CITY COUNCIL STAFF REPORT
Meeting Date: April 21, 2025
TO: THE HONORABLE MAYOR AND CITY COUNCILMEMBERS
TITLE: STUDY SESSION TO REVIEW A PRELIMINARY DRAFT OF THE COMPREHENSIVE UPDATE TO THE CITY’S ZONING
ORDINANCE (PHMC TITLE 18) AND PROPOSED UPDATED
ZONING MAP. THE PROPOSED COMPREHENSIVE UPDATE TO
THE ZONING ORDINANCE IS NECESSARY TO IMPLEMENT
THE GOALS, POLICIES AND PROGRAMS OF THE RECENTLY
ADOPTED 2040 GENERAL PLAN AND 2023-2031 HOUSING
ELEMENT, AS WELL AS TO ADDRESS COMPLIANCE WITH
STATE LAW, AND CLARIFY AND STREAMLINE EXISTING
PROCESSES. THE PROPOSED ZONING MAP INCLUDES THE
REZONING OF CERTAIN PROPERTIES TO COMPLY WITH THE
UNDERLYING GENERAL PLAN DESIGNATION.
SYNOPSIS
The City Council is requested to provide preliminary feedback on a comprehensive update to the City’s Zoning Ordinance (PHMC Title 18), which includes all Parts as follows:
• Part 1 – Enactment and Applicability
• Part 2 – Zoning District Regulations and Development Standards • Part 3 – Regulations Applicable to all Zoning Districts • Part 4 – Permit and Entitlement Processing Procedures • Part 5 – Zoning Ordinance Administration
• Part 6 – Definitions and Land Use Classifications
The proposed comprehensive update is necessary to implement the goals, policies, and programs of the recently adopted 2040 General Plan and 2023-2031 Housing Element, as well as to address compliance with State law, and clarify and streamline existing processes. The proposed comprehensive update includes comments from the Planning Commission and the public from three previous Planning Commission Study Sessions on June 25, 2024, August 27, 2024, and October 8, 2024, and from the City Council Study Session on November 4, 2024.
The City Council is also requested to provide feedback on the updated Zoning Map, which includes the rezoning of certain properties to comply with the underlying General Plan designation.
DISCUSSION
Background
General Plan: The City adopted the 2040 General Plan (“General Plan”) on May 18, 2023. The General Plan is a long-range planning document that guides decision-making and establishes rules and standards for future development and improvements citywide. The General Plan included several implementation programs which outline necessary amendments to the City’s Zoning Ordinance.
Housing Element: The City also adopted the 6th Cycle Housing Element for 2023-2031 on May 18, 2023 (certified by the State on November 22, 2023). Like the General Plan, the Housing Element also included several implementation programs which outline necessary amendments to the City’s Zoning Ordinance.
Multi-Family and Mixed-Use Zoning Ordinance Update: On January 8, 2024, the Pleasant Hill City Council adopted Ordinance No. 967 approving the rezoning of Housing Opportunity Sites identified in the 2023-2031 Housing Element, as well as Zoning Ordinance amendments to residential land use and development standards (Chapter 18.20) and introduced new mixed-use district standards (Chapter 18.22), as well as related changes to other sections of the Ordinance.
Miscellaneous Zoning Ordinance Update: On October 7, 2024, the City Council adopted Ordinance No. 970 amending various portions of the Zoning Ordinance that were determined to be necessary to comply with State law and to clarify and streamline existing processes. The processing of these specific amendments prior to completion of the Comprehensive Zoning Ordinance update ensures that the City’s Zoning Ordinance remains in compliance with required regulations. The ordinance went into effect on November 6, 2024, and has been incorporated into the comprehensive zoning ordinance update.
Comprehensive Zoning Ordinance Update Study Sessions: The Planning Commission has conducted three Study Sessions on the comprehensive zoning ordinance update (June 25, 2024, August 27, 2024, and October 7, 2024). Additionally, the City Council held a Study Session on November 4, 2024. Comments from all four study sessions have been incorporated in the Preliminary Draft Ordinance. Staff Reports from each Study Session have been attached for reference (Attachments Z, AA, BB & CC).
Public Comment Received To Date: A total of 38 written public comments have been received to date (Attachment EE), and a total of 11 members of the public spoke across the four Study Sessions.
Analysis
Proposed Zoning Ordinance Update
Included below is a summary of the most recent modifications to the preliminary draft of the proposed zoning ordinance update in response to the City Council’s feedback. Additionally, for clarity Staff has provided four versions of each Part as follows:
1. Redlined Preliminary Draft: includes all proposed track changes (Attachments A,
E, I, M, Q, U)
2. Redlined Preliminary Draft –Required Changes: includes green highlights indicating proposed changes that reflect requirements of State Law, the City’s General Plan, and Housing Element (Attachments B, F, J, N, R, V)
3. Redlined Preliminary Draft – Best Practices: includes yellow highlights representing proposed changes that reflect best practices and are subject to the discretion of the City Council (Attachments C, G, K, O, S, W)
4. Clean Preliminary Draft: a clean version incorporating all proposed changes (Attachments D, H, L, P, T, X)
1. Enactment and Applicability (Proposed Part 1)
Part 1 of the proposed Zoning Ordinance includes chapters related to Purpose and Organization (Chapter 18.05), and Applicability and Interpretation (Chapter 18.10), of the Ordinance. Part 1 includes a revised “Organization of the Zoning Ordinance” (Chapter
18.05.030) section that reflects a proposed Ordinance outline.
The changes proposed to this Part are primarily minor in nature to clarify and refine the City’s existing provisions. There have been no changes to Part 1 since the previous City Council Study Session.
2. Zoning District Regulations and Development Standards (Proposed Part 2) Part 2 of the proposed Zoning Ordinance will include all zoning district regulations and development standards for the following districts:
• Residential
• Mixed-Use
• Commercial, Office, and Industrial
• Planned Unit Development (PUD) and Precise Plan Districts (PPD) • Hillside Planned Unit Development (HPUD)
• Overlay Districts
• Parks and Recreation Zoning District
• Open Space Zoning District
Residential Zoning Districts: In response to several public comments received, the City Council requested that Staff explore reduced front setbacks for single-family zones (currently 20 feet) because the front property line for many properties in Pleasant Hill is located several feet behind the paved portion of the street on what appears as front yards of homes. Staff has not proposed any further changes, as currently, property owners can apply for a minor exception to reduce the front yard setback from 20 feet to 16 feet, subject to certain findings (e.g., no practical alternative exists (existing PHMC Section
18.111.040)). If the City Council desires additional flexibility without requiring that homeowners seek approval of an exception, Staff requests that direction from the Council, including when reduced front setbacks may be appropriate, and by how much.
Mangini Delu Residential Zones: The City Council had the following comments related to the Mangini Delu property at the previous Study Session:
1. Consider a single zone (instead of two zones) for the entire Mangini Delu site.
2. Include language referencing a “comprehensive master plan” requirement into the description of the new Mangini Delu zone.
In response, Staff has eliminated the two separate zones in favor of a single “Mangini Delu Residential Zoning District (RMD)” encompassing the entire site. Additionally, new language was added to the purpose of the zone, as follows: “Allowed uses and development standards in the RMD zoning district shall be established in a comprehensive, sitewide master plan to be approved prior to any development onsite, unless otherwise provided in this Chapter.”
Mixed-Use Districts: In response to comments received by the City Council at the Study Session, Staff has removed the provision requiring buildings that incorporate over 10,000 square feet of office space provide eating facilities for employees.
Park and Recreation Zoning District: The City Council had the following comments or questions related to the proposed Park and Recreation Zoning District at the previous Study Session:
1. Include language referencing the Recreation and Park District’s role and review process.
2. Add clarification for the process and height requirements for accessory structures (e.g., field lights).
3. How is noise addressed on parks adjacent to residential uses?
4. Clarify parking requirements for Rec & Park facilities.
In response, Staff has added language to the purpose and intent section of the Chapter (Proposed 18.42.010.B) outlining the structure and role of the Pleasant Hill Recreation and Park District (Rec & Park) to clarify that the Rec & Park has its own review process and procedures. Activities that are determined to be exempt from the section would still be subject to the District’s applicable process and procedures.
In response to comments from the District, the “Exempt Activities” section was amended to clarify that all maintenance and repairs to both landscaping and buildings are exempt activities. Additionally, tree removals are also exempt. The Land Use Regulations Table (Table 18.45-1) was amended to clarify that the maximum building and accessory structure height for the zone is 35 feet. Additionally, clarifying language was added to the “Required Permits and Entitlements” section noting that a zoning permit is required for any new accessory structure (e.g., field lights and play equipment).
Potential noise generated by District facilities would continue to be subject to the City’s noise standards contained in Part 3, Section 18.75.020. Finally, the off-street parking and loading standards applicable to Park and Recreation Facility uses were updated to defer to the Zoning Administrator (Part 3, Section 18.70.030) allowing the City to review parking requirements on a case-by-case basis. For new facilities, or significant modifications to existing facilities, the Zoning Administrator could require a parking assessment to determine the appropriate parking requirements.
Open Space Zoning District: In response to comments received by the City Council at the Study Session, Staff has eliminated the proposed development standards for the Open Space Zoning District (previously proposed development standards mirrored single-family residential development). Instead, development standards will be established by the Zoning Administrator on a case-by-case basis to ensure the purpose and intent of the Open Space zone are met.
3. Regulations Applicable to all Zoning Districts (Proposed Part 3) Part 3 of the proposed Zoning Ordinance includes general provisions that apply to all zoning districts as follows:
• General Site and Development Standards
• Adult Businesses
• Cannabis
• Creek Setbacks
• Fences, Walls, and Screening
• Off-Street Parking and Loading
• Performance Standards
• Signs
• Tree Preservation
• Water-Efficient Landscaping
• Wireless Telecommunications
Besides updating the parking requirements for Park and Recreation Facilities as mentioned above (Section 18.70.030), there have been no changes to Part 3 since the previous City Council Study Session. For a summary of all proposed changes to Part 3, please refer to Attachments I-L.
4. Permit and Entitlement Processing Procedures (Proposed Part 4) Part 4 of the proposed Zoning Ordinance outlines the processing procedures for all permits and entitlements that are required by provisions of the Zoning Ordinance as follows:
• Adult Use Development Permit
• Architectural Review Permit
• Development Plan Permit
• Minor Exception
• Reasonable Accommodation
• Sign Permit
• Temporary Sign Permit
• Master Sign Program
• Use Permit
• Temporary Use Permit
• Variance
• Zoning Permit
There have been no changes to Part 4 since the previous City Council Study Session. For a summary of all proposed changes to Part 4, please refer to Attachments M-P.
5. Zoning Ordinance Administration (Proposed Part 5)
Part 5 of the proposed Zoning Ordinance establishes the general administrative authority and procedures for decision making of the Zoning Ordinance. This includes Chapters related to:
• General Provisions
• Amendments – General Plan, Zoning Ordinance, and Zoning Map • Appeals and Calls for Review
• Development Agreement
• Enforcement
• Nonconforming Provisions
• Notice Requirements
At the previous City Council Study Session, the Council requested that the proposed appeal language be modified so that all projects remain appealable to the City Council (thus eliminating the previously proposed limit on the number of appeals).
In response, Staff has amended the proposed language in Section 18.175.020.B (Right to Appeal, Call for Review, Time Limits) to allow any decision of the Planning Commission or Architectural Review Commission to be appealed to the City Council, regardless of the number of previous appeals.
6. Definitions and Land Use Classifications (Proposed Part 6) Part 6 of the proposed Zoning Ordinance includes definitions of all Land Use Classifications and Definitions of terms used throughout the ordinance. These Chapters are currently located in separate Parts of the ordinance; Staff proposes combining them into a single Part with this update to improve usability.
There have been no changes to Part 6 since the previous City Council Study Session. For a summary of all proposed changes to Part 6, please refer to Attachments U-X.
For a substantive summary of all proposed modifications, please see the City Council Staff Report from November 4, 2024 (Attachment CC).
Update to the Zoning Map
The City is also proposing to
rezone several parcels
throughout the City. The
primary reason for the
rezoning is to have properties
consistent with the recently
approved 2040 General Plan.
The proposed rezonings will
also facilitate
implementation of the
proposed comprehensive
zoning ordinance update. For
the purposes of this Staff
Report, the proposed zoning
map has been broken up into
four quadrants (Quadrant A –
northwest portion, Quadrant
B – northeast portion,
Quadrant C – southeast
portion, Quadrant D –
southwest portion) to guide
discussion.
Below is a summary of areas
of the City proposed for
rezoning. The comprehensive
proposed rezoning map is
included as Attachment Y:
Key:
A. Quadrant A (Northwest portion of the City)
• Several park/open space areas, all currently owned by the Rec & Park District, will be rezoned to the new Parks and Recreation zone. This includes the open space surrounded by the Elderwood Drive and Skyview Drive neighborhoods, Paso Nogal Park, and Shannon Hills Park.
• The Ridgeview Drive neighborhood is proposed to be rezoned from Low Density Multi-Family Residential (MFL) to Very Low Density Multi-family Residential (MFVL) to comply with the Multi-Family Very Low Density (MFVLD) General Plan Designation.
• The property at the end of Janin Place will be rezoned from Single-Family R-20 to R-10 to comply with the Single-Family Medium Density General Plan Designation. • The Mangini Delu property will be rezoned from Single-Family R-10 to the new Mangini Delu Residential District (RMD).
• The multi-family development at Devon Avenue and Oak Brook Place will be rezoned from MFL to MFVL to comply with the MFVLD General Plan designation.
• Several properties along Donegal Way and Donegal Court will be rezoned from Single-Family R-10A to MFL to comply with the MFL General Plan Designation.
B. Quadrant B (Northeast portion of the City)
• Several park/open space areas, all currently owned by the Rec & Park District, will be rezoned to the new Parks and Recreation zone. This includes the open space surrounded by the Camelback Road multifamily development (north of Chilpancingo Parkway), Chilpancingo Park, Las Juntas Park, Frank Salfingere Park, and Pleasant Hill Park.
• The Camelback Road and Scottsdale Road multifamily development (north of Chilpancingo Parkway) will be rezoned from MRL to MFVL to comply with the MFVLD General Plan designation.
• Diablo Valley Plaza (on the northeast corner of Golf Club Road and Old Quarry Road) is proposed to be rezoned from Retail Business (RB) to Mixed-Use (MX) to comply with the Mixed-Use General Plan designation
• The existing Single-Family R-7 neighborhood between Contra Costa Boulevard (west), Marta Drive (east), Anelda Drive (south) and Beth Drive (north), will be rezoned from R-7 to Mixed-Use to comply with the MX General Plan designation. • Several properties along Contra Costa Boulevard between Vivian Drive and Harriet Drive, currently zoned RB, R-7, or Professional and Administrative Office (PAO), will be rezoned to Mixed-Use to comply with the MX General Plan designation. • The John F. Kennedy University property (east of Ellinwood Way) will be rezoned from PAO to Mixed-Use Very High Density Residential (MX-VHD) to comply with the MXVHD General Plan designation.
C. Quadrant C (Southeast portion of the City)
• Several park/open space areas, all currently owned by the Rec & Park District, will be rezoned to the new Parks and Recreation zone. This includes Pleasant Hill Park and Pleasant Oaks Park.
• Several properties on the north and south sides of Gregory Lane will be rezoned from R-7 to Neighborhood Mixed Use (MX-NB) to comply with the Mixed-Use Neighborhood General Plan designation.
• The existing PUD 410 along Cleaveland Road, north of Astrid Drive will be rezoned to Medium Density Multi-Family Residential (MFM) to comply with the MFM General Plan designation. PUD 410 is a “shell” PUD and contains no specific land use or development standards. Therefore, any future development is already subject to the MFM land use and development standards.
• Several parcels along the south side of Oak Park Boulevard between Patterson Boulevard (west) and the east side of Pleasant Valley Drive (east), and the north side of Oak Park Boulevard near the Patterson Boulevard intersection are proposed to be rezoned from R-10, MRL, PAO, NB, or RB to MX-NB to reflect the new Mixed Use Neighborhood General Plan designation.
• Several properties on either side of Douglas Lane, south of Oak Park Boulevard, and on the north side of Oak Park Boulevard west of Hook Avenue will be rezoned from MFL to MFVL to comply with the MFVLD General Plan designation.
D. Quadrant D (Southwest portion of the City)
• Several park/open space areas, all currently owned by the Rec & Park District, will be rezoned to the new Parks and Recreation zone. This includes Rogers Smith Park, Dinosaur Hill Park, and the School House property.
• Two parcels near the intersection of Pleasant Hill Road and Gregory Lane are proposed to be rezoned from NB to MX-HD to comply with the MX-HD General Plan designation. The surrounding parcels also located within the MX-HD General Plan designation were previously rezoned to MX-HD, as they were identified in the City’s Housing Element.
• The existing development on the south side of Barnett Terrace, currently zoned MFM will be rezoned to MFL to comply with the MFLD General Plan designation.
FISCAL IMPACT
None.
PUBLIC CONTACT
Public contact was made through posting of the City Council agenda on the City’s official notice bulletin board and at the Pleasant Hill Senior Center. In addition, a notice was published in the Contra Costa Times Newspaper on March 31, 2025, and published on the City Hall electronic sign as well as A-Frames at the Police Station and Pleasant Hill Library. Notice of the meeting has also been posted on the City website, and the City’s pleasanthill2040.com website. Finally, the agenda and staff report were posted on the City’s web page.
RECOMMENDED CITY COUNCIL ACTION
No formal action is required. Staff recommends that the City Council review the Preliminary Draft of the comprehensive zoning ordinance update and proposed updates to the Zoning Map and provide feedback to Staff for inclusion in the Public Review Draft Ordinance and updated Zoning Map.
ATTACHMENTS (blue color provided for visual organization of Parts only) A Part 1 - Enactment and Applicability (Redlined Preliminary Draft) B Part 1 - Enactment and Applicability (Redlined Preliminary Draft – Required Changes) C Part 1 - Enactment and Applicability (Redlined Preliminary Draft – Best Practices) D Part 1 - Enactment and Applicability (Clean Preliminary Draft) E Part 2 - Zone District Regulations and Development Standards (Redlined Preliminary Draft) F Part 2 - Zone District Regulations and Development Standards (Redlined Preliminary Draft – Required Changes)
G Part 2 - Zone District Regulations and Development Standards (Redlined Preliminary Draft – Best Practices)
H Part 2 - Zone District Regulations and Development Standards (Clean Preliminary Draft) I Part 3 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft) J Part 3 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft – Required Changes)
K Part 3 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft – Best Practices)
L Part 3 - Regulations Applicable to all Zoning Districts (Clean Preliminary Draft) M Part 4 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft) N Part 4 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft – Required Changes)
O Part 4 - Regulations Applicable to all Zoning Districts (Redlined Preliminary Draft – Best Practices)
P Part 4 - Permit And Entitlement Processing Procedures (Clean Preliminary Draft) Q Part 5 - Zoning Ordinance Administration (Redlined Preliminary Draft) R Part 5 - Zoning Ordinance Administration (Redlined Preliminary Draft – Required Changes) S Part 5 - Zoning Ordinance Administration (Redlined Preliminary Draft – Best Practices) T Part 5 - Zoning Ordinance Administration (Clean Preliminary Draft) U Part 6 - Definitions and Land Use Classifications (Redlined Preliminary Draft) V Part 6 - Definitions and Land Use Classifications (Redlined Preliminary Draft – Required Changes)
W Part 6 - Definitions and Land Use Classifications (Redlined Preliminary Draft – Best Practices)
X Part 6 - Definitions and Land Use Classifications (Clean Preliminary Draft) Y Proposed Zoning Map
Z June 25, 2024 Planning Commission Study Session Staff Report (no attachments) AA August 27, 2024 Planning Commission Study Session Staff Report (no attachments) BB October 8, 2024 Planning Commission Study Session Staff Report (no attachments) CC November 4, 2024 City Council Study Session Staff Report (no attachments) DD Public Comments (all received to date)
EE Public Notice
FF Public Comments received 3.31.2025-4.16.2025
Prepared by: Haley Croffoot, Senior Planner
Reviewed by: Troy Fujimoto, City Planner
Approved by: Ethan Bindernagel, City Manager