CITY OF PACIFICA
COUNCIL AGENDA SUMMARY REPORT
8/25/2025
1 SUBJECT:
Adoption of an Ordinance by the City of Pacifica to approve rezoning of 30 sites, add Articles 54, 55, 56, 57, 58, 59, 60, 61, 62, 63, 64, 35, 66, and 67, and amend Articles 2, 3, 5, 6, 6.5, 23, 24, 25, and 28, of Chapter 4 of Title 9 of the Pacifica Municipal Code (PMC), implementing 6th Cycle (2023-2031) Housing Element Programs (CEQA Status: Environmental Impact Report Certified and Adopted by Resolution No. 72-2025)
RECOMMENDED ACTION:
Waive the second reading and move to adopt an “Ordinance of the City Council of the City of Pacifica to approve rezoning of 30 sites, add Articles 54, 55, 56, 57, 58, 59, 60, 61, 62, 63, 64, 35, 66, and 67, and amend Articles 2, 3, 5, 6, 6.5, 23, 24, 25, and 28, of Chapter 4 of Title 9 of the Pacifica Municipal Code (PMC), implementing 6th Cycle (2023-2031) Housing Element Programs (File No. 2025-007, Rezoning RZ-216-25, Text Amendment TA-128-25)” (CEQA Status: Environmental Impact Report Certified and Adopted by Resolution No. 72-2025) STAFF CONTACT:
Samantha Updegrave, LEED AP, Community Development Director (650) 738-7443
[email protected]
Brianne Harkousha, AICP, Deputy Director
(650) 738-7443
[email protected]
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 (PC) 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). The Planning Commission adopted the following resolutions recommending approval of the Rezoning Program:
• Resolution No. 2025-007 recommending approval of rezoning Site 19 (May 19, 2025); • Resolution No. 2025-008 recommending approval of rezoning Sites 38, I, and J (June 2, 2025);
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• Resolution No. 2025-009 recommending approval of General Plan Amendments (GPA108-25), Rezoning (RZ216-25), and adoption of Zoning Text Amendments (TA-128-25) (July 7, 2025); and
• Resolution No. 2025-010 recommending certification of the Final Environmental Impact Report and adoption of environmental documents (July 7, 2025).
On August 11, 2025, the City Council held a duly noticed hearing to consider the Rezoning Program and took the following actions:
• Certified the Environmental Impact Report and adopted the Findings of Fact and Statement of Overriding Considerations, and Mitigation, Monitoring, and Reporting Program (Resolution No. 72-2025);
• Approved amendments to the General Plan and new Land Use Designations (Resolution No. 73-2025); and
• Waived the first reading and introduced an “Ordinance of the City Council of the City of Pacifica to approve rezoning of 30 sites, add Articles 54, 55, 56, 57, 58, 59, 60, 61, 62, 63, 64, 35, 66, and 67, and amend Articles 2, 3, 5, 6, 6.5, 23, 24, 25, and 28, of Chapter 4 of Title 9 of the Pacifica Municipal Code (PMC), implementing 6th Cycle (2023-2031) Housing Element Programs. (File No. 2025-007, Rezoning RZ-216-25, Text Amendment TA-128-25).
For detailed information about the rezoning program, please refer to the City Council Agenda Packet for August 11, 2025 (https://pacificacityca.iqm2.com/Citizens/Default.aspx).
The City Council made changes to the General Plan resolution prior to its adoption to remove references to Housing Element Implementation Program HE-I-1 and remove maximum FAR. In addition, the City Council revised the Zoning Ordinance prior to its introduction, as summarized in the table below.
Table 1: Council-Directed Changes to Rezoning Ordinance (PMC Title 9, Chapter 4) Code Section Revision
Ordinance Recitals
and Findings
Removed references to Housing Element Implementing Program HE-I-1. 9-4.2501(a)
Building Height
Modified the definition of building height so it is measured from the existing or finished grade point, whichever is lower. Conforming edits to development standard table to remove reference to “Average” height in new zoning districts.
9-4.2818(a)(2)-(3)
Off-Street Parking
Modified the residential parking reductions for one-bedroom units and guest parking so they only apply in new districts; conforming edits to numbering.
9-4.5402(b)(1)
Development
Standards
Clarified that the 10-foot setback above second story applies only along any street-facing facade.
9-4.5403(b)
State Law By Right
Approval
Revised for clarity as follows: “Applicable sites. This section (9-4.5403) applies to properties that are required to be allowed with by right approval pursuant to Government Code sections 65583.2(h) and 65583.2(i), as may be amended from time to time. Specifically, it applies to the sites designated to address the shortfall of lower-income RHNA units listed in the City of Pacifica 6th Cycle (2023-2031) Housing Element sites inventory.”
9-4.5403(c)
State Law By Right
Approval
Corrected reference to state law to 66583.2(i).
9-4.5902 (MU-30) Removed maximum FAR allowances from Development Regulations Pacifica City Council 3
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9-4.6002 (MU-40)
9-4.6102 (MU-50)
9-4.6202 (MU-60)
tables in the Mixed Use (MU) districts.
1. Project Description
The Ordinance would implement a portion of the overall “Rezoning Program,” which 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 Ordinance would make Zoning Map amendments and amend the Zoning Code.
The amendments were 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, which was certified by the City Council on August 11, 2025 (Resolution No. 72-2025). Adoption of the Rezoning Ordinance is the final step that would enable the City‘s 2023-2031 Housing Element to obtain final certification from HCD.
2. Summary of Proposed Zoning Code and Zoning Map Amendments The Rezoning Program requires zoning ordinance amendments (Attachment A, 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 revisions that were made prior to introduction is included as Attachment B for reference.
• New Zoning Districts
Proposed Zoning Districts align with the proposed General Plan Land Use Designations as described below:
Table 2: 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 3: New Articles Added to Zoning Ordinance
Article Topic Summary of Amendments
Article 54 Higher
Density
Establish objective standards for use, such as minimum
residential floor area requirements for MU-# and MU-I-# Districts; 1 Regional Housing Needs Allocation
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August 25, 2025
Residential
and Higher
Density
Mixed-Use
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 4: 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 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 Residential Specifies that new districts are not subject to clustered housing Pacifica City Council 5
August 25, 2025
(Revised) Clustered
Housing
Development
Standards
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 A, Exhibit B).
3. 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 Zoning Code and Zoning Map amendments 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 well as address land use constraints2to 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 actions3that 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.
Specifically, the Rezoning Program addresses the policies in the Council-adopted 2023-2031 Housing Element and implements HE-I-1 by:
Table 5: 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 See Appendix G “Housing Constraints” of the 2023-2031 Housing Element for detailed discussion 3 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
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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.
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: Reduced parking requirements
for two-family and multi-family uses in
newly created districts.
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
4. Next Steps
If the Rezoning Program is adopted by City Council, the next steps include the following:
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• 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 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 would be 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.
On August 11, 2025, at duly noticed public hearing, the City Council adopted Resolution 72- 2025 certifying the Final EIR, adopting CEQA Findings of Fact and a Statement of Overriding Considerations for the significant and unavoidable impacts identified in the EIR, and adopting the Mitigation Monitoring and Reporting Program (MMRP).
PUBLIC COMMENTS:
The City received extensive written public comments during the three Planning Commission public hearings on May 19, June 2, and July 7, and the August 11 City Council public hearing (see background section above), which are available in the respective agenda.
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August 25, 2025
At the time of writing this staff report, staff had not received additional public comment.
RECOMMENDATION:
Suggested Motions:
A. Waive the second reading and adopt 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 A).
ALTERNATIVE ACTION:
The Council could take the following alternative actions, which would delay submittal of the Housing Element to HCD for certification:
• 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 Ordinance.
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 lowand 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.
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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 - Ordinance Approving HE Rezoning Program_250825_FINAL (1) (DOCX) Attachment A - Exhibit A. Proposed Zoning Text Amendments_Clean_250825_FINAL (DOCX)
Attachment A - Exhibit B. Proposed Zoning Maps and Sections_250825 (PDF) Attachment B - Redlined Council Changes Proposed Text Amendments_250825 (DOCX) Pacifica City Council 10 August 25, 2025
ORDINANCE NO. (ID # 6020)
Pacifica City Council 11 August 25, 2025
* * * * *
(ID # 6020) at 8/25/2025 6:00 PM City Council Regular Meeting