Staff Report
City Council
Item No. 4.A
Meeting Date: October 14, 2026
From: Mark Muenzer, Director of Community and Economic Development Title: First Reading of Ordinance to Update the Cathedral City Development Code
RECOMMENDATION:
To provide first reading, by title only, of an ordinance of the City Council of the City of Cathedral City finding the project exempt from the California Environmental Quality Act (CEQA), repealing and replacing Title 9 (Planning and Zoning) of the Cathedral City Municipal Code to adopt a comprehensive update to the City's zoning regulations establishing the new "Cathedral City Development Code," and making related findings.
BACKGROUND:
The City initiated the Development Code Update, at the direction of City Council, to implement the City’s Strategic Plan, and to establish a modernized and clear regulatory framework for future land development. The Development Code serves as one of the primary tools for implementing the 2040 General Plan (adopted July 2021) by establishing allowable land uses, development standards, review procedures, and other regulations applicable to development throughout the City.
The Development Code Update is intended to accomplish the following City objectives, including to ‘develop a comprehensive strategy to amend the zoning code and update the design guidelines:
1. Development of objective design standards in response to new state housing laws
2. Overhaul of the commercial zoning code
3. Substantial update of design guidelines
4. Streamlining of development review processes
5. Implementation of the General Plan and Housing Element goals, policies, and programs
6. Continued implementation of new state legislation.
The Development Code reorganizes and updates the City’s existing zoning and development regulations into eight divisions (chapters) addressing introductory provisions, zoning districts, general development standards, standards for specific uses, subdivisions, application processing, Development Code administration, and definitions.
COMMUNITY ENGAGEMENT
The Development Code Update included multiple opportunities for community members, decision-makers, and other stakeholders to participate in the process and provide input on draft code materials. Engagement included multiple City Council and Planning Commission study sessions; a zoning code seminar for decision-makers and community members; two community workshops; three community walking tours; participation at numerous community festivals and events, including Tastes and Sounds; an online interactive survey and mapping tool; and the ZoneCathedralCity.com project website.
Community engagement served an important role in development code preparation given that zoning regulations ultimately affect how private property can be used and developed, and how new development interacts with existing neighborhoods, businesses, and the broader community. The engagement process provided an opportunity to hear from residents, property owners, businesses, developers, and other stakeholders about how existing regulations function in practice, where concerns or conflicts may exist, and how proposed regulations may affect the community.
Not every issue raised through the engagement process was addressed through the Development Code. Some comments relate to matters outside the City’s land use authority, while others involve programs, services, enforcement, or broader policy issues more appropriately addressed through other City efforts. Comments with a land use or development nexus were considered for how they could better inform the regulations, identify unintended consequences, or improve how the Code functions for both the community and potential land developers.
Public input resulted in changes throughout the Development Code Update process. For example, concerns were raised through public comment regarding data centers, which prompted additional consideration of how this emerging land use should be addressed within the City’s zoning framework. In response, the use was specifically defined in the new code and evaluated by reviewing numerous other cities land use definitions of data centers, and the final code identifies data centers as a prohibited use citywide. This illustrates how public comment can identify an issue that warrants additional analysis and ultimately result in a substantive change to the proposed regulations.
Through the two-meeting Planning Commission review process, discussed later in this staff report, other changes were also made as a result of public input. Those include revisions to the types of administrative decisions that are able to be reviewed by the Planning Commission and City Council, the posting of staff-level decisions to the City website as they are issued, and the location of drive-through facilities.
All comments received throughout the 2+ year Development Code Update process were considered together with input from the public, City Council, Planning Commission, community stakeholders, developers, City staff and the project consultants. Additionally considered were applicable State and Federal regulations and the overall objectives of the General Plan and Development Code Update. All public, Planning Commission, Technical Advisory Group and staff comments were also documented in publicly accessible comment matrixes on the project website. The resulting Final Development Code reflects that iterative multi-year process.
DISCUSSION:
DEVELOPMENT CODE OVERVIEW
The proposed Development Code is organized into eight divisions, each addressing a separate component of the City’s land use and development regulations. The following provides an overview of each division.
Division 1 – Introductory Provisions
Division 1 establishes the overall purpose and applicability of the Development Code and its relationship to the General Plan, Specific Plans, and Zoning Map. It also establishes provisions governing interpretation of the Code and identifies the City’s zoning districts and zoning map.
Changes made to this Division throughout the review process included: removal of subjective language from the Development Code purpose and intent provisions; clarification of the Director’s review authority; changing assignment of Similar Use Determinations from Planning staff to the Director; and revisions to the Zoning District Classifications table to provide consistency between zoning districts and corresponding General Plan land use designations.
Division 2 – Zoning District Provisions
Division 2 establishes the City’s residential, mixed-use, commercial, industry and office, special use/purpose and overlay zoning districts. For each district, the Division identifies allowable uses, applicable permit requirements, and zone-specific development standards.
Changes made to this Division throughout the review process included: the consolidation of the R20-L and R20-H zoning districts; merged two commercial zones (PLC, PCC) into a single General Commercial zone; merging the current mixed-use districts (MXC and DRN) into a Mixed-Use Downtown zone; merging office/business park type uses (NBP2, BP, PPO) into a single Professional Office zone; removal of parcel-depth requirements; incorporation of the Mixed-Use Neighborhood (MU-N), Mixed-Use Urban (MU-U), and Light Industrial (I1) zoning districts and associated standards; prohibition of short-term vacation rentals outside the Resort Residential District (consistent with the Ordinance); incorporation of firehardening standards, and noting the MU-U, MU-N and I-1 districts are the resulting zones created by the North City and North City Extended Specific Plan Areas, which lacked development standards.
The final Division also prohibits data centers citywide, increases the maximum structure height for qualifying mixed-use and multi-unit development in the MU-DT District to 70 feet, and reserves a section for a future Mixed-Use Incentive Overlay zone.
The merging of zoning districts in this Division was used to simplify zoning interpretation and modernize the City’s land use regulations. The existing zoning code, with multiple zoning districts with similar purposes, development standards, and allowable uses can create unnecessary distinctions and make the Code more difficult to administer and understand.
Consolidating districts where those regulations no longer serve a clear planning purpose, creates a more predictable regulatory framework for property owners, applicants, staff, and decision-makers.
The updated districts and land use regulations also recognize that land uses and business models continue to evolve. Uses that did not exist or were not contemplated when the existing zoning code was written, may not fit within an established land use classification and also may have no clear review process. Modernizing and consolidating the zoning framework allows the Code to accommodate contemporary and emerging uses through appropriate use classifications and review processes while maintaining the City’s ability to address potential land use impacts.
Division 3 – General Development Standards
Division 3 contains development standards that apply broadly to development and land uses throughout the City. Topics include site planning, landscaping, open space, shade, parking and loading, fences and walls, trash and recycling enclosures, screening, accessory structures, outdoor lighting, performance standards, signs, and objective design and development standards for multi-unit residential and mixed-use projects.
Changes made to this Division throughout the review process included: incorporating new graphics, illustrations and additional cross references to applicable Building and Fire Code requirements; rooftop decks and residential open-space requirements; enhanced shade provisions and strengthened landscaping standards; parking requirements; driveway and parking standards; fencing materials; trash enclosures; accessory structures; outdoor lighting; flags and flagpoles.
Division 3 also introduces objective design standards for multi-unit and mixed-use developments and creates a new process for ministerial approvals. Ministerial approval is a process in which if the proposal meets the minimum design standard criteria, it can be approved without any City discretionary review. Ministerial approvals have become increasingly important in California, particularly for housing development, as State law has placed greater emphasis on objective standards and streamlined review.
Ministerial review and approval provides certainty for applicants and the community by establishing development regulations in advance, rather than determining whether a multiunit residential or mixed-use project is acceptable through subjective review on a project-byproject basis. This approach can also reduce staff processing time and cost, while also allowing the City to maintain expectations for building form, site design, compatibility, and other physical development characteristics through clearly defined and measurable standards.
The new landscape and shade provisions are intended to provide clearer, measurable standards for both applicants and staff when designing and reviewing development projects.
The updated provisions establish clear regulations rather than relying on general or subjective standards. They also recognize that shade can be provided in different manners, including through appropriately located trees and other plantings as well as structural shade features.
Division 4 – Standards for Specific Uses
Division 4 establishes standards applicable to specific land uses rather than citywide development standards. These provisions address uses including temporary uses, housing density bonuses, accessory uses, home occupations, neighborhood retail, community gardens, drive-through facilities, bed and breakfast inns, live-work units, mixed-use development, recreational vehicle parks, neighborhood markets, firearms sales, and vehicle fueling stations.
Changes made to this Division throughout the review process included: requirements for drive-in and drive-through facilities; food-service requirements for bed and breakfast inns; standards for live-work units and mixed-use development consistent with the new mixed-use zoning districts; revisions to home occupation regulations; revisions to standards for recreational vehicle parks and campgrounds, neighborhood markets, and firearms sales; and expanded provisions addressing conventional and alternative fuels at vehicle fueling stations.
Revisions were made to several land uses, and standards for additional uses were added, to strengthen measures addressing impacts associated with particular land uses and to provide clearer standards for uses that were not adequately addressed by the existing zoning code.
Because certain uses may create impacts related to location, compatibility, circulation, noise, operations, or other site-specific conditions, Division 4 provides standards tailored to those land uses beyond the general development standards applicable citywide. The updates also recognize changes in development patterns, business models, and technology by establishing clearer regulatory pathways for uses that have evolved since the existing zoning code was adopted. This allows the City to identify appropriate locations and operating standards for these uses in advance and provides greater predictability for applicants, staff, and surrounding properties.
Division 5 – Subdivisions
Division 5 consolidates the City’s subdivision regulations and establishes procedures for land divisions consistent with the State Subdivision Map Act. The Division addresses tentative parcel and tract maps, vesting tentative maps, final and parcel maps, certificates of compliance, reversions to acreage, parcel mergers, lot line adjustments, airspace and common-interest subdivisions, condominium conversions, urban lot splits, subdivision design, dedications, improvements, and enforcement.
Changes made to this Division throughout the review process included: assigning the Planning Commission decision-making authority for extensions of approved tentative parcel and tract maps, updating parcel-merger provisions to reference applicable State law, clarifying the City Engineer’s review and discretionary authority, and relocating subdivision definitions to Division 8.
Division 5 is a significant step for the City because it will be the first time the City’s subdivision regulations are codified directly within the Cathedral City Municipal Code. Since incorporation in 1981, the City has relied on Riverside County subdivision regulations, adopted by reference. This update brings those regulations into a single, City-specific section of the Municipal Code and aligns them with current City procedures and applicable State law. Subdivision applications will continue to be reviewed by the Engineering Division, with the Planning Division facilitating the entitlement process and coordinating review through the appropriate decision-making body.
The updated provisions also more clearly define the roles and responsibilities of staff and decision-makers, including the process and approval authority for extensions of tentative parcel and tract maps.
Division 6 – Application Processing Procedures
Division 6 establishes procedures for processing discretionary permits and other approvals required under the Development Code. It addresses general application procedures, Preliminary Review, Design Review, Minor and Conditional Use Permits, Temporary Use Permits, Home Occupation Permits, Minor Exceptions, Variances, Reasonable Accommodations, as well as permit implementation, modification and revocation. This Division also continues the City’s existing community engagement provisions contained in the existing zoning code and establishes Preliminary Review as a standalone chapter, clarifies public hearing notice requirements applicable to Temporary Use Permits, and modifies the purpose, intent, and required findings applicable to Planned Unit Developments.
Division 6 also establishes clear thresholds for the level of review and decision-making authority assigned to different types of permit types and applications. The updated procedures are intended to create a more appropriate division of responsibility among Planning staff, Director, Planning Commission, and the City Council based on the impacts of the decision being made. More routine applications can be processed at an administrative (staff) level, while applications involving greater discretion, potential land use impacts, or broader policy considerations are elevated to the appropriate appointed or elected body (Planning Commission and/or City Council). Establishing these thresholds more clearly in the Code provides greater predictability for applicants and the public and creates a more consistent framework for administering the development review process.
Division 7 – Development Code Administration
Division 7 establishes responsibility for administration of the Development Code and the review authority of City decision-makers. It also establishes procedures governing Development Code and Zoning Map amendments, Specific Plans, Development Agreements, nonconformities, appeals, and calls for review.
Division 7 also provides the administrative framework for implementing and maintaining the Development Code over time. It identifies the roles and responsibilities of the officials and decision-making bodies charged with administering the Code and establishes the procedures by which the Development Code and Zoning Map may be amended as conditions, policies, and community needs change. The Division also addresses the mechanisms for reviewing administrative and discretionary decisions, including appeals and calls for review, and provides procedures for administering nonconforming uses and structures, Specific Plans, and Development Agreements.
Division 8 – Definitions
Division 8 consolidates defined terms used throughout the preceding seven divisions into a single location. Definitions are organized alphabetically, with tiered classifications where appropriate, and graphics and illustrations are provided where additional context is useful.
The Division also relocates subdivision definitions from Division 5 into the consolidated definitions section, adds graphics where appropriate, and adds or modifies land use definitions, sight distance triangles, feather banners, and vehicle fueling stations.
A primary goal of Division 8 was to ensure that terms and land uses referenced throughout the Development Code are clearly and consistently defined. Definitions were reviewed and updated to eliminate ambiguity, distinguish between similar or related uses, and provide a clear basis for determining how a particular use or activity is regulated under the Code.
Definitions were also reviewed for consistency with current State and Federal law and, where applicable, revised to reflect terminology established by statute or other regulatory requirements. This provides a more consistent and legally supportable framework for interpreting and administering the Development Code as new applications, uses, and regulatory issues arise.
Planning Commission – Code Revisions and Recommendations The Planning Commission reviewed the final public hearing draft Development Code at September 9, 2026 and September 30, 2026 special commission meetings. The September 9 meeting was for discussion purposes, to receive public comment and to identify for staff and consultants any additional questions or follow-up items for the September 30 meeting, where the commission would make a final recommendation to the City Council.
The Planning Commission had a number of items that they requested further information on and those items and staff responses are contained in the September 30 Planning Commission meeting packet linked below:
https://cathedralcity.primegov.com/Portal/Meeting?meetingTemplateId=4065 At the September 30 meeting, the Planning Commission passed a Resolution unanimously (4-0, 1 absent) recommending approval of the Development Code to the City Council. The Planning Commission made the following modifications to the Development Code Divisions, which are all reflected in the Development Code for City Council Review:
Division 1 (9.05.030A 1 & 2) – Applicability of the Development Code Added text in regard to a City Manager Waiver on City-owned property.
Final text included in Development Code:
1. Exemptions shall be limited to capital improvement projects where there is a clearly demonstrated public benefit to the waiver or in response to an emergency as defined in the City’s Municipal Code and; [Source: NEW]
2. Require City Council notification when a waiver is issued. [Source: NEW] Division 4 (9.115.20 D.2) – Drive-In and Drive-Through Sales Removed the following text: Location Requirements. All drive-in and drive-through facilities shall only be allowed along designated arterial roadways. [Source: NEW] Final text included in Development Code:
Text removed.
Division 4 (9.115.020 D.3 a) – Drive-In and Drive-Through Sales Revised the following text to include the entire MU-DT District and to require a primary use:
Mixed-Use, Downtown Commercial (MU-DT). This Section applies only to that portion of the MU-DT zoning district bounded as follows: up to 240 feet south of East Palm Canyon Drive between Van Fleet Street and Date Palm Drive. Drive-In and Drive-Through Sales are limited to Retail Sales, General; Bank and Financial Institutions and Eating and Drinking Establishments. [Source: 9.31.055, modified]
Final text included in Development Code:
a. Mixed-Use, Downtown Commercial (MU-DT). This Section applies only to MU-DT zoning district. Drive-in and drive-through sales uses require the establishment of a primary use. [Source: 9.31.055, modified]
Division 7 (9.295.030 and 9.295.040) – De Novo Review by City Council of Director Decision and De Novo Review by Planning Commission of Director Decision Added text to allow for City Council de novo review of a Director decision and to allow for Planning Commission de novo review of a Director decision.
Final text included in Development Code:
De Novo Review by City Council of Director Decision
The City Council can initiate a de novo review of any item subject to a hearing before the Planning Commission by requesting the item via the City Manager to be on the next City Council agenda. If a majority of the quorum present is in agreement to conduct a de novo review they may order a review of all or part of the application in the same manner as if an appeal has been filed. The item shall be presented at a City Council meeting after the order of review and the City Council shall conduct a de novo review and may add, modify, or delete any part of the project and/or conditions of approval. The City Council can initiate a de novo review of any Director decision and item subject to a hearing before the Planning Commission by requesting the item via the City Manager to be on the next City Council agenda. If a majority of the quorum present is in agreement to conduct a de novo review, they may order a review of all or part of the application in the same manner as if an appeal has been filed. The item shall be presented at a City Council meeting after the order of review and the City Council shall conduct a de novo review and may add, modify, or delete any part of the project and/or conditions of approval. [Source: NEW] De Novo Review by Planning Commission of Director Decision The Planning Commission can initiate a de novo review of any Director decision by requesting the item via the City Manager to be on the next Planning Commission agenda. If a majority of the quorum present is in agreement to conduct a de novo review, they may order a review of all or part of the application in the same manner as if an appeal has been filed. The item shall be presented at a Planning Commission meeting after the order of review and the Planning Commission shall conduct a de novo review and may add, modify, or delete any part of the project and/or conditions of approval. [Source: NEW] Division 7 (9.295.050 B/2.) – Application Filing, Processing and Review Revised text to increase appeal period from 10 to 12 business days and to add Director decisions must be posted on the City website and appeal period starts once the decision has been posted.
Final text included in Development Code:
Time Limits. Unless otherwise specified in State or federal law, all appeals shall be filed in writing within 12 business days of the date which the action was taken. In the event an appeal period ends on a Saturday, Sunday, or any other day the Community Development Department office is closed to the public, the appeal period shall end at the close of business on the next consecutive business day. [Source: NEW]
A decision of the Director shall be final from and after the date that the decision is made and posted on the City’s website, and the time to appeal such decision, if authorized pursuant to Section 9.295.020, shall commence on the date of the posting.
Planning Commission Recommendations
Division 1 – Similar Use Determination (9.10.40)
Recommend staff to report on similar use determinations annually to the Planning Commission for consideration to be included in the Development Code.
Division 2 – Residential Zoning Districts (9.20)
Recommend to evaluate during future reviews whether museums are appropriate in residential zoning districts.
Division 6 – Design Review (9.205)
Recommend that staff and Council determine a process to make a licensed architect available to Planning Commission as needed. Municipal Code Chapter 2.29 (Planning Commission) would need to be amended should there be a change in Planning Commission membership or if there were ad hoc or advisory members. Municipal Code Chapter 2.30 (Architectural Review Committee) will be deleted with a future code amendment.
Miscellaneous/Items for Future Review
• Recommend providing a webpage/dashboard to provide notification of ministerial review projects. Notifications could be provided in City newsletters and potentially attached to Planning Commission agendas. Staff to launch an administrative decision (Director) webpage and an interested parties email list by the end of November 2026 and review other cities posting of ministerial review decisions and report back on options to Planning Commission in 2027.
• Recommend reviewing options to lower or eliminate the fee related to filing an appeal on a project. Staff to conduct research on comparable community appeal fee process/structure and report back to the Planning Commission in 2027.
CEQA COMPLIANCE
An Addendum to the General Plan Environmental Impact Report (EIR) has been prepared to evaluate the environmental effects of the Development Code Update. The Addendum was prepared pursuant to Section 15164 of the State CEQA Guidelines and evaluates whether implementation of the updated Development Code would result in new or substantially more severe environmental effects than those previously analyzed in the General Plan EIR.
The Development Code is one of the primary tools used to implement the General Plan.
Accordingly, the environmental analysis considers the Development Code Update in relation to the development patterns, land uses, densities and intensities, and environmental effects previously evaluated through the General Plan and its EIR. The analysis also considers whether the changes proposed through the Development Code would trigger the need for additional environmental review under CEQA.
An Addendum is appropriate when changes to a previously analyzed project do not result in new significant environmental effects or a substantial increase in the severity of previously identified significant effects that would require preparation of additional environmental documentation. The Addendum therefore evaluates the proposed Development Code Update against the environmental analysis contained in the General Plan EIR to determine whether the updated regulations would result in effects beyond those previously considered.
Based on that analysis, the Addendum concludes that the Development Code Update is consistent with the development framework analyzed in the General Plan EIR and would not result in new or substantially more severe environmental impacts than those previously identified. Accordingly, the analysis concludes that preparation of a subsequent or supplemental EIR is not required and that the General Plan EIR, together with the Addendum, provides the appropriate environmental documentation for consideration of the Development Code Update.
FISCAL IMPACT:
There is no fiscal impact with this action.
FIVE-YEAR STRATEGIC PLAN:
F-1: Develop comprehensive strategy to amend zoning code and update design guidelines, including an identification of what work City staff can accomplish and what work optimally should be contracted out, including: 1) development of objective design standards in response to new state housing laws; 2) overhaul of commercial zoning code; 3) substantial update of design guidelines; 4) streamlining of development review processes; 5) implementation of Cathedral City General Plan and Housing Element goals, policies, and programs; and 6) continued implementation of new state legislation.
ATTACHMENTS:
1. An Ordinance of the City Council of the City of Cathedral City, repealing and replacing Title 9 (Planning and Zoning) of the Cathedral City Municipal Code, adopting the Cathedral City Development Code as the City’s comprehensive zoning and development regulations
2. CEQA Addendum to General Plan EIR
3. Development Code Title Page and Table of Contents
4. Div 1 – Introductory Provisions
5. Div 2 – Zoning Districts
6. Div 3 – General Development Standards
7. Div 4 – Standards for Specific Land Uses
8. Div 5 – Subdivision Regulations
9. Div 6 – Application Processing Procedures
10.Div 7 – Development Code Administration
11.Div 8 – Definitions
12.PC Resolution- Development Code Update