CITY OF PACIFICA
COUNCIL AGENDA SUMMARY REPORT
8/11/2025
1 SUBJECT:
General Plan Amendments (GPA-108-25), Zoning Ordinance (TA-128-25), and Associated Land Use (GPA-108-25) and Zoning Map Amendments (RZ-216-25) Implementing the Rezoning Program (File No. 2025-007) required under the 2023-2031 Housing Element.
Recommended California Environmental Quality Act (CEQA) Action: Certify a Final Environmental Impact Report, Adopt Findings of Fact and Statement of Overriding Considerations, and Mitigation, Monitoring, and Reporting Program.
RECOMMENDED ACTION:
1. Adopt a Resolution Certifying a Final EIR and Adopting Findings of Fact and Statement of Overriding Considerations, and Mitigation, Monitoring, and Reporting Program;
2. Adopt a Resolution approving amendments to the General Plan text and land use map; and
3. Waive the first reading and introduce an ordinance approving the amendments to the zoning code, and zoning map
STAFF CONTACT:
Samantha Updegrave, LEED AP, Community Development Director (650) 738-7443
[email protected]
Brianne Harkousha, AICP, Deputy Director
(650) 738-7443
[email protected]
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August 11, 2025
BACKGROUND:
The City is required by state law to adopt zoning as required by its 2023–2031 Housing Element to facilitate the development of housing for all income levels. The Housing Element is currently uncertified and the City must complete the rezoning of identified sites before the California Department of Housing and Community Development (HCD) can certify the Housing Element.
The proposed Housing Element Rezoning Program includes General Plan amendments, Zoning Code amendments, and map changes to implement Housing Element policies and designate appropriate sites for housing. Adoption of the rezoning program is necessary for the City to formally submit the full rezoning package to HCD and initiate the certification review process.
The Planning Commission considered the proposed program over three public hearings, provided detailed direction, and recommended adoption with several refinements. The proposed rezoning program would establish appropriate zoning and objective development standards for 30 sites identified in the Housing Element, excluding Site 23-Sanchez Art Center, as necessary to accommodate the City’s Regional Housing Needs Allocation (RHNA).
1. Project Description
The proposed project - referred to as the “Rezoning Program”- consists of a package of amendments to the City of Pacifica’s General Plan, Zoning Ordinance, and associated components to bring the City into compliance with state housing laws. Specifically, the Rezoning Program includes:
a. General Plan Text Amendments
b. Zoning Code Text Amendments
c. General Plan Land Use Map Amendments
d. Zoning Map Amendments
The amendments are analyzed in a comprehensive Environmental Impact Report (EIR) and are necessary pursuant to Housing Element Implementing Action 1 (HE-I-1), General Plan and Zoning Amendments to Achieve RHNA1, enabling the City‘s 2023-2031 Housing Element to obtain final certification from HCD.
State Law Requirements
Every city and county must adopt a Housing Element that identifies how it will meet existing and projected housing needs. Each jurisdiction must accommodate its assigned Regional Housing Needs Allocation (RHNA) and update its Housing Element every eight years. Failure to adopt a compliant Housing Element can result in significant consequences such as limitations on local land use authority.
Pacifica’s 6th cycle RHNA (2023-2031) assigned the City a total of 1,892 housing units, including 848 lower-income units. To meet this obligation, the City must demonstrate that it has adequate land, zoning, and policies to facilitate this level of housing production. The following section provides an overview of how the City of Pacifica has planned for and is implementing its Housing Element and Rezoning Program to fulfill these state-mandated obligations.
Pacifica’s Housing Element & Rezoning Program Process
The City of Pacifica undertook the preparation of its 2023-2031 Housing Element between 2022 and 2025.
1 Regional Housing Needs Allocation
Pacifica City Council 3
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The City Council has been extensively involved in the development of the Housing Element, participating in three meetings to review various aspects of the draft before considering its adoption on two separate occasions. Input from the City Council has been critical to the process and ensured that public input has been thoroughly considered and incorporated where possible.
In addition, the Planning Commission held a four-meeting series on matters related to the Housing Element to further inform the process and provide public input opportunities. Most recently, the Planning Commission held three public hearings on the HE Rezoning Program (HE-I-1), offering additional opportunities for public input and facilitating a thorough review of the first HE program implementation. The following list summarizes the City Council and Planning Commission’s involvement to date:
Table 1: City Council and Planning Commission Involvement Meeting Date Meeting Description Agenda
Report Meeting Video Minutes
March 21,
2023
Joint study session of City
Council and Planning
Commission for HE
Agenda
report Meeting video Minutes
June 19, 2023
Planning Commission
Discussion of ODS Part One
Agenda
report Meeting video Minutes
August 21,
2023
Planning Commission
Discussion of ODS Part Two
Agenda
report Meeting video Minutes
September 5,
2023
Planning Commission
Discussion of ODS Part Three
Agenda
report Meeting video DraftMinutes
September
25, 2023
Joint study session of City
Council and Planning
Commission for HE
Agenda
report Meeting video Minutes
October 16,
2023
Joint study session of City
Council and Planning
Commission for HE
Agenda
report Meeting video
Minutes
January 22,
2024
City Council Adoption of
Housing Element
Agenda
report
Meeting video
(part 1); video
(part 2)
Minutes
February 5,
2024
Planning Commission
Discussion of ODS Part Four
Agenda
Report Meeting video Minutes
March 24,
2025
City Council Readoption of
Housing Element
Agenda
Report
Meeting video
(part 1); video
(part 2)
Minutes
May 19, 2025
Planning Commission HE
Rezoning Program
(HE-I-1)
Agenda
Report Meeting video Minutes
June 2, 2025
Planning Commission HE
Rezoning Program
(HE-I-1)
Agenda
Report Meeting video Minutes
July 7, 2025
Planning Commission HE
Rezoning Program
(HE-I-1)
Agenda
Report Meeting video Minutes
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The initial adoption of the Housing Element by City Council occurred on January 22, 20242.
Following City Council adoption, staff transmitted the Housing Element to the California Department of Housing and Community Development (HCD) to initiate a 60-day review for certification. HCD provided formal written comments on March 29, 2024, listing changes needed for HCD to deem the Housing Element compliant with state law. Additional comments regarding Affirmatively Furthering Fair Housing were received on October 15, 2024. The City proactively coordinated with HCD staff on draft refinements required for certification and incorporated revisions to the Housing Element. The revised Housing Element was reviewed by HCD and found to meet the statutory requirements of State Housing Element Law, pending a technical edit to HE-I-1
3 and completion of rezoning. HCD’s conditional compliance letter4 indicated that
final certification would be granted upon the City’s completion of the Rezoning Program as outlined in Program HE-I-1, which establishes the requirements to amend the General Plan designations and zoning to accommodate the City’s RHNA. City Council readopted the revised Housing Element on March 24, 20255, as required to complete the Housing Element process.
Pacifica’s RHNA for the 2023-2031 Housing Element is 1,892 units. Due to “no net loss provisions” in state law and prioritization of affordable housing development opportunities in Pacifica, the Housing Element includes a buffer on top of the RHNA6. This resulted in the identification of required General Plan amendments and/or rezoning (Rezoning Program) for a total of 2,042 housing units across 31 sites. Maps demonstrating all of the City’s sites in the Housing Site Inventory are referenced in Figure F-1: Pacifica Opportunity Sites (“Sites Inventory” or “Sites List”) in the City’s adopted Housing Element5 above. The Rezoning Program (Program HE-I-1) is a critical step in fulfilling the City’s obligation under state housing laws.
City staff has maintained regular communication with HCD to ensure the City’s Rezoning Program meets the requirements for Housing Element certification. On April 18, 2025, City staff met with HCD staff to present the City’s rezoning strategy for implementing Housing Element Program HE-I-1, including anticipated development standards and example zoning code language. During the meeting, staff walked through preliminary zoning text amendments and explained how the proposed districts would facilitate housing production at densities identified in the Housing Element, while remaining consistent with State law.
HCD staff responded positively and indicated a willingness to conduct a preliminary review of the full draft rezoning package to help identify any potential issues before formal adoption. In response, City staff compiled and submitted the draft zoning text and map amendments to HCD on May 16, 2025. HCD conducted a preliminary review of the draft Rezoning Program package that was provided to the Planning Commission for the May 19th Planning Commission meeting and did not identify any areas of non-compliance that require edits.
The Planning Commission recommended a number of changes to the by-right provisions. Since HCD had previously reviewed this section and indicated compliance, staff had a subsequent meeting with HCD on July 29, 2025, where they recommended some additional revisions.
These revisions are addressed below under Planning Commission Review and Recommendation.
2 2023-2031 Housing Element, adopted January 22, 2024: “City Council Adopted Version - January 22, 2024”
3 “Email from HCD: HE-I-1, Action 8 Technical Edits, March 18, 2025” 4 HCD’s Conditional Compliance Letter, dated March 19, 2025 5 2023-2031 Housing Element, adopted March 24, 2025: “Pacifica’s Housing Element 2023-2031 (Adopted by City Council on March 24, 2025”
6 City of Pacifica 2023-2031 Housing Element, Table 2 RHNA Capacity Analysis (pg. 10) Pacifica City Council 5
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2. Planning Commission Review and Recommendation
The Planning Commission was instrumental in shaping the objective design and development standards (ODS) integral to the drafting of the Rezoning Program, holding multiple study sessions as noted above. These meetings facilitated a collaborative approach, incorporating public input and analysis to refine the standards. To the extent feasible, the feedback received by Planning Commission of the draft objective development standards were compiled as part of the initial draft Rezoning Program.
The Planning Commission considered the proposed Rezoning Program over the course of three public hearings, on May 19, June 2, and July 7, 2025. During these meetings, the Commission reviewed all components of the program — including the General Plan and Zoning Ordinance text amendments, land use and zoning map changes, and the environmental impact analysis.
Based on their deliberations and community input, the Commission directed staff to make several refinements to the draft, including clarifying the intent of the Mixed-Use Institutional designation, updating parking and building height standards, and removing a previously proposed overlay in favor of a new section addressing state-mandated by-right housing review procedures. A summary of the final proposed amendments, reflecting the Commission’s recommended changes, is included below. On July 7, 2025, the Commission voted to recommend that the City Council adopt the full Rezoning Program and certify and adopt the associated environmental documentation (Attachment I).
Planning Commission Recommendations
The Planning Commission’s review of the Housing Element Rezoning Program over three public hearings (May 19, June 2, and July 7, 2025) resulted in meaningful recommendations that shaped the final package now before the City Council. These recommendations reflect thoughtful consideration of public input, housing feasibility, neighborhood character, and administrative clarity.
As directed by the Planning Commission, staff updated components of the Rezoning Program to ensure the proposed amendments not only meet the requirements of state law but also allow Pacifica to effectively implement its Housing Element in a way that reflects local values and conditions.
Key discussions and recommendations, based on issues identified by the Planning Commission during the public review process, include:
• Removal of Sanchez Art Center (Site 23) from Rezoning Program: As part of its recommendation, the Planning Commission directed staff to remove Site 23 – the Sanchez Art Center – from the Rezoning Program. The Commission acknowledged the unique role of the site as a long-standing community arts facility and expressed interest in allowing a future, stand-alone planning process to determine appropriate land use and zoning for the site. Additionally, the Commission acknowledged staff’s efforts escalating this issue to HCD and HCD’s response7 confirming that the site could be removed from Rezoning Program but remain in the Housing Element as a buffer site. This approach would allow the City to conduct more tailored public engagement and develop sitespecific General Plan and zoning standards at a later time, without delaying the current Rezoning Program or reopening the Housing Element.
Accordingly, changes to Site 23 have been removed from the proposed General Plan Land Use and Zoning Maps and all associated references have been struck from the zoning code text amendments. Any future consideration of housing or other changes to 7 HCD’s Email Confirming Removal of Site 23 from the Rezoning Program Pacifica City Council 6
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the site would be subject to separate review and action by the Planning Commission and City Council, informed by a robust public process.
• Streamlining of By-Right Housing Review and Removal of Overlay Zone:
The Planning Commission recommended revisions to the by right provisions, which require ministerial by right review of certain qualifying housing projects on sites designated for lower-income housing in the Housing Element. The by right provisions are in a new section in Article 54, “Higher Density Residential and Higher Density Mixed Use Districts.”. These provisions were included to implement Program HEI-1, which requires the following: “Rezone to implement state Government Code sections 65583, subdivision (c)(1) and 65583.2 subdivisions (c), (h), and (i) to allow approval of residential developments “by-right” if at least 20 percent of the units are affordable to low income, including sites identified in multiple housing elements and sites to accommodate lower-income RHNA shortfall.”
The Planning Commission revised the by right provisions to: (1) remove crossreferences to the Housing Element program HE I-1 and the Housing Element sites inventory that list the sites subject to the by right provisions; and (2) remove language listing the state law requirements to be eligible for by right approval. The Planning Commission understood that staff would be conferring with HCD on whether the changes were acceptable since HCD had previously reviewed this section and indicated compliance with the language recommended to be removed. Therefore, staff had a subsequent meeting with HCD on July 29, 2025, to confirm whether the revised language continued to meet the requirements to achieve approval and, ultimately, certification of the Housing Element. HCD found that a number of the revisions were acceptable, including the removal of subsections that listed the state law requirements for by-right approval. They noted two changes that would be required for certification8 (Attachment E), as follows:
▪ Add references to the specific shortfall lower-income sites that are subject to the by-right requirements. This can be accomplished by including the prior reference to the Housing Element sites inventory in Section 9-
4.5403(b): "Specifically, it applies to the sites listed in the City of Pacifica 6th Cycle (2023-2031) Housing Element sites inventory, which are designated to address the shortfall of lower-income RHNA units."
▪ Add a reference to section 65583.2(i), and remove the reference to section 65583(f), in Section 9-4.5403(b).
These two changes, as recommended by HCD for the Rezoning Program to meet state housing element law, are incorporated in the Draft Ordinance being considered by the City Council.
• Refinements to Development Standards Informed by Test Fits and Usability Goals Throughout the Planning Commission’s deliberations, Commissioners emphasized the importance of aligning development standards with the physical feasibility of housing construction on the rezoned sites. To help guide these refinements, the Commission considered test fit studies9 prepared by Van Meter Williams Pollack (VMWP), a San Francisco-based architecture and urban design firm, and Good City Company, which analyzed prototypical site layouts for selected zoning designations (e.g., R-50, MU-60, MU-I-30) included in the Housing Element Site Inventory. These studies provided 8 Pacifica Rezoning Program HCD Follow Up Emails, dated July 16 and July 29, 2025 9 Test Fits by VMWP & Good City Company
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insights into how parking, building massing, open space, and site access could be accommodated under the proposed standards.
As a result of these discussions, the Commission directed the following key revisions to improve clarity, feasibility, and usability:
o Parking Standards were updated to require two on-site spaces per unit with two or more bedrooms, consistent with the original standards proposed by the Planning Commission when developing the ODS. Guest parking was reduced from one space per four units to one space per five units to enhance feasibility while still providing visitor capacity. These changes address both resident concerns about on-street parking availability and the development realities identified in the VMWP and Good City Company analyses. It should also be noted that the proposed ordinance requires one on-site parking space for each studio or one-bedroom unit, which was not revised by the Planning Commission.
While the Planning Commission discussed whether to apply changes to the required number of parking spaces for two-family and multiple-family dwellings citywide, they only recommended changes in the new zoning districts to stay within the purview of the rezoning program itself. While preparing the final Draft Ordinance, staff discovered that this specific change was intended to apply citywide, as identified in HE-I-1 Action 14, and not just the new zoning districts.
Staff have, therefore, made changes in the final Draft Ordinance to parking citywide consistent with the above parking standards for Council consideration. o Retention and Clarification of Building Height Measurement Standard At the second hearing, the Planning Commission proposed modifying how building height is measured—specifically by introducing an “average grade plane” methodology, which is common in many jurisdictions and intended to account for sloped lots, and asked staff to prepare a draft measurement for consideration.
During their review at the third hearing, the Planning Commission expressed concerns that the proposed change could create unnecessary complexity, reduce predictability, and deviate from longstanding local practice. After discussion, the Commission recommended removing the proposed change entirely and retaining the City’s existing method for measuring building height. Therefore, the recommended building height standard is that height is measured from the lowest point of finished grade along the perimeter of the building to the highest point of the structure, excluding certain permitted projections. This approach is more familiar to applicants, design professionals, and staff, and is seen as easier to administer across Pacifica’s varied terrain.
While the methodology itself remains unchanged, the Commission directed staff to refine and clarify the language in the Zoning Code to ensure better usability and consistency. The updated language was moved from the definitions to Section 9-4.2501 for ease of use and clarity. The language helps ensure that future applicants and staff can interpret and apply the standard the height section more effectively, while avoiding ambiguity in complex site conditions.
Height measurement methodology will be studied in more detail during citywide zoning reform and object development standards projects. o Rooftop Features (such as elevators, stair towers, and mechanical equipment) now have clearly defined objective standards for location, screening, and height Pacifica City Council 8
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above rooflines, ensuring that necessary building functions are accommodated without causing undue bulk or visual disruption.
o Design Standards related to lot coverage, massing, stepbacks, articulation, and private open space were updated for clarity and enforceability. The changes promote housing production in a form that is both compatible with existing neighborhood character and administratively straightforward to review.
Together, these refinements respond to Commission and community input, while reinforcing the City’s commitment to ensuring that the rezoned sites can realistically accommodate the intended housing capacity envisioned in the Housing Element.
Overall, the Planning Commission expressed support for the full Rezoning Program and confirmed that the changes represent a responsible path forward to facilitate new housing while protecting community character. The proposed program balances state housing mandates with local implementation considerations and enables the City to submit a complete rezoning package to HCD for final Housing Element certification.
3. Summary of Proposed Amendments
General Plan Amendments
The rezoning program requires amendments to the General Plan land use designations to establish new densities on sites required to be rezoned in the Housing Element. • New Land Use Designations
Twelve new General Plan Land Use designations are proposed. The land use designations fall under three overarching categories: Multifamily Residential (R-#), Mixed Use (MU-#), and Mixed-Use Institutional (MU-I-#). Each designation has a specific minimum and maximum density (dwelling units per acre) that reflect densities in the Housing Site Inventory in the Housing Element. For example, MU-30 is a mixed-use designation that provides for up to 30 dwelling units per acre. The new designations are provided below:
Table 2. Proposed Land Use Designations
Land Use Designations Description
20-30
units/
acre
25-40
units/
acre
30-50
units/
acre
40-60
units/
acre
Multifamily
Residential
(R-#)
R-30 R-40 R-50 R-60 This land use is intended for higherdensity multifamily residential uses.
Mixed Use
(MU-#)
MU-30 MU-40 MU-50 MU-60 This land use is intended for higherdensity mixed-use development, including residential and commercial
uses. Allowable uses would include a
range of commercial activities
consistent with the City’s current
zoning standards for comparable
commercial zoning districts.
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Mixed Use
Institutional
(MU-I-#)
MU-I-30 MU-I40MU-I50MU-I60This land use is intended for higherdensity mixed-use development, including residential and institutional
and incidental commercial uses,
similar to the new R# standards and
consistent with existing standards for
similar zoning districts.
• General Plan Text Amendments
The Rezoning Program includes amendments to the City of Pacifica General Plan 2040. The amendments are shown as redlined text in Attachment B, Exhibit B and key changes are identified below:
o Updates to text addressing the status of Housing Element adoption to reflect adoption of the revised 2023-2031 Housing Element.
o Addition of the new land use designations under the Rezoning Program. o Added descriptions of the intent and densities of the new land use designations. o Addition of non-residential floor area ratio (FAR) standards for the mixed use (MU-#) designations in Table 4-1.
o Updates to residential buildout to reflect new land use designations in Table 4-2 and nonresidential buildout in Table 4-3. Update text that references Table 4-2 and Table 4-3.
o Revised policies in the Biological Resources section of the Conservation chapter to be consistent with environmental protection measurements raised by California Department of Fish and Wildlife (CDFW) during the Environmental Impact Report. • General Plan Land Use Map Amendments
A revised General Plan Land Use map has been prepared to show the new Land Use designations (Attachment B, Exhibit A). Detailed land use maps are currently being updated by staff and will be further updated to reflect the adopted amendments and to take all administrative actions necessary to implement the amended General Plan. Existing Land Use Maps are provided for reference as Attachment F.
Zoning Code Amendments
The Rezoning Program requires zoning ordinance amendments (Attachment C, Exhibit A) to establish zoning and combining districts, and objective standards that establish allowable uses and design and development standards for new development on sites required to be rezoned in the Housing Element. Some changes would apply citywide to comply with state laws or to clarify existing zoning provisions and improve consistency across districts. A redlined text version of the Zoning Ordinance amendments is included as Attachment D for reference. • New Zoning Districts
Proposed Zoning Districts align with the proposed General Plan Land Use Designations as described below:
Pacifica City Council 10 August 11, 2025
Table 3. Proposed Zoning Districts
Zoning Districts
20-30
units/ acre
25-40
units/ acre
30-50
units/ acre
40-60 units/ acre
Multifamily Residential (R-#) R-30 R-40 R-50 R-60
Mixed Use (MU-#) MU-30 MU-40 MU-50 MU-60
Mixed Use Institutional (MU-I-#) MU-I-30 MU-I-40 MU-I-50 MU-I-60 • Zoning Text Amendments
o New Articles Added to Zoning Ordinance
Additionally, new articles are proposed for each new zoning designation and design standards to accommodate future higher density development proposals.
Table 4: New Articles Added to Zoning Ordinance
Article Topic Summary of Amendments
Article 54 Higher
Density
Residential
and Higher
Density
Mixed-Use
Districts
Establish objective standards for use, such as minimum
residential floor area requirements for MU-# and MU-I-# Districts; establish objective design standards including stepbacks above the second story, ground-level and frontage requirements, and standards for ground-floor commercial uses. Also includes section related to state requirements for by-right review on certain sites with proposed housing development projects that meet specific criteria.
Articles
55 – 66
New Zoning
Districts &
Standards
Establish 12 new base districts (e.g., R-30 to R-60, MU-30 to MU-60, MU-I-30 to MU-I-60) to implement the Housing Element; includes permitted uses and development standards. Establish specific regulations and objective design and development standards for new zoning districts.
Article 67 MultipleFamily
Housing
Polygon
Combining
District
To promote multi-family residential and/or mixed-use residential development per the underlying zone, within specific areas or polygons on a larger site.
o Revised Existing Articles and Sections. Several existing zoning code sections are proposed for revision to align with current State housing laws, support implementation of the Rezoning Program, and improve internal consistency within the code. These updates clarify how density, parking, and development standards apply to new zoning districts and reflect best practices to facilitate housing production.
Table 5: Revisions to Existing Articles & Sections
Article Topic Summary of Amendments
Article 2
(Revised)
Definitions Revised terms like ‘Family’ to be consistent with State law. Adds terms like ‘Stepback', and ‘Mixed Use Residential,’ and Pacifica City Council 11 August 11, 2025
clarifications to existing definitions to support new code sections.
Article 3
(Revised)
Establishment
of Districts
Updates established districts with new districts.
Article 5
(Revised)
R-2 Two
Family
Residential
District
Standards
Updates permitted and conditional uses to align with State law. • Family daycare homes, defined as serving 14 children or less, are considered residential uses pursuant to State law and cannot be subject to zoning review or required to obtain a business license. The use would be removed from the
permitted uses to clarify that it is not a separate use, and the definition in Article 2 would have a conforming edit. • Per the State’s definition of Family daycare homes, the maximum number of children is 14. Therefore it is not
necessary to have a conditional use allowance for homes over 14 children and this conditional use was deleted.
Article 6
(Revised)
R-3 Multiple
Family
Residential
District
Standards
Article
6.5 (Revised)
R-3/L.D.
Multiple
Family
Density
Residential
District
Article 23
(Revised)
General
Provision and
Exceptions
Revises rounding of numbers in calculating density to align with State law.
Article 24
(Revised)
Residential
Clustered
Housing
Development
Standards
Specifies that new districts are not subject to clustered housing standards and refers development in new districts to standards in Article 54 for Higher Density Residential and Higher Density Mixed Use Districts.
Article 25
(Revised)
Height Limits Refines language for measuring building height citywide. Adds standards for rooftop projections and elevators. Revises retaining wall measurement.
Article 28
(Revised)
Off-street
Parking and
Loading
Clarifies language, reduces parking requirements for two-family and multiple-family units per HE-I-1, revises standards to allow more flexibility for higher density housing, adds non-residential parking standards for the new districts similar to the Sharp Park Specific Plan.
• Zoning Map Amendments
A revised Zoning map and detailed section maps have been prepared to show the new zoning designations(Attachment C, Exhibit B). Existing zoning maps are provided as Attachment G for reference.
4. Policy Considerations
For the Council’s consideration, the Rezoning Program represents a key milestone in fulfilling the City’s legal obligation under State Housing Element law while advancing broader policy goals related to housing, equity, and responsible growth. Adoption of the program will allow the City to formally submit the Housing Element, which must include an adopted rezoning package, to HCD for review and potential certification of the 2023-2031 Housing Element.
Implementation of the Housing Element
The purpose of Program HE-I-1, General Plan and Zoning Amendments to Achieve RHNA, is to create the regulatory framework to accommodate the RHNA sites inventory, promote development of multi-family housing, including rental housing and missing middle housing, as Pacifica City Council 12 August 11, 2025
well as address land use constraints10 to make the production of housing more likely.
Specifically, this program is designed to address constraints including governmental land use constraints related to the general plan, zoning, local coastal plan, and multi-family housing. The program also indirectly addresses many of the nongovernmental, environmental, land cost, construction cost, financing, and California Coastal Act constraints.
Program HE-I-1 is comprised of 17 implementation actions11 that address City processes and policies (governmental constraints) and external factors such as development costs (nongovernmental constraints) to reduce barriers and encourage the development of a variety of housing types and affordability. The timeline for these actions spans from 2025 through 2027.
The Planning Commission removed references to HE-I-1 from their resolutions because they felt the Rezoning Program was more broadly applicable. Because the Rezoning Program is specifically required under HE-I-1, staff has included references in the Council recitals to provide clarity in the record and as evidence to HCD that the City is meeting the obligations of this program. Specifically, the Rezoning Program addresses the policies in the Council-adopted 2023-2031 Housing Element and implements HE-I-1 by:
Table 6: Program HE-I-1 Applicable Implementing Actions # Implementing Action Rezoning Program
1 Amend General Plan Land Use
designations and zoning designations to
accommodate the RHNA by May 2025.
Land Use and Zoning designations
updated on 30 of the 31 Housing
Opportunity Sites.
2 Review the zoning regulations and map to
identify inconsistencies between the
general plan densities and uses and the
currently adopted zoning regulations and
amend accordingly to resolve.
Housing Element is part of the General
Plan, and rezoning program addresses
inconsistencies by creating new zoning
designations and objective design and
development standards and makes other
minor changes to Zoning Ordinance to
facilitate consistency.
4 Complete any required CEQA
environmental analysis for redesignation
and rezoning by May 2025.
Draft EIR published December 14, 2024;
Final EIR and environmental documents
proposed for certification and adoption.
8 Rezone to implement state Government
Code sections 65583, subdivision (c)(1)
and 65583.2 subdivisions (c), (h), and (i) to
allow approval of residential developments
“by-right” if at least 20 percent of the units
are affordable to low income, including
sites identified in multiple housing
elements and sites to accommodate lowerincome RHNA shortfall.
Provisions included in PMC Section 9-
4.5403 “State Law By-Right Approval
Requirements.”
10 Rezone the following core RHNA sites to
60 dwelling units per acre: Sites 10, 18,
27A, 27B, and 32.
Proposed.
11 Rezone the following surplus sites to 60
dwelling units per acre: Site 12.
Proposed.
10 See Appendix G “Housing Constraints” of the 2023-2031 Housing Element for detailed discussion 11 See “HE-I-1 General Plan and Zoning Amendments to Achieve RHNA” in the 2023-2031 Housing Element for a list of all implementing actions
Pacifica City Council 13 August 11, 2025
13 Amend Zoning Code for the commercial
and mixed-use sites included to achieve
RHNA to require a minimum amount of
residential within the development and
prohibit 100% commercial uses and other
requirements in accordance with
Government Code section 65583.2.
Proposed in Article 54 “Higher Density
Residential and Higher Density Mixed Use
Districts,” as well as the individual MU-#
and MU-I-# Districts.
14 Amend zoning code to remove constraints
to housing production including:
a. Reduce the off-street parking
requirement for studio and one-bedroom
units to one parking space per unit
(covered or uncovered), and require no
guest parking for such units citywide.
b. Revise use and density descriptions
regarding the term “Family” within the
zoning regulations citywide.
c. Increase height limits where necessary
to achieve RHNA capacity on sites.
d. Reduce setbacks where necessary to
achieve RHNA capacity on sites.
a. Parking: Proposed parking standards for
two-family and multi-family uses in all
districts reflects the reduced number of
required parking spaces for studio and
one-bedrooms, including no guest parking;
removed requirement for one parking
space to be covered for two-family and
multifamily citywide.
b. “Family” definition revised.
c. Heights of rezoned sites can
accommodate RHNA, however, the
citywide methodology for measuring
height, even with clarifying edits
recommended by the Planning
Commission, is a constraint on sloped lots
that may require the use of waivers to
achieve the densities established in the
General Plan and Zoning Ordinance.
d. Setbacks on rezoned sites have been
scaled to accommodate RHNA
Other key policy considerations include:
• State Compliance and Housing Element Certification: Timely adoption of the Rezoning Program will allow the City to meet its RHNA obligations and avoid potential consequences such as limitations on local land use authority. • Refined Development Standards: Planning Commission recommendations – including clarification of land use categories, updates to parking, and height standards, and by right review procedures – aim to improve clarity and feasibility and administrative implementation.
• Future Planning for Site 23: Site 23 (Sanchez Art Center) has been removed from the rezoning program. The City Council could decide at a later time to pursue a separate, community-informed rezoning process without delaying Housing Element compliance.
5. Next Steps
If the Rezoning Program is adopted by City Council, the next steps include the following:
• Submittal to HCD: Staff will finalize and formally transmit the 2023-2031 Housing Element (adopted March 24, 2025) and adopted rezoning package to HCD for formal review;
• HCD Review: HCD is allotted 60 days to complete their review of the Housing Element, including the rezoning program, for compliance with state housing element law.
However, they have indicated that they will try to expedite their review after the second reading/adoption. If additional revisions are requested, staff may return to the Planning Pacifica City Council 14 August 11, 2025
Commission and City Council with proposed amendments to the adopted ordinance. In their letter dated March 19, 2025, HCD indicated that the City’s Housing Element as adopted on March 24, 2025, would be in compliance upon completion of the rezoning program. In a mutual effort to ensure compliance, staff have been coordinating with HCD on the rezoning program between April and July 2025, including reviewing recommended changes from the Planning Commission.
• Housing Element Certification: Upon HCD approval of the rezoning program, the City’s Housing Element deemed compliant with State law, and effectively certified; • Implementation of Rezoning Program: Staff will begin implementing new zoning standards, update internal procedures and application materials, and track progress through required annual reporting to HCD. (HE-I-1, Actions 15 and 17) • Local Coastal Land Use Plan (LCLUP): Staff will submit an LCP amendment to the to the California Coastal Commission for land use and zoning changes to four sites within the coastal zone. (HE-I-1, Action 3)
• Mid-Cycle Review: Staff will complete a mid-cycle review in 2027 of the status of progress toward reaching RHNA. (HE-I-1, Action 16)
• Future Planning Work and Continued Implementation and Monitoring of Housing Element Programs: Staff will continue to work on other program implementation items per the Council’s Strategic Plan and departmental workplan. This includes ongoing monitoring and required annual reporting to HCD.
ENVIRONMENTAL REVIEW (CEQA):
An Environmental Impact Report (EIR) was prepared to evaluate the proposed Rezoning Program consistent with the requirements of the California Environmental Quality Act (CEQA).
The EIR is intended to inform decision-makers and the public of the potential significant environmental impacts of the proposed project, consider feasible mitigation measures to minimize those impacts, and evaluate reasonable alternatives to the Rezoning Program. The Pacifica Housing Element (6th Cycle) Targeted General Plan Amendments, Rezoning, and Objective Development Standards Program Environmental Impact Report (Rezoning Program EIR) was prepared as a programmatic EIR to assess the effects of implementing the Rezoning Program, including land use and zoning changes and adoption of objective development standards.
At its July 7, 2025, public hearing, the Planning Commission reviewed and considered the Final EIR (FEIR), and recommended that the City Council certify the FEIR, adopt CEQA Findings of Fact and a Statement of Overriding Considerations for the significant and unavoidable impacts identified in the EIR, adopt the Mitigation Monitoring and Reporting Program (MMRP), and approve the Rezoning Program. These actions are now before the City Council for consideration as the required CEQA review for the Rezoning Program, consistent with the Planning Commission’s recommendation. The programmatic EIR does not evaluate projectspecific impacts that may result from individual developments under the Rezoning Program; such projects will be subject to future environmental review as required by CEQA. Where appropriate, projects may also be eligible for streamlined review under applicable CEQA provisions.
• CEQA Timeline
The CEQA process was initiated in 2023. A Notice of Preparation (NOP) for the EIR was submitted to the State Clearinghouse on July 11, 2023, and circulated to relevant agencies and the public. After revisions to the project, a revised NOP was issued and circulated on May 3, 2024, which started the current CEQA process. An EIR Scoping Meeting was held via Zoom on May 22, 2024, to gather input on the scope, impacts, mitigation measures, and alternatives to be considered. The Draft EIR was released on Pacifica City Council 15 August 11, 2025
December 13, 2024, and made available online, at City offices, and local libraries. The formal public comment period ran from December 13, 2024, to February 3, 2025 (extended from the original closing date of January 26, 2025). A public comment meeting on the Draft EIR was held on January 15, 2025. The Final EIR includes responses to all substantive comments and incorporates clarifications or revisions as necessary.
• Summary of Environmental Impacts
The EIR identified significant and unavoidable impacts, as well as other impacts that are less than significant or may be reduced to less than significant levels with mitigations.
Significant and unavoidable impacts are impacts are above certain thresholds provided by the State or regulatory agencies to classify the level of impact and cannot be avoided even with application of mitigations to reduce impact. The Summary of Impacts and Mitigation Measures (Table ES-3) in the EIR12 provides a summary of impacts and mitigation measures. The significant and unavoidable impacts are impacts that, despite changes or alterations that have been or are required to be implemented and despite mitigations to reduce the impacts, remain significant and unavoidable. The identified significant and unavoidable impacts relate to greenhouse gas emissions and transportation. Expanded discussion on the impacts is provided in EIR Chapter 5.3 Significant and Unavoidable Impacts and under the CEQA Findings and Facts in Support of Findings in the FEIR and Statement of Overriding Considerations (Attachment A, Exhibit A).
Greenhouse Gas Emissions
Impact 3.5-1: Implementation of the Proposed Project would generate greenhouse gas emissions, either directly or indirectly, that may have a significant impact on the environment.
Impact 3.5-2: Implementation of the Proposed Project would conflict with an applicable plan, policy, or regulation adopted for the purpose of reducing the emissions of greenhouse gases.
Implementation of the Rezoning Program and EIR mitigation measures would reduce GHG generation compared to existing conditions. Buildout under the Rezoning Program would result in greater reductions than buildout of the General Plan without the Rezoning Program given the emphasis on denser housing closer to transit, which lowers VMT.
However, it is conservatively assumed that additional reductions are needed in order to meet the Climate Action Plan 2050 and State’s 2045 targets. Without further State action, it is unlikely that local efforts alone would be sufficient to meet carbon neutrality by 2045 and thereby reduce the impact to a less-than-significant level. Impacts would be significant and unavoidable. Significant and unavoidable impacts are impacts characterized as above certain thresholds provided by the State or regulatory agencies to classify the level of impact and cannot be avoided even with application of mitigations to reduce impact.
Transportation
Impact 3.11-2: Implementation of the Proposed Project would conflict or be inconsistent with CEQA Guidelines Section 15064.3, subdivision (b).
CEQA Guidelines Section 15064.3 requires that the determination of significance for transportation impacts be based on Vehicle Miles Traveled (VMT). The transportation 12 Final EIR
Pacifica City Council 16 August 11, 2025
impact as analyzed under CEQA considers project impact relative to a threshold of significance of 15 percent below baseline rates. The addition of multifamily units and retail employment under the Rezoning Program is expected to reduce VMT per capita.
However, there are VMT measures that remain above the thresholds of significance including VMT per employee, although lower relative to General Plan buildout, and home-based VMT, which would increase by only 0.5 percent. Therefore, impacts would be significant and unavoidable.
• Mitigation Monitoring and Reporting Program (MMRP)
Mitigation measures identified in the EIR are compiled in the Mitigation Monitoring and Reporting Program (MMRP) (Attachment A, Exhibit B). These measures are designed to avoid, minimize, or offset the significant environmental impacts of the Rezoning Program. Future development projects facilitated by the Rezoning Program would be required to comply with all applicable mitigation measures, either at the plan-level or project-level as appropriate.
Findings of Fact and Statement of Overriding Considerations As part of the certification process, the City Council will also consider adoption of the CEQA Findings of Fact, the Statement of Overriding Considerations for the significant and unavoidable impacts, and the MMRP. These documents, together with the certified Final EIR, will provide the foundation for the City’s implementation of the Rezoning Program consistent with CEQA.
PUBLIC COMMENTS :
The City received extensive written public comments during the three Planning Commission public hearings on May 19, June 2, and July 7 (see background section above), which are available in the respective agenda.
Additionally, at the time of writing this staff report, staff had received numerous public comment related to this City Council action spanning from April 15, 2025 up until the publication of the agenda (Attachment H).
RECOMMENDATION :
The City Manager recommends certification of the Final EIR and adoption of related environmental documents, adoption of the attached Resolutions and introduction of the Ordinance, which would make certain findings and adopt the Housing Element Rezoning Program, including associated General Plan and Zoning Code amendments and Land Use and Zoning Map changes to implement the certified 2023-2031 Housing Element.
At this time, the City does not have a certified Housing Element. In accordance with state law, rezoning of sites identified in the Housing Element is required prior to certification. Adoption of the Rezoning Program is therefore a critical step in demonstrating compliance with Housing Element law and enabling the City to submit the full Housing Element to HCD for formal review, with the goal of securing Housing Element certification.
Suggested Motions:
A. Move to adopt a Resolution to certify Pacifica Housing Element (6th Cycle, 2023-2031) Targeted General Plan Amendments, Rezoning, and Objective Development Standards Program Final Impact Report, State Clearinghouse No. 202450168, in accordance with the California Environmental Quality Act (CEQA); and adopt Findings of Fact and Statement of Overriding Considerations and Mitigation, Monitoring, and Reporting Program in accordance with CEQA (Attachment A);
Pacifica City Council 17 August 11, 2025
B. Move to adopt a Resolution approving amendments to the General Plan text and land use map to reflect the new General Plan Land Use Designations and to ensure consistency with the Housing Element (with amendments to Chapters 1 (Introduction), 3 (Community Design), 4 (Land Use), and 7 (Conservation) (Attachment B); and C. Waive the first reading and introduce an Ordinance approving the amendments to the Zoning Code (Chapter 4 of Title 9 of the City of Pacifica Municipal Code) and the zoning map to reflect the new Zoning Districts and to ensure consistency with the Housing Element, including amendments to Articles 2, 3, 5, 6, 6.5, 23, 24, 25, 28, and addition of Articles 54 to 67 (Attachment C).
ALTERNATIVE ACTION:
The Council could take the following alternative actions:
• Continue the public hearing to a later date;
• Direct the City Manager to prepare further revisions to the Land Use Designations, General Plan, Zoning Map, and/or Zoning Ordinance; and. depending on the nature of such changes, the Council could remand to Planning Commission or continue the public hearing; or
• Take no action on the Rezoning Program.
RELATION TO CITY COUNCIL GOALS AND WORK PLAN:
The proposed Housing Element Rezoning Program (HE-I-1) aligns closely with the following items in the Council-adopted Strategic Plan and Priority Work Plan for FY2025-2026:
• Goal 1: Enhance organizational and fiscal stability
o Strategy D: Prepare the Cost Allocation Plan and conduct the Development Impact Fee and Master Fee Studies.
The HE Rezoning Program lays the groundwork for future residential development, which will inform and benefit from updates to the City’s impact fees and cost allocation plans. By planning for growth proactively, the City can better align its fiscal tools with future development patterns, improving long-term financial sustainability. • Goal 3: Prioritize protection and development of affordable housing o Strategy A: Complete the Housing Element Update
o Strategy C: Prioritize Housing Element program implementation This is the most directly applicable goal. The rezoning program is the central action needed to implement the Housing Element and meet state deadlines for rezoning adequate sites to accommodate the City’s Regional Housing Needs Allocation (RHNA), including for very low- and low-income households. Timely adoption ensures HCD certification.
FISCAL IMPACT:
Implementation of the Housing Element Rezoning Program is expected to have no significant immediate fiscal impact, as current efforts are supported by existing staff and budgeted consultant resources.
Pacifica City Council 18 August 11, 2025
Over time, the program may result in revenue increases from property taxes, development fees, and other resources, depending on the scale and timing of future development. Any increased demand on City services is expected to be gradual and consistent with the General Plan growth assumptions.
Importantly, adoption of the program is required to maintain Housing Element compliance and avoid potential financial risks, including loss of state funding eligibility and exposure to legal challenges.
ORIGINATED BY:
Community Development Department
ATTACHMENT LIST:
Attachment A - Draft Resolution to Certify Final EIR_HE Rezoning_250811_FINAL (PDF) Attachment A - Exhibit A. Findings of Fact and Statement of Overriding Considerations_250811 (PDF)
Attachment A - Exhibit B. Mitigation Monitoring and Reporting Program_250811 (PDF) Attachment B - Draft Resolution Approving General Plan Text and Map Amendments_250811_FINAL (PDF)
Attachment B - Exhibit A. Proposed General Plan Land Use Map_250811 (PDF) Attachment B - Exhibit B. Proposed GP Text_REDLINED_250811 (PDF) Attachment C - Draft Ordinance Approving HE Rezoning Program_250811_FINAL (PDF) Attachment C - Exhibit A. Proposed Zoning Text Amendments_CLEAN_250811 (PDF) Attachment C - Exhibit B. Proposed Zoning Maps and Sections_250811 (PDF) Attachment D - Zoning Ordinance_Council REDLINE_250811 (PDF) Attachment E - Pacifica Rezoning Program HCD Follow Up Emails 7-16-25 -7-29-25 (PDF) Attachment F - Land Use Map, Existing, dated 2019_250811 (PDF) Attachment G - Zoning Maps, Existing, dated April 2021_250811 (PDF) Attachment H - City Council Public Comments Related to HE Rezoning Program from April 2025 to Current_250811 (PDF)
Attachment I - Planning Commission Signed Resolutions (PDF) Pacifica City Council 19 August 11, 2025
ORDINANCE NO. (ID # 6008)
Pacifica City Council 20 August 11, 2025
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(ID # 6008) at 8/11/2025 7:00 PM City Council Regular Meeting