TO: HONORABLE MAYOR
AND CITY COUNCIL
FROM: Christopher Burton
SUBJECT: Citywide Planning Work
Plan Prioritization
DATE: October 9, 2026
Approved Date:
10/9/26
COUNCIL DISTRICT: Citywide
RECOMMENDATION
(a) Adopt the current proposed prioritization of the Citywide Planning work plan through December 2027 based on existing City Council direction; or (1) Reconsider past direction and adopt a different alternative such as Alternative 1 Single Density for Missing Middle, or Alternative 2 Council Priorities Emphasis.
(b) Direct staff to return in November 2028, and annually thereafter, to prioritize the Citywide Planning work plan through the next 18-month period.
SUMMARY AND OUTCOME
The methodology, key considerations, and detailed analysis and trade-offs associated with each option are described further below in the report. Based on the methodology and key considerations, staff is proposing three options for City Council consideration and City Council action:
Current Proposed Work Plan: Maximizes analysis and flexibility by evaluating the three City Council-directed Missing Middle densities, but delays implementation and creates greater legal, funding, and Housing Element schedule risks.
Alternative 1 – Single Density Option: Balances Four-Year Review priorities with risk management by selecting one Missing Middle density and maintaining the 2027 implementation timeline, but requires deferring several City Council priorities.
Alternative 2 – Council Priorities Focused Option: Maximizes progress on City Council priorities, but delays Missing Middle and other Four-Year Review work, resulting in the highest legal, fiscal, and schedule risk.
COUNCIL AGENDA: 10/20/26
FILE: 26-1079
ITEM: 8.1
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
Following City Council action, staff will implement the approved work plan.
BACKGROUND
The Citywide Planning team manages and supports land use policy and ordinance efforts within Planning, Building and Code Enforcement (PBCE), including the ongoing evolution of the Envision San José 2040 General Plan, adoption and implementation of the Housing Element, area and specific plans, and urban villages. In addition, Citywide Planning is responsible for the City's ordinances and policies that relate to land use and urban planning, including the Zoning Ordinance, Sign Ordinance, Citywide Design Standards and Guidelines, and various City Council Policies. The team is also responsible for monitoring and maintaining data relating to permits and development in the City, forecasting development trends to inform the City’s Budget, and monitoring and responding to both pending and recently adopted state legislation. Much of the Citywide Planning team’s work is mandated by state law, such as the Housing Element, or implementing new state laws, such as ongoing updates around Accessory Dwelling Units (ADUs). Other work on the team includes City Council’s priorities, such as changes to the Zoning Ordinance to implement process improvements and establish a clear local regulatory framework for development.
As part of the FY 2026–2027 Adopted Budget, City Council directed staff through Manager’s Budget Addendum #24 to evaluate Citywide Planning’s workload, staffing, and long-term funding needs and return with a framework to prioritize the work plan.
The analysis found that the Citywide Planning work plan exceeded available staff capacity by approximately 3.3 full-time equivalent (FTE) positions, even after the addition of one Planner position, with approximately 90 percent of planned work driven by state mandates or state requirements. In response, staff committed to return to City Council with a prioritization framework that identifies the choices, tradeoffs, risks, and schedule implications associated with aligning the Citywide Planning work plan with available resources. This report presents alternatives for prioritizing staff resources and sequencing work from October 2026 through December 2027.
Given the variety of items on this team’s work plan, the report contains a prioritization exercise and outlines in this report information that is intended to support the City Council in making choices about the team’s work plan through December 2027, including which items should proceed, be deferred, narrowed in scope, sequenced differently, or potentially removed.
The Citywide team has also implemented technological changes by integrating new tools in project management for tracking staff hours against project deliverables and milestones. Generating and using this data over time will continue to help refine the assumptions that go into the prioritization exercise in coming years.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
ANALYSIS
The proposed approach to the prioritization exercise included the following key considerations:
• Cover staff time from October 2026 through December 2027. Staff recommends this planning horizon because it provides the most complete view of the nearterm workload, including multiyear projects already underway, anticipated statemandated work, key deadlines, and the timing implications of advancing or deferring City-initiated priorities.
• Create a framework to support City Council in making choices on which items should proceed, be deferred, narrowed in scope, sequenced differently, or potentially removed, based on clear tradeoffs and risks. • Timing is essential to prepare for the 7th Cycle Housing Element update starting in January 2028. Teeing up the work plan now ensures completion of the Housing Element by June 2030, to achieve full State compliance before the January 2031 statutory deadline to prevent loss of local control on zoning and permitting.
• The level of effort for each project type can be significant and can vary depending on the scope and outreach. Please see the example case study below for additional details.
Citywide Planning Work Plan Prioritization Methodology
To develop the Citywide Planning work plan options, staff first evaluated each current and proposed work plan item using a four-category prioritization framework (Table 1).
The framework focuses on the consequences of not advancing a work item during the planning period. This initial categorization provided a consistent basis for organizing the work plan and developing capacity-balanced options. Staff focused first on protecting work in Categories 1 and 2, which include items with fixed legal or funding deadlines or material legal or fiscal exposure. Staff then evaluated work in Category 3, which includes City Council-directed work where deferral would have clear near-term policy, community, or service-delivery impacts. Items in Category 4 were evaluated based on their timing and ability to be deferred or re-sequenced while maintaining a work plan within available staff capacity. This initial categorization provided a consistent basis for organizing the work plan and developing capacity-balanced options.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
Table 1. Prioritization Framework
Category Priority Basis for categorization Implication for work plan 1 Highest
Fixed external legal or binding
funding requirement with a fixed
effective date or deadline.
Must be prioritized; noncompletion creates a high risk of missed compliance obligations
or reduced budgeted funding or
revenue.
2 High
External legal requirement with
less certain or less fixed timing;
may involve significant legal
exposure, fiscal impact, or
funding/grant eligibility.
Prioritize and actively manage;
there may be more flexibility in
sequencing or mitigation than
for Category 1.
3 Medium
City Council directed work with
a clear near-term policy,
implementation, community, or
service-delivery impact, if not
advanced during the planning
period. This includes highly
anticipated work with an
identified need for near-term
action, but no fixed external
legal or funding deadline.
Prioritize following Category 1
and 2. Delay may affect
implementation of City Council
direction or near-term policy
outcomes, but does not create
the same legal or funding risk
as higher-priority work.
4 Defer
Work with no near-term legal,
directional, or timing
consequence
Candidate for deferral, scope
adjustment, or resequencing
during the current planning
horizon; the item remains a
valid policy objective and may
be reconsidered through future
annual work plan prioritization.
To support City Council’s prioritization of the Citywide Planning work plan, staff developed a Current Proposed Work Plan based on the most recent August 18, 2026, City Council direction and two alternatives: Alternative 1—Single Density for Missing Middle and Alternative 2—City Council Priorities Emphasis. Building on the fourcategory prioritization framework, each option identifies associated tradeoffs, risks, and potential implications related to statutory requirements, funding, City Council direction, and sensitive timelines. They provide the City Council with a clear and accessible way to evaluate competing priorities and make informed decisions about the sequencing and scope of Citywide Planning work.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
Each work plan has been structured not to exceed available staff capacity1 and evaluates the period from the present through December 2027, with the deferred items potentially extending into FY 2027-2028.
In developing the proposed work plan and the alternatives, staff applied the fourcategory prioritization framework to each work item and evaluated available capacity across Citywide Planning’s five specialized teams (General Plan, Housing, Ordinance and Policy, Transit-Oriented Communities, and Urban Village Planning). While some assignments can be shifted across teams, much of the work requires specialized expertise, institutional knowledge, and continuity within the team responsible. Therefore, each work plan is balanced both at the division level and, to the extent practicable, within the teams responsible for delivering the work; capacity in one team cannot always be redirected to another work area without implications for efficiency, quality, or schedule.
The Current Proposed Work Plan and Alternative 1 generally prioritize work in Categories 1 and 2, which includes items with fixed legal or funding deadlines or material legal or fiscal exposure. They also evaluate City Council-directed work in Category 3 based on whether deferral would have clear near-term policy, community, or service-delivery impacts. Items in Category 4 may be included where capacity permits and where time-sensitive benefits warrant advancement; otherwise, they may be deferred, narrowed in scope, or resequenced without creating near-term consequences.
Alternative 2, however, proposes deferring, narrowing, resequencing, or otherwise adjusting certain Category 1 or 2 work in order to create additional flexibility or capacity for City Council priorities. This option does not eliminate the underlying legal, fiscal, funding, or compliance considerations; rather, it highlights the tradeoffs associated with each approach.
The Ordinance and Policy team has the greatest number of City Council priorities, state mandated ordinance changes, and General Plan Four-Year implementation items on its work plan. To highlight the complexity of this team’s work, the following case study provides insight into the necessary steps of a typical ordinance amendment project. The scope of an ordinance amendment is greatly expanded depending on the depth of background research, quantitative or mapping analysis, and outreach and engagement necessary to identify the optimum approach.
Case Study: ADU Condominium Ordinance Update
The following case study of a targeted and specific update to the Zoning Ordinance illustrates the timeline and procedural and legal steps to undertake land use planning code and policy changes.
1 Staff capacity includes new Planner I/II/III position funded as part of the FY 2026-2027 Adopted Budget.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
In December 2023, City Council directed staff to return as soon as possible with an ordinance to allow ADUs to be sold as condominiums pursuant to AB 1033. This ordinance required the full attention of one Planner and oversight from a Supervising Planner and a Division Manager. The entire process took six months to complete. Work included the following:
Technical analysis and drafting: Research relevant state laws and regulatory requirements, and experience from other jurisdictions. Conduct meetings with industry stakeholders.
Interdepartmental Coordination: Condominiums are approved by the Public Works Department, therefore, Planning staff coordinated inter-departmentally to ensure a common understanding of the proposal, finalize the draft ordinance, and establish application processing procedures. Planning staff also coordinated with the Fire Department, who had access and safety concerns about the proposal that needed to be addressed, and with the City Attorneys since code amendments are a legislative process.
Public Outreach: Following the standard outreach process for this type of ordinance change, staff developed, posted, and regularly updated a project webpage. A virtual community meeting was held for which Planning staff secured interpreters, prepared and posted the public notice, developed the presentation, and managed technical logistics related to the webinar.
Draft Ordinance: Based on the results of the technical analysis, stakeholder and community input, staff prepared an initial draft ordinance that was reviewed by internal implementation teams, the Public Works Department, the Fire Department, and the City Attorney’s Office.
Airport Land Use Commission: Pursuant to state law, all zoning updates that affect property within an airport influence area must be referred to the Airport Land Use Commission (ALUC) for a determination of consistency with the Comprehensive Airport Land Use Plan adopted by the County of Santa Clara. State law provides the ALUC 60 days to make its determination. Thus, the draft ordinance must be complete and fully vetted for submittal to the ALUC at least two months before the planned City Council action.
Planning Commission and City Council hearings: The draft ordinance was scheduled for public hearings before the Planning Commission, which makes a recommendation to City Council. Final action is taken by City Council over two meetings. Preparation for these meetings included drafting staff reports, answering questions from the public and stakeholders as the draft is released for public review, Councilmembers briefings, and answering press inquiries.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
Post adoption implementation: For this ordinance, staff had to develop a new webpage with information for applicants, develop new application forms, and update the permitting software for this new application type, provide training for front-line staff, answer questions from applicants who wish to use the new process, and monitor how application processing is going to learn lessons and identify any areas for future improvement.
Because of this ordinance’s narrow scope and inclusion in an ADU compliance update that was already planned, this work was completed in six months (June 2026), making San José the first jurisdiction in the state to allow ADU condominium sales.
In comparison, it took other jurisdictions between eight and 20 months to complete the same updates. Staff regularly identify areas where work may be combined for efficiency, which is reflected in the work plan options discussed below. More complex ordinances that require additional technical analysis, technical consultants, environmental review, and/or additional public outreach can take up to a year or more to complete.
This case study underscores a critical principle of the broader work plan prioritization exercise: even narrow, focused policy initiatives that may appear easy on the surface can require dedicated staff resources, interdepartmental review, legal coordination, and mandatory public processes. Since these projects have a longer-term horizon of six months to two years, depending on the scope, adding new initiatives can create immediate work plan repercussions across the division. The ADU Condominium update illustrates why a structured prioritization framework, and deliberate decisions regarding project sequencing and capacity, is essential to ensuring the City can deliver on City Council priorities without jeopardizing state mandates or multi-year policy commitments.
Therefore, staff recommends conducting this prioritization exercise each year in November, or at any time should significant issues arise with the Citywide Planning Division’s work plan. Any items added to the work plan, including state law changes, through the City’s Budget process, or City Council referrals, can then be considered in totality to receive direction by City Council.
Overview of Citywide Planning Work Plan Options
Staff developed three work plans that outline different approaches to completing work through December 2027. Each option varies in terms of risk to legal or fiscal impacts on the City, and how much of the Four-Year Review Policy Framework can be completed.
A central part of the risk analysis is the City’s ability to initiate and produce a compliant Housing Element for the 7th cycle; work on this policy effort should begin in 2028 to avoid delays. A non-compliant Housing Element has significant impacts on local jurisdictions, including financial penalties, loss of local permitting authority, and the imposition of Builder’s Remedy projects. Conversely, a certified housing element brings with it eligibility for numerous state and regional funding sources for housing, transportation, and open space.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
The following section provides an overview of each work plan, including the focus of the work, tradeoffs, and level of risk. A complete project list including a description, team, category, and risk can be found in Attachment A.
Current Proposed Work Plan –General Plan Four-Year Review City Council Recommendations
The current proposed work plan (Attachment B) advances work directed by the City Council at the August 18, 2026, meeting on the General Plan Four Year Review Policy Framework. This work plan includes analysis on the full range of Missing Middle density levels recommended by City Council to be studied further (i.e., 16 dwelling unit per acre (du/ac), 24 du/ac, and 32 du/ac). However, analyzing three densities would delay multiple significant policy items related to the Four-Year Review, including the associated Comprehensive Zoning Update, Design Guidelines, and Missing Middle Density Bonus program. These work items depend on having a defined density target since producing three separate zoning ordinances, design guidelines, and density bonus programs would require significant staff resources, impacting other projects.
Additionally, the work on Residential Capacity to prepare for the 7th Cycle Housing Element cannot advance until a density is set for Missing Middle housing. The RN Residential Neighborhood density (whether it is 16, 24, or 32 du/ac) will establish the density ranges for the MUN Mixed Use Neighborhood and UR Urban Residential land use designations.
To refine and analyze density levels, the Housing Team would initiate additional public outreach and require consultant assistance to create visualizations of what various levels of development could look like. The Missing Middle Density Bonus program would also require external consultant support, as the necessary research exceeds internal planning expertise. Staff would return to City Council during the Annual Budget process to request funding for this work. Staff would also propose returning to City Council, anticipated in August 2027, to present the density analysis and seek City Council action to select a final density for Missing Middle housing. Following City Council action on the final density, staff would initiate work on zoning ordinance changes, new design guidelines, and a density bonus program. The various steps in implementation of a Missing Middle housing approach is an example of the sequential nature of the long-range planning work.
In addition to implementing portions of the Four-Year Review Policy Framework, the current proposed work plan will allow staff to complete or continue work on the following items:
1) Housing Element programs, such as updates to City Council Policy 6-30 (a reduced scope of work with limited opportunity for community outreach) and the Development Fee Framework;
2) Three Urban Village plans which staff have already spent significant time and resources towards, including the expenditure of grants;
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
3) The Safety Element update (with consultant support) and compliance towards the Metropolitan Transporation Commission (MTC)’s Transit Oriented Communities policy that may carry significant legal risk if not accomplished or risk to funding/grants. For example, the One Bay Area Grant 5 (OBAG) can provide access to as much as $61 million in future local transportation funding. Local OBAG funding supports pavement maintenance, Safe Routes to School projects, bikeways, pedestrian-safety improvements, signal upgrades, and complete-streets projects; 4) Downtown Ministerial Ordinance, Sign Ordinance updates, detention center moratorium and analysis, and data center definition and standards.
Tradeoffs
Delaying the Missing Middle work stream, as noted above, will free up capacity to work on Vape Shop Zoning changes, which has been deferred the longest amongst City Council priorities, and begin work on PQP Framework-related general plan amendments.
Under this option, the following projects will be deferred, meaning no work will begin during the timeframe of this work plan:
• Advanced manufacturing
ministerial approval
• Child Care policy
• Vacant Storefronts analysis
• North San José Overlays 2.0
• Ministerial approval for AB 130
developments
• Community Planning Guide
• Subsidizing SUPs for PQP uses
• Missing Middle – Density Bonus
Program
• Missing Middle - Downtown Pilot
Program
• Outdoor Vending
Overall, this proposed work plan carries some risk in terms of meeting legal requirements and funding opportunities, as it would result in a significant delay in the implementation of the Missing Middle program beyond December 2027. As it currently stands, the City is overdue in the implementation of the program, as we committed to a completion date of 2026 in the 2023-2031 Housing Element (Policy P-35).
Implementing this work plan will delay staff’s ability to initiate critical work on the 7th Cycle Housing Element in early 2028, risking the timeline for City Council adoption.
Alternative 1 —General Plan Four-Year Review Single-Density Alternative 1 (Attachment C) focuses on completing items from the Four-Year Review Policy Framework, including some, but not all new items directed by City Council during the August 18, 2026, meeting. A key difference between the current proposed work plan and Alternative 1 is evaluating only one density for Missing Middle. Overall, this work plan provides the least amount of risk with external legal requirements and potential fiscal impacts (i.e., 6th Cycle Housing Element), as it would ensure completion of Missing Middle Housing by December 2027.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
Should City Council choose to further refine their direction based on staff capacity constraints around one density for Missing Middle housing, staff recommends analyzing and developing standards for a 24 du/ac density.
In addition to implementing the majority of the Four-Year Review Policy Framework, this option will allow staff to complete policy work similar to the current proposed work plan, such as an update to City Council Policy 6-30, the Development Fee Framework, Urban Village plans, the Safety Element, and continue MTC’s Transit Oriented Communities policy.
Tradeoffs
Tradeoffs will be required to complete the work proposed in Alternative 1. Under this option, the following projects will be deferred:
• Child Care policy
• Advancing a manufacturing
ministerial approval
• Vape Shop zoning changes
• Vacant Storefronts analysis
• Outdoor Vending
• PQP Framework – GPAs
• North San José Overlays 2.0
• Ministerial approval for AB 130
developments
• Community Planning Guide
• Subsidized SUPs for PQP uses
Overall, Alternative 1 is the staff preferred option as it provides the least risk in terms of meeting legal requirements and funding opportunities. Completing major work plan items like Missing Middle and other Four-Year Review policies ensures staff can initiate work on the 7th Cycle Housing Element in early 2028.
Alternative 2 –City Council Priorities Emphasis
Alternative 2 (Attachment D) varies significantly from the previous options in that it defers implementation of Missing Middle Housing/Four-Year Review work, delays the completion of updates to elements of the General Plan, and instead focuses the work plan on completing City Council priorities. This option presents the highest risk in terms of legal and fiscal implications.
In this scenario, the work on analyzing the full range of Missing Middle density levels will continue, however, in lieu of completing other key policy items to implement Missing Middle and the Four-Year Review Policy Framework, staff would work on the following City Council priorities:
1. Child Care Policy
2. Vape Shop Zoning changes
3. Vacant storefront analysis
4. Advanced manufacturing ministerial approval
5. Community Planning Guide
6. Outdoor Vending
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
This work plan also allows for a wider scope of work related to City Council Policy 6-30 updates. Staff can dedicate more time to engage members of the public and key stakeholders to help inform the development of the policy.
Tradeoffs
A work plan focusing on City Council priorities will place specific items on a path towards a longer completion timeline, such as the Safety, Open Space, and Environmental Justice Elements, technical updates to the General Plan and Four-Year Review policy work related to residential capacity.
Under this option, the following projects will be deferred:
• Missing Middle Comprehensive
Zoning Update
• Missing Middle Design
Guidelines
• Missing Middle Density Bonus
program
• Missing Middle GP Technical
changes/updates
• Missing Middle Downtown Pilot
program
• GP Four-Year – Retail in
Residential Neighborhood
• Subsidizing SUPs for PQP uses
• North San José Overlays 2.0
• Ministerial approval for AB 130
developments
• GP Four-Year – Residential
Capacity
Overall, this option presents the highest risk to the City as it delays critical, timesensitive work related to the Four-Year Review. Under this scenario, completion of the Missing Middle program would likely not occur until the end of 2028.
Increasing Staff Capacity
The prioritization exercise highlights the limitations of existing staff capacity in responding to City Council-directed policy work, particularly in zoning ordinance work, when state mandates continue to drive a major portion of the Citywide Planning team’s work plan. In 2026, 300 of the 1800 bills considered by the legislature were Planning related. Since staff does not foresee a reduction in state mandates in the near future, one way to address the workload issue is to create additional capacity through a second Ordinance team within Citywide Planning.
The Ordinance team has the highest backlog of priority work directed by City Council and is unable to fully support state mandated work. Additional capacity in this team could be created by adding one Supervisor (Planner IV) and one additional planner (Planner I/II/III).
Each of the work plan options presented in this report is designed to be delivered within existing staff capacity, including the 1.0 Planner position approved in June 2026. The proposed addition of a Planner IV (Supervisor) and an additional Planner I/II/III to form a
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
second Ordinance team would not be required to complete the baseline work plans; rather, these positions would allow the City to advance currently deferred City Council priorities and build necessary capacity prior to the 7th Cycle Housing Element launch in 2028.
Funding options for such a team will be explored as part of the FY 2027-2028 annual budget cycle. Staff will return to the City Council with final recommendations regarding increased staffing on the Citywide Planning team as part of the Citywide Planning fee update that was directed through the FY 2026-2027 budget.
EVALUATION AND FOLLOW-UP
Staff recommends establishing Citywide Planning work plan prioritization as an annual activity to occur each November, or sooner, should significant changes necessitate an earlier date. An annual process would enable the City Council to review the work plan in advance of the subsequent budget cycle, account for new state requirements, emerging City Council priorities, staffing changes, and project progress; and make transparent adjustments to the scope, timing, or sequencing of Citywide Planning initiatives as necessary. This recurring process would help keep the work plan aligned with available resources while preserving flexibility to respond to changing priorities and legal obligations. This approach will allow any new policy work introduced by City Council throughout the year to be considered within the full context of the work plan priorities.
FISCAL IMPACTS
Adopting any of the work plan options presented in this memorandum has no immediate fiscal impact on the FY 2026–2027 Operating Budget, as all proposed activities fit within existing budgeted resources and staff allocations.
As part of the FY 2027–2028 annual budget process, staff will explore a further fee increase and evaluate long-term staffing and funding needs based on a comprehensive review of the work plan. Potential staffing enhancements discussed in this memorandum, specifically 1.0 Planner IV and 1.0 Planner I/II/III to establish a second Ordinance team will be considered.
COORDINATION
This memorandum was coordinated with the City Attorney’s Office and the City Manager’s Budget Office.
HONORABLE MAYOR AND CITY COUNCIL
October 9, 2026
Subject: Citywide Planning Work Plan Prioritization
PUBLIC OUTREACH
This memorandum will be posted on the City Council Agenda website for the October 20, 2026 City Council meeting.
BOARD, COMMISSION, COMMITTEE RECOMMENDATION AND INPUT
No board, commission, or committee recommendation or input is associated with this action.
CEQA
Not a Project, File No. PP17-007, Preliminary direction to staff and eventual action requires approval from decision-making body.
PUBLIC SUBSIDY REPORTING
This item does not include a public subsidy as defined in section 53083 or 53083.1 of the California Government Code or the City’s Open Government Resolution. /s/
Christoper Burton
Director, Planning, Building, and Code Enforcement
For questions, please contact Ruth Cueto, Principal Planner, Planning, Building and Code Enforcement Department, at [email protected] or (408) 535-7886.
ATTACHMENTS:
Attachment A – Citywide Planning Project List
Attachment B – Current Proposed Citywide Work Plan
Attachment C – Alternative 1 – Single-Density for Missing Middle Attachment D – Alternative 2 – Council Priorities Emphasis Team Project Name Category Project Description Deadline / Associated Risk Source Date of Action Ordinance & Policy Missing Middle: Comprehensive Zoning Update 1 Develop residential zoning standards to facilitate Missing Middle Housing such as density, height and setbacks.
City is required to implement a Missing Middle Housing ordinance to maintain Housing Element compliance. GP 4 Year Review 8/18/2026
Ordinance & Policy City / State Zoning Code Update incl. SB 79 Demolition / LNC Change 1 Update demolition findings for historic properties, extend the period to reestablish a legal nonconforming (LNC) use from six months to three years, streamline tree removals in fire prone areas, and make other minor changes for state law compliance and code maintenance.
This work is nearly complete and is expected to be heard before the City Council in November. This ordinance includes updates needed to maintain consistency with state law. Failure to complete this work may result in the state deeming the City's ADU ordinance null and void.
Council
Direction/State Law
Compliance
Varies
Ordinance & Policy Arena Marquee 1 Changes to the sign ordinance to allow additional digital signage for SAP Center. City is obligated to complete this work under the terms of the SAP Center Arena Management Agreement.
Agreement on SAP
Center Extension 8/26/2025
Ordinance & Policy Minimum Densities Downtown 2
Establish minimum densities for downtown zoning districts that currently only have maximums. Downtown minimum densities are related to compliance with the Transit-Oriented Communities Policy. Council further directed this work as part of implementation of Senate Bill 79.
Council Direction /
TOC Compliance 1/27/2026
Ordinance & Policy Detention Center Moratorium & Analysis 3 Draft a temporary citywide moratorium halting application processing and approvals for establishing or expanding detention facilities, consistent with state and federal law. While there is no specific external mandate or deadline associated with this work, the City has a current and immediate need to evaluate where detention facilities should be sited; what potential impacts such facilities may have on public health, safety and welfare; and whether additional regulations are necessary to mitigate such impacts.
Council Direction 9/14/2026
Ordinance & Policy Digital Wayfinding 3 Amend zoning standards for outdoor vending to streamline permitting and allow outdoor vending in more locations/configurations.
No immediate risk or legal deadline related to this update. Council Direction 10/21/2025 Ordinance & Policy Zoning Code: Data Center Definition and Standards 3 Establish a set of uniform standards and best practices for data center projects in the City of San José.
This work is nearly complete and is expected to be heard by Council in December. Rules Memo 6/10/2026 Ordinance & Policy GP 4 Year: Retail in Residential Neighborhood 3 Explore allowing neighborhood serving commercial in Residential Neighborhood areas; include explicit prohibitions on the granting of Off-Sale Alcohol and Tobacco Retail licenses.
No immediate risk or legal deadline related to this update. Council direction on GP 4 Year Review 8/18/2026
Ordinance & Policy GP 4 Year: Zoning Code Noise Standards 3 Review and revise noise performance standards consistent with industry standards and applicable General Plan 2040 policies including expanding standard construction hours.
This is required for consistency with the proposed updates to the General Plan and to implement updates to standard construction hours.
Council direction on
GP 4 Year Review 8/18/2026
Ordinance & Policy Missing Middle: Design Guidelines 3
Develop Missing Middle Housing design guidelines to create a gradual transition in height, density, massing, and intensity between adjacent residential properties.
City is required to implement a Missing Middle Housing ordinance to maintain Housing Element compliance. GP 4 Year Review 8/18/2026
Ordinance & Policy Budget: Advanced Manufacturing Ministerial Approval 4 Conduct necessary work to make planning approval for advanced manufacturing ministerial. No immediate risk or legal deadline related to this update. Mayor's Budget Message 6/16/2026
Ordinance & Policy Rules Memo: Vacant Storefront Analysis 4 Evaluate establishing a ministerial demolition permit for eligible vacant commercial/industrial properties while maintaining environmental, historic, and waste compliance.
No immediate risk or legal deadline related to this update.
Rules Memo 6/17/2026
Ordinance & Policy Child care policy 4 Repeal Council Policy 6-14 and amend the zoning code to expand permitted child day care uses across designated commercial and public/quasi-public districts.
No immediate risk or legal deadline related to this update. Council Direction 9/1/2026 Ordinance & Policy Vape Shop Zoning Changes 4 Update the zoning ordinance to add a Conditional Use Permit or other land use permit requirement for vape and smoke shops.
No immediate risk or legal deadline related to this update. Council Direction 5/14/2024 General Plan Open Space & Environmental Justice Elements 2 Draft new Environmental Justice element and update Open Space element that meet State requirements.
These updates are required per state law however they have a less certain or less fixed timeline. State Law n/a
General Plan Safety Element 2 Update the General Plan Safety Element to reflect emerging hazards, and State requirements. These updates are required per state law however they have a less certain or less fixed timeline. State Law n/a
General Plan GP 4 Year: Residential Capacity 3
General Plan 4 Year Review work to update land use map, update MUN and UR land use designation languages, and amend policies related to non-growth areas/commercial conversions. This work includes general plan amendments and rezonings to allow for residential uses, including the Winchester and The Alameda corridors, MUC sites, among others.
This work is highly anticipated with an identified need for near-term action, but no fixed external legal or funding deadline.
GP 4 Year Review 8/18/2026
General Plan GP 4 Year: Create/Develop PQP Framework 3
Develop framework to consider land use changes on PQP sites while maintaining consistency with GP Policy LU-1.9. The framework would: 1. develop criteria for determining the appropriate amount and distribution of PQP land throughout the city and 2. evaluate requests and changes in land use based on the framework to unlock housing on specific sites.
This work is highly anticipated with an identified need for near-term action, but no fixed external legal or funding deadline.
GP 4 Year Review 8/18/2026
General Plan GP 4 Year: Technical updates to GP jobs and housing capacity 3 Text changes to the General Plan related to jobs and housing capacity. This is required for consistency with the proposed updates to the General Plan. GP 4 Year Review 8/18/2026 General Plan GP 4 Year: Technical Updates to Greenhouse Gas & Transportation Analysis 3 Text changes to the General Plan to reflect changes to the Greenhouse Gas Reduction Strategy and transportation analysis.
This is required for consistency with the proposed updates to the General Plan. GP 4 Year Review 8/18/2026 Attachment A
Attachment A: Citywide Planning Project List 1
General Plan GP 4 Year: GP noise & construction hours updates 3 Text changes to the General Plan reflecting updates to standard construction hours. This is required for consistency with the proposed updates to the General Plan and to implement updates to standard construction hours. GP 4 Year Review 8/18/2026 General Plan Additional General Plan cycle for private development 3 Text changes to the General Plan Annual Review policies to allow up to two privately-initiated general plan hearings per year.
No immediate risk or legal deadline related to this update. Would provide more opportunities for privately-initiated general plan amendments. GP 4 Year Review 8/18/2026 General Plan GP 4 Year Review: PQP 1.5-acre PSH changes 3 Zoning code update to allow 100% affordable housing on PQP sites up to 1.5-acres with no requirement for PSH units, for projects that meet a minimum density of 60 du/ac.
Changes would allow more flexibility for affordable housing with no PSH requirement.
No immediate risk or legal deadline related to this update. GP 4 Year Review 8/18/2026 General Plan GP 4 Year: GP Amendments for Specific Sites based on PQP Framework 3 General Plan and zoning updates for school and faith-based sites that meet PQP Framework. This work is highly anticipated with an identified need for near-term action, but no fixed external legal or funding deadline. GP 4 Year Review 8/18/2026 General Plan Community Planning Guide 4 Update to the "Planning in San José: A Community Guide," a comprehensive guide to land use planning and development in San José.
No near-term legal, directional, or timing consequence should this work not proceed. Budget 6/16/2026 General Plan Subsidizing SUPs for PQP 4
Develop a streamlined process and lower fee structure for Special Use Permits on Public/QuasiPublic Lands to allow for greater economic and public-serving benefits such as childcare, sports leagues, and community gathering spaces, that still allow for future PQP use.
No near-term legal, directional, or timing consequence should this work not proceed.
GP 4 Year Review 8/18/2026
Housing Housing Element: Development Fee Framework 1
Creation of the Development Fee Framework to provide a more transparent and predictable understanding of City added fees and taxes.
This work is contained in Housing Element Strategy P-10 with milestones and was further recommended through a Rules memo from February 11, 2026 committee meeting and included the Building More Housing Focus Area.
Housing Element /
Rules Memo Various
Housing Housing Element: Council Policy 6-30 Update 1
This project updates Council Policy 6-30 to strengthen the City's outreach and engagement practices for land use and development proposals. The update will implement recommendations from the City Auditor, Racial and Social Equity Plan, Environmental Justice Element, and 6th Cycle Housing Element to ensure robust, equitable, and meaningful public participation.
This working is contained in the City's 6th Cycle Housing Element Strategy I-7 and also in response to a City Audit from 2019.
Housing
Element/City
Audit/Racial and
Social Equity Plan
Various
Housing Missing Middle: Further Analysis of Densities 3 Council directed further analysis and consideration of the appropriate density levels for missing middle housing. This will work will involve further technical analysis including preparing potential development models and additional community outreach. Staff would return to City Council to receive direction on the appropriate density level based on this work.
This work was directed by the Council as part of the approval of the GP 4 Year Review Task Force recommendations. This work will delay further implementing work on missing middle housing that will further delay completing Housing Element strategy P35.
Council Direction 8/18/2026
Housing Missing Middle: Density Bonus Program 3
Part of additional direction from the Council at the August 18th Council meeting on the General Plan Four Year Framework. This project is to explore creation of a local density bonus program for missing middle housing that can be pursued in lieu of state density bonus law.
As this is an optional additional program that is additive to the Missing Middle program, there is no specific deadline or associated risk with the timing of implementation of this program.
Council direction on
GP 4 Year Review 8/18/2026
Housing Downtown Ministerial Approval Ordinance / 90 Day Approval for Ministerial / AB 2074 Implementation 3
Expansion of the City's Ministerial Approval Ordinance to include Downtown and a guaranteed 90 day approval for the City's ministerial approval process for residential development. This work will also now cover implementation of AB 2074 - The Downtown Revitalization Act that requires the City to designate an area a regional transit hub by July 1, 2027.
Creating the City's Ministerial Approval process was part of the Housing Element that was completed and this work would further the Housing Element strategy. As a part of the budget process, the Council also requested a guarantee of approval after 90 days of review time with the City. This item is part of the Building More Housing Focus Area.
Housing Element /
Budget Message Various
Housing Missing Middle Downtown Pilot Program 3
Part of additional direction from the Council at the August 18th Council meeting on the General Plan Four Year Framework. This project is to create a pilot program within 0.75 miles of Tier 1 and Tier 2 SB 79 transit hubs around downtown that would allow an expanded missing middle program with increased maximum heights.
No immediate risk or legal deadline is related to this update. This is an additive optional program that layers on top of the Missing Middle Housing work. Council Direction 8/18/2026 Housing Housing Element: North San Jose Overlays 2.0 4
The Housing Element created two new residential overlays to expand housing opportunity in North San Jose. This project would look at further opportunities expand the overlay and also if additional sites are needed based on redevelopment of identified sites to uses other than housing.
This work is related to the previous Housing Element work, but the required actions in Housing Element Program P-3 have been completed. Housing Element Various Housing Rules Memo: Ministerial Approval for AB 130 eligible development 4 Modify the Zoning Ordinance to make any residential project that is eligible for AB 130 eligible for approval through the City's Ministerial Approval Ordinance.
No immediate risk or legal deadline related to this update. Most projects not eligible for ministerial approval, such as SB 79 eligible projects, would be approved through Site Development Permit approved by the Director of Planning at the Director's Hearing. Rules Memo 4/22/2026 Housing Missing Middle: GP technical changes / updates 3 Technical changes to the General Plan text and policies to allow for implementation of missing middle housing.
Required work to implement missing middle housing that is a Housing Element strategy. GP 4 Year Review 8/18/2026 Transit-Oriented
Communities (TOC) Transit Oriented Community Compliance Analysis 1 Evaluate and establish minimum and maximum commercial floor area ratio and residential density standards in compliance with the Metropolitan Planning Commission's (MTC) Transit Oriented Communities (TOC) Policy.
MTC is tying future discretionary transportation funding to compliance with this policy, including One Bay Area Grant funding. This work is being partially funded by grants. TOC Compliance 10/28/2025 Attachment A: Citywide Planning Project List 2
Transit-Oriented
Communities (TOC) GP 4 Year: Commercial Overlay Development & Analysis 3 The commercial overlay will create opportunity for more intense nonresidential development close to transit, similar to the way SB79 allows residential close to transit. This will help implement the TOC policy and also the GP 4 Year to help offset housing capacity added in other areas of the city.
This strategy becomes a strategy to implement TOC which is policy requirement tied to significant regional grand funding opportunities in the future. GP 4 Year Review 8/18/2026 Urban Village Five Wounds Urban Village Update 1
The Five Wounds Urban Village will combine four urban villages into one larger transit village:
(Five Wounds, Little Portugal, Roosevelt Park & 24th and William Urban Villages). This includes increasing residential development potential and heights by the future BART station.
Five Wounds UV is tied to committed work and funding from external agencies and the environmental analysis is already underway. Council
Direction/General
Plan
4/12/2022
Urban Village Eastside Alum Rock Urban Village Plan 2
The Eastside Alum Rock Urban Village Plan advances transit-oriented, infill development along Alum Rock Avenue, supporting higher-density housing, jobs, and mixed uses around the BRT corridor and key regional transit connections.
Eastside Alum Rock work is funded by an external grant with deadline for completing the work. Council
Direction/General
Plan
3/13/2018
Urban Village GP 4 Year: Initiate Neighborhood Village Planning Work 2 Start the work to plan "neighborhood villages" throughout the city in a combined streamlined process to "unlock" housing opportunities in these urban villages This strategy is tied to implementation of two Housing Element programs (P-40 & P-44) related to streamlining and improving Urban Village Planning GP 4 Year Review /
Housing Element 8/18/2026
Urban Village GP 4 Year: Changes to Adopted Village Plans for Consistency 3 Changes to all existing Urban Village Plans to reflect higher density for the RN designation.
Currently there are 17 approved Urban Village Plans to analyze. Will also involve modifications to denser Urban Village designations, such as Mixed Use Neighborhood or Urban Residential.
This is required for consistency but there is no immediate risk or legal deadline related to this update. GP 4 Year Review 8/18/2026
Urban Village Saratoga Urban Village Plan 3
The Saratoga Urban Village will combine two urban villages into one larger village: the Paseo de Saratoga and Vicinity Urban Village (C36) and the Saratoga Avenue Urban Village (C41). This includes increasing residential development potential to allow approximately 1,620 additional units above current residential capacity assumptions.
There is not a specific legal deadline but the environmental analysis necessary to complete this plan has been integrated into the General Plan 4 Year Review environmental work to save time and money so would be costly to delay at this point.
Council/CED
Direction 8/28/2023
Attachment A: Citywide Planning Project List 3
Budget:
Advanced
Manufacturing
Ministerial
Approval
Current Proposed Citywide Work Plan
Ordinance & Policy Team Housing
Urban Village Team
General Plan Team
Detention
Center
Moratorium &
Analysis
Rules Memo:
Vacant
Storefront
Analysis
Child care
policy
Defer
Transit-Oriented Communities (TOC) Team
Vape Shop
Zoning
Changes
Work plan based on existing Council direction with analysis of multiple density levels for Missing Middle Housing - Delays other work to complete General Plan 4 Year.
Digital
Wayfinding
Zoning Code:
Data Center
Definition and
Standards
GP 4 Year:
Zoning Code
Noise
Standards
City / State
Zoning Code
Update incl. SB
79 Demolition /
LNC Change
Minimum
Densities
Downtown
Arena
Marquee
Safety Element GP 4 Year:
Create/Develop
PQP Framework
GP 4 Year:
Technical
updates to GP
jobs and
housing
capacity
GP 4 Year:
Technical
Updates to
GHG &
Transportation
Analysis
GP 4 Year:
GP noise &
construction
hours updates
Additional
General Plan
cycle for private
development
GP 4 Year: PQP
1.5-acre PSH
changes
Defer
Community
Planning Guide
Subsidizing
SUPs for PQP
Five Wounds
Urban Village
Update
Eastside Alum
Rock Urban
Village Plan
Saratoga
Urban Village
Plan
Missing
Middle: GP
technical
changes /
updates
Housing
Element:
Development
Fee Framework
Defer
Housing
Element:
North San Jose
Overlays 2.0
Rules Memo:
Ministerial
Approval for AB
130 eligible
development
Housing
Element:
Council Policy
6-30 Update
(reduced scope )
Downtown
Ministerial
Approval
Ordinance /
AB 2074
Implementation
Missing
Middle:
Further
Analysis of
Densities
Outdoor
Vending
Initiate Missing
Middle: Begin
Work on
Comprehensive
Zoning Update
Initiate Missing
Middle:
Begin Design
Guidelines
GP 4 Year:
Initiate retail in
Residential
Neighborhood
GP 4 Year:
Initiate
Residential
Capacity
GP 4 Year:
Initiate GP
Amendments
for Specific Sites
based on PQP
Framework
October 2026 through December 2027
GP 4 Year:
Initiate
Neighborhood
Village Planning
Work
GP 4 Year:
Initiate changes
to Adopted
Village Plans for
Consistency
Initiate Open
Space &
Environmental
Justice Elements
key
Begin but not
completed in work
plan period
Consultant
support
Transit Oriented
Community
Compliance
Analysis
GP 4 Year:
Commercial
Overlay
Development &
Analysis
Missing Middle:
Density Bonus
Program
Missing Middle:
Downtown Pilot
Program
Attachment B: Current Proposed Citywide Work Plan
Budget:
Advanced
Manufacturing
Ministerial
Approval
Alternative 1 - Single Density for Missing Middle
Ordinance & Policy Team Housing
Urban Village Team
General Plan Team
Detention
Center
Moratorium &
Analysis
Rules Memo:
Vacant
Storefront
Analysis
Child care
policy
Defer
Transit-Oriented Communities (TOC) Team
Vape Shop
Zoning
Changes
Least risk and quickest implementation of General Plan 4 Year Review Changes - Single Density for Missing Middle Housing.
Digital
Wayfinding
Zoning Code:
Data Center
Definition and
Standards
GP 4 Year:
Retail in
Residential
Neighborhood
GP 4 Year:
Zoning Code
Noise
Standards
Missing
Middle:
Comprehensive
Zoning Update
Missing
Middle: Design
Guidelines
City / State
Zoning Code
Update incl. SB
79 Demolition /
LNC Change
Minimum
Densities
Downtown
Arena
Marquee
Safety Element GP 4 Year:
Residential
Capacity
GP 4 Year:
Create/Develop
PQP Framework
GP 4 Year:
Technical
updates to GP
jobs and
housing
capacity
GP 4 Year:
Technical
Updates to
Greenhouse
Gas &
Transportation
GP 4 Year:
GP noise &
construction
hours updates
Additional
General Plan
cycle for private
development
GP 4 Year
Review: PQP
1.5-acre PSH
changes
Defer
GP 4 Year: GP
Amendments
for Specific Sites
based on PQP
Framework
Community
Planning Guide
Subsidizing
SUPs for PQP
Five Wounds
Urban Village
Update
Eastside Alum
Rock Urban
Village Plan
GP 4 Year:
Initiate
Neighborhood
Village
Planning Work
Saratoga
Urban Village
Plan
Missing
Middle: GP
technical
changes /
updates
Housing
Element:
Development
Fee Framework
Defer
Housing
Element:
North San Jose
Overlays 2.0
Rules Memo:
Ministerial
Approval for AB
130 eligible
development
Missing
Middle:
Density Bonus
Program
Housing
Element:
Council Policy
6-30 Update
(reduced scope )
Outdoor
Vending
Transit Oriented
Community
Compliance
Analysis
GP 4 Year:
Commercial
Overlay
Development &
Analysis
GP 4 Year:
Initiate
Neighborhood
Village Planning
Work
key
Begin but not
completed in work
plan period
Consultant
support
October 2026 through December 2027
Initiate Open
Space &
Environmental
Justice Elements
Missing Middle:
Downtown Pilot
Program
Downtown
Ministerial
Approval
Ordinance /
AB 2074
Implementation
Attachment C: Alternative 1 - Single-Density for Missing Middle
Budget:
Advanced
Manufacturing
Ministerial
Approval
Alternative 2 - Council Priorities Emphasis
Ordinance & Policy Team Housing
Urban Village Team
General Plan Team
Detention
Center
Moratorium &
Analysis
Rules Memo:
Vacant
Storefront
Analysis
Child care
policy
Defer
Transit-Oriented Communities (TOC) Team
Vape Shop
Zoning
Changes
Higher risk and delayed implementation of missing middle housing and General Plan elements provides capacity numerous Council priorities moved to active work plan.
Digital
Wayfinding
Zoning Code:
Data Center
Definition and
Standards
GP 4 Year:
Retail in
Residential
Neighborhood
GP 4 Year:
Zoning Code
Noise
Standards
Missing
Middle:
Comprehensive
Zoning Update
Missing
Middle:
Design
Guidelines
City / State
Zoning Code
Update incl. SB
79 Demolition /
LNC Change
Minimum
Densities
Downtown
Arena
Marquee
Transit
Oriented
Community
Compliance
Analysis
GP 4 Year:
Commercial
Overlay
Development
& Analysis
GP 4 Year:
Residential
Capacity
GP 4 Year:
Create/Develop
PQP Framework
GP 4 Year:
Technical
updates to GP
jobs and
housing
capacity
GP 4 Year:
Technical
Updates to
Greenhouse
Gas &
Transportation
GP 4 Year:
GP noise &
construction
hours updates
Additional
General Plan
cycle for private
development
GP 4 Year
Review: PQP
1.5-acre PSH
changes
Defer
Subsidizing
SUPs for PQP
Five Wounds
Urban Village
Update
Eastside Alum
Rock Urban
Village Plan
GP 4 Year:
Changes to
Adopted Village
Plans for
Consistency
Saratoga
Urban Village
Plan
Missing
Middle: GP
technical
changes /
updates
Housing
Element:
Development
Fee Framework
Defer
Housing
Element:
North San Jose
Overlays 2.0
Rules Memo:
Ministerial
Approval for AB
130 eligible
development
Missing
Middle:
Density Bonus
Program
Housing
Element:
Council Policy
6-30 Update -
wider scope
Missing
Middle:
Further
Analysis of
Densities
Outdoor
Vending
Initiate Safety
Element
Open Space &
Environmental
Justice Elements
GP 4 Year:
Initiate GP
Amendments
for Specific Sites
based on PQP
Framework
Community
Planning Guide
key
Begin but not
completed in work
plan period
Consultant
support
October 2026 through December 2027
Defer
GP 4 Year:
Initiate
Neighborhood
Village Planning
Work
Missing Middle:
Downtown Pilot
Program
Downtown
Ministerial
Approval
Ordinance /
AB 2074
Implementation
Attachment D: Alternative 2 - Council Priorities Emphasis