Displacement Assessment- April 2023 Appendix 3- Adopted Local Homelessness Action Plan (LHAC) Appendix 4- Housing Type (Missing Middle) Analysis
Appendix 5- Priority Sites Analysis
Appendix 6- Tables and Maps
Appendix 7- Housing Action Plan (HAP) Action Table
Appendix 8- Neighborhood Action Plans Existing Conditions Report Appendix 9- Neighborhood Action Plans Outreach Summary
Appendix 10- Neighborhood Action Plan (NAP) Action Matrix The Housing Action Plan Appendices can be downloaded on the City of Stockton's "Shape Stockton" Housing Action Plan Website at:
https://www.stocktonca.gov/business/planning___engineering/ housing_action_plan.php
Exhibit 1 - Housing and Neighborhood Action Plans
CITY OF STOCKTON | HOUSING ACTION PLANA-2
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Exhibit 1 - Housing and Neighborhood Action Plans
DRAFT | SEPTEMBER 2024
Exhibit 1 - Housing and Neighborhood Action Plans
101 Parkshore Drive, Suite 200
Folsom, California 95630
t 916.245.7500
www.PlaceWorks.com
ORANGE COUNTY • BAY AREA • SACRAMENTO • CENTRAL COAST • LOS ANGELES • INLAND EMPIRE Exhibit 1 - Housing and Neighborhood Action Plans