CITY OF SAN MATEO
CITY OF SAN MATEO
Agenda Report
City Hall
330 W. 20th Avenue
San Mateo CA 94403
www.cityofsanmateo.org
Agenda Number: 8 Section Name: OLD BUSINESS Account Number: 25-3112 File ID: 26-10887 TO: City Council
FROM: Alex Khojikian, City Manager
PREPARED BY: Community Development Department
MEETING DATE: February 23, 2026
SUBJECT:
Comprehensive Zoning Code Update Project — Direction
RECOMMENDATION:
Receive a presentation on the Comprehensive Zoning Code Update Project, receive public comments, and provide staff with direction on how to proceed with updating the City’s Zoning Code.
BACKGROUND:
Project Overview and Objectives
Strive San Mateo General Plan 2040 (“General Plan”) was adopted by the City Council on March 18, 2024. The General Plan is the City’s long-range planning document that guides decision-making and establishes policies and standards for future development and improvements citywide. The General Plan includes a Vision Statement and Guiding Principles, along with goals, policies, and actions that outline how the City will address key community issues such as land use, circulation, public services and facilities, and housing. The General Plan includes several implementation programs which outline necessary amendments to the City’s Zoning Code. In November 2024, San Mateo voters passed Measure T, which increased height and density limits within ten specified study areas, and allowed for the full implementation of the General Plan’s Land Use Element. Building on the foundation of the General Plan, the Planning Division is working towards a comprehensive update of the City’s existing Zoning Code (Title 27). This will be the first comprehensive update of the City's Zoning Code in over 40 years. This update would include implementation of all applicable goals and policies in the General Plan, the 2023-2031 Housing Element (“Housing Element”), as well as address compliance with State law, meet current best practices and include internal consistencies for an effective and user-friendly Zoning Code.
Over time, the City's Zoning Code has been updated and amended in various ways. While these updates addressed the City's evolving needs, they have also resulted in inconsistencies and redundancies within other sections of the Code. These issues will be addressed as part of this comprehensive update. Beyond General Plan implementation, this comprehensive update will focus on alignment with the Housing Element; establishing a clear, intuitive, and user-friendly framework; eliminating conflicts to create an internally consistent document; complying with recent state legislation; modernizing the Zoning Code to reflect best practices; and focusing on streamlining the entitlement process. The update will also support balanced and equitable housing production, economic development, transportation access, and sustainability. Additionally, this effort will include an updated zoning map to ensure consistency and usability for the property owners, applicants, and City staff.
The Comprehensive Zoning Code Update Project will focus primarily on Title 27 (Zoning) of the San Mateo Municipal Code (SMMC). This title is most frequented by City staff and the public; thus the goal is to create a user-friendly Zoning Code that will make it easier for all stakeholders to navigate and understand the development regulations in our community. This study session is intended to provide an update on the progress made and the overall project timeline, summarize the outreach and engagement strategy, and seek high level direction on several key topics.
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This report focuses and summarizes the major updates, and principal conclusions based on input gathered from interviews and discussions with City staff, stakeholder surveys to date, and a review of the current Zoning Code, General Plan, Housing Element, and applicable provisions of State law, as well as research on best practices from other jurisdictions.
The focus has been on the following topics:
Code Accessibility and Usability
Administrative Procedures
Land Use Regulations
Zoning Districts and Development Standards
Related Planning Efforts
As part of the Zoning Code Update, the team is reviewing the various adopted plans that interact and/or are referenced in the Zoning Code, such as specific plans, area plans and master plans, to assess what needs be updated in the Zoning Code.
The team will also assess each of these adopted plans for consistency with the General Plan and identify what needs to be updated, but the work to bring each plan into alignment with the General Plan will happen separately from this Project.
There are other related planning efforts that are happening separately but will be incorporated into the Zoning Code Update.
Such efforts include the following:
ADU Ordinance
The City's Accessory Dwelling Unit (ADU) Ordinance (SMMC Chapter 27.19) was just recently updated to comply with State law, address local needs and improve ordinance functionality. This updated chapter will be incorporated into the Zoning Code but is not planned for any further updates or amendments at this time.
Historic Preservation Ordinance
Staff is currently working on amendments to the City’s Historic Preservation Ordinance (SMMC Chapter 27.66), which will set updated requirements and procedures for designation and administration of historic resources. This work is part of the implementation of the General Plan and will be incorporated into the Zoning Code once the effort is completed.
Housing Element
The Housing Element includes multiple policies and programs that require Zoning Code amendments to implement. For code amendments that have already happened, this work will be incorporated into the Zoning Code. For other necessary code amendments that have not happened yet, this work is being incorporated into the Zoning Code Update.
High Density Zone Districts
The current Zoning Code does not allow for the higher-density residential and mixed-use development envisioned by the General Plan through the establishment of the Mixed-Use Medium II, Mixed-Use High, Residential Medium II, and Residential High land use designations. It was necessary to establish new zoning districts to allow for timely implementation of the General Plan’s adopted land use designations. The proposed high density zone ordinance would implement the General Plan’s land use framework by establishing clear and objective standards for permitted uses, development form, and intensity. The work on this ordinance is ongoing, and staff anticipates that this effort will move forward in the first half of 2026 ahead of the Zoning Code Update.
Zoning Code Update Timeline
In March of 2025, staff issued a Request for Proposals (RFP) for a qualified consultant to support the Comprehensive Zoning Code Update Project. Staff received a total of four proposals in response to the RFP. Based on overall professional experience, quality of proposal, responses to interview questions and composition of the consultant team, staff identified PlaceWorks as being the best qualified to support the Zoning Code Update. On June 16, 2025, the City Council voted to appropriate funding to complete the Zoning Code Update Project and to execute a professional services agreement with PlaceWorks to support this effort.
Following approval, PlaceWorks and City staff held the project kick-off meeting beginning of July, 2025. Since the kick-off meeting, PlaceWorks has worked closely with staff in assessing the current Zoning Code regulations and other background
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research. After a full review and assessment of the existing regulations, the team, in coordination with the City Attorney’s Office, developed a plan for how to organize and restructure the existing Zoning Code for efficiency and legibility.
Concurrently, the team evaluated and identified best practices that could help inform this Code Update and conducted background research on multiple zoning-related topics, which led to the identification of six key issues to solicit community input on. White papers were then developed for each of the six key issues, which are summarized in the next section of this report. These white papers and associated online surveys will be used to receive community input on a variety of issues.
A Community Outreach and Engagement Plan (discussed in detail later in the report) has been developed to guide how community and stakeholder input is solicited, and how it will help guide the drafting and development of the updated Zoning Code. The goal is to have a draft ready for public review in the Fall of 2026.
Concurrently with this Code Update work, the team is analyzing parcels that have inconsistencies between the current Zoning Map and the General Plan 2040 Land Use Map to develop a list of Zoning Map amendments. Focused outreach to owners and tenants of properties identified for Zoning map amendments will occur, followed by study sessions with the Planning Commission, to ensure awareness and collaboration before final recommendations are developed. Final adoption hearings for the updated Zoning Code and Zoning Map are anticipated in the Summer of 2027. The proposed timeline for the Zoning Code Update is included as Attachment 1.
DISCUSSION:
Key Issue White Papers
While the General Plan provides a broad and long-term vision for the City, the Zoning Code specifies how each individual property can be used to achieve those objectives. Zoning codes are the body of rules and regulations that control what is built on the ground, as well as what uses occupy buildings and sites. They determine the form and character of development, such as the size and height of buildings, and include provisions to ensure that new development and uses will fit into existing and surrounding neighborhoods. Zoning codes are also used to implement the community goals and policies expressed in the General Plan. However, there are some things that development codes cannot do, since they are limited in some respects by State law and other legal precedent. Further, not all issues outlined in the General Plan are addressed in the Zoning Code; instead utilizing other sections of the Municipal Code or other planning tools, such as specific plans and design standards and other adopted policies, to implement.
As mentioned earlier, the team identified six key issues to focus early community and stakeholder discussions and input. A white paper has been prepared for each of these six key issues, which include:
Building Height Limits
Commercial Uses and Regulations
Single-Family Residential Regulations
Public Noticing Requirements
Open Space Requirements
Setbacks/Buffers
The white papers include an overview of community goals, key issues, current regulations, General Plan direction and policies, applicable State laws, best practices, and questions for public input. A summary for each topic is included below, with the full white papers included as Attachment 2.
Building Height Limits
Building height limits in San Mateo have been regulated by voter approved initiatives (Measures H, P, and Y) since 1992, and this topic was a key issue of community discussion during the General Plan update process. In November 2024, following adoption of General Plan 2040, Measure T was approved by the voters, which allowed for the City’s height limits to increase as outlined in the Land Use Element. The Zoning Code Update will establish updated height limits to align with the story limits contained in the General Plan. In the meantime, the Council adopted Zoning Code section 27.02.220 (Consistency with Measure T, General Plan Ballot Measure). This provision specifies that in the event of a conflict between the General Plan and the Zoning Code, the uses, densities, intensities and heights specified in the General Plan shall control.
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Nearly all of the building height regulations noted in Title 27 of the Municipal Code refer to the General Plan 2030 Building Height Plan rather than being included directly in the Zoning Code. One of the objectives of the Zoning Code Update is to clarify the height measurement rules for correlating the story limits set by the General Plan to the maximum allowed height in terms of feet. In addition, the Zoning Code Update process will evaluate development feasibility to align with the densities (units per acre) and intensities (floor area ratio) identified in the General Plan while providing reasonable and context- sensitive transitions between zoning districts and development projects in San Mateo.
Commercial Uses and Regulations
Commercial uses and the associated regulations are a cornerstone of supporting San Mateo’s economic vitality and neighborhood livability. The location, scale and mix of commercial activities play a key role in shaping neighborhood character and advancing the General Plan goals to support the local economy, enhance neighborhood fabric and quality of life, and provide a wide range of uses to meet the community's needs. Through the Zoning Code update process, the City will examine how commercial land use regulations can balance economic vitality with neighborhood compatibility to support vibrant, walkable neighborhoods and meet the full spectrum of needs of the San Mateo residents and visitors.
This white paper includes a review of the existing commercial use regulations in the Zoning Code, directions and policies in the General Plan, best practice options, and questions for public consideration. Reassessment of the commercial zoning districts will include an analysis of what uses are currently allowed in the districts, what specific regulations should be added or removed, and whether any uses should be added, revised, or removed in these zoning districts. The updated regulations for the commercial districts will be applied to other zoning designations that allow for commercial activities, such as Mixed- Use and Office designations.
Single-Family Residential Regulations
Single-family, low-density residential districts are evolving to meet the changing needs of San Mateo’s residents and households. To address housing shortages, the State has adopted a significant number of new housing laws that aim to support the evolving housing needs of residents and address statewide housing shortages. Some of these laws focus on increasing housing opportunities in single-family residential districts, including measures like Senate Bill (SB) 9, SB 1123, and more flexible accessory dwelling units (ADUs) regulation. The City’s housing stock is also aging and in need of updates and investment, and updated regulations that reduce antiquated requirements and support current housing and family needs will support and encourage homeowner investments in their properties.
The City’s Single-Family Residential (SFR) Districts have not been comprehensively updated since 1992. The City has several goals for updating the current SFR regulations, including complying with recent state housing laws, converting subjective design guidelines into transparent and objective standards in the code and accompanying Objective Design Standards, simplifying development standards, and streamlining the approval process. This white paper notes best practices and questions for public consideration.
Public Noticing Requirements
As part of the Zoning Code update, the administrative and procedural requirements for public notification for new development will be updated to comply with recent state laws. Best practices for facilitating equitable community engagement, a General Plan priority, will also be considered. Appropriate public noticing periods are vital for the administration and procedural regulations in Zoning Codes, and this is an opportunity to clarify and right-size community engagement and public input expectations and opportunities. The appropriate level of participation from residents and stakeholders will be updated so that expectations are clear from the earliest stages of project initiation. Updates to this section of the Zoning Code will also consider streamlining the notice and entitlement process, especially for single-family and low-density residential projects.
This white paper includes a review of the existing public noticing requirements in the Zoning Code, directions and policies in the General Plan, the current related Zoning Code provisions, recent state requirements, best practice options, and questions for public consideration.
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Open Space Regulations
The Zoning Code Update will follow the General Plan’s direction to expand public access to open spaces and to encourage a variety of open space types, including privately-owned public open space, community gardens, multifamily open space, and public facilities such as parks and recreation centers. The white paper presents options for how open space, both private and publicly accessible, can be incorporated into new development. It also includes a review of the existing open space regulations in the Zoning Code, goals and policies in the General Plan, recent state bills, and best practice options and considerations.
Setbacks/Buffers
Building setbacks and buffers play a critical role in shaping the physical form of San Mateo’s neighborhoods, influencing streetscape and architectural character, access to light and air, and privacy. Building setbacks establish the required distance between structures and property lines, streets, or other site features, and are a fundamental tool for regulating the scale, placement, and massing of new development. This white paper addresses the setback and buffer regulations for the City’s zoning districts. The white paper summary also includes an overview of applicable goals and policies in the General Plan, recent state laws, best practice options/considerations, and questions for public consideration.
Community Outreach and Engagement Plan
As part of the Zoning Code Update scope, the team has developed a Community Outreach and Engagement Plan (Attachment 3). The Engagement Plan provides the City with tools and strategies to solicit input from the San Mateo community and its stakeholders, through various outreach programs which will help inform what goes into the Zoning Code Update. This Plan is different from the approaches used during the General Plan update process as citywide goals and policies have now been set; and this effort is now working on developing the best ways to implement them.
The overarching objective of this Plan will be to engage the San Mateo community and key stakeholder groups to share information about the Zoning Code Update and gather ideas and input about how to approach and address key issues.
Outreach strategies in the Engagement Plan include:
Two virtual and two in-person community meetings
Up to four online surveys
Up to 12 stakeholder meetings
Up to five study sessions with the Planning Commission or City Council (excluding public hearings for adoption) The first virtual community workshop was held on January 15, 2026, at 6:30 p.m., and included an online survey (which was made available in English, Spanish, and Simplified Chinese). The survey was used to collect input on the key issues the Zoning Code Update should address. There were approximately 34 attendees at the workshop, and the main objective was to provide an overview of the project and gather input on key issues the Zoning Code Update should address. The workshop included time for questions and answers, and small group discussions that covered topics related to single-family residential districts, commercial uses, and building height. Highlights from the small group discussion included:
Find ways to ensure that there’s sufficient parking in single-family districts Implement objective design standards that preserve community character Consider allowing small-scale commercial uses in residential districts and discourage incompatible commercials adjacent to residential areas
Incorporate design requirements that reduce building massing On January 26, 2026, two in-person focus group meetings were hosted at City Hall for architects, builders, and brokers who frequent the Zoning Code. The white papers on the six key identified issues helped guide discussions with the focus group attendees.
The City plans to host several other community workshops prior to finalizing the Zoning Code. To support community awareness about the project and engagement opportunities, the team will use a variety of methods, including print newsletters, flyers, social media, eNews and eBlasts, press releases, and updates to the project website (www.
StriveSanMateo.org).
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Next Steps
Public participation will be ongoing throughout the Zoning Code Update process, and the public is invited to contact staff directly at any point outside of the scheduled workshops and activities. Once administrative drafts have been reviewed for public comment and changes made, the Planning Commission will be asked to review the administrative draft Zoning Code and give feedback to staff on what should be added, kept as proposed, modified, and/or removed altogether to help frame next steps with the update process. The final Zoning Code document will be brought before the Planning Commission for review and recommendation to Council for review for final adoption. Staff anticipates the final adoption hearings for the Zoning Code Update to take place in the Spring and/or Summer of 2027.
CITY COUNCIL DIRECTION:
Based on the information shared in this agenda report, staff is seeking direction from Council on the following questions:
1. Any specific direction on the six white paper topics (Building Height, Commercial Uses, Open Spaces, Public Noticing, Setbacks/Buffers and Single-Family Regulations)?
2. Are there additional topics that should have in-depth analysis in a white paper?
3. Does the proposed Outreach and Engagement Plan align with project objectives and meet Council expectations?
4. Any other direction for the team as the Comprehensive Zoning Code Update effort moves forward? BUDGET IMPACT:
This work is being completed as part of the professional services agreement with PlaceWork that was approved by City Council on June 16, 2025. This project is being funded by the Advance Planning Fund (Fund 225) and does not have an impact on the City's General Fund.
NOTICE PROVIDED:
All meeting noticing requirements were met. In addition, meeting notifications were sent out to the interested parties list, included in the City’s weekly eNews and pushed out through the City’s social media channels.
ENVIRONMENTAL DETERMINATION:
This action is not subject to the California Environmental Quality Act (“CEQA”) pursuant to Section 15060(c)(2) of the CEQA Guidelines, because the activity, which consists of discussion of updates to the City’s Zoning Code but no actions or amendments, will not result in a direct or reasonably foreseeable indirect physical change in the environment; and Section 15060(c)(3), because the activity is not a project as defined in Section 15378 of the CEQA Guidelines, since it has no potential for resulting in a direct or indirect physical change to the environment.
ATTACHMENTS
Att 1 – Zoning Code Update Schedule
Att 2 – Key Issue White Papers
Att 3 – Community Outreach and Engagement Plan
STAFF CONTACT
City of San Mateo Consultant – PlaceWorks
Sung H. Kwon Amy Sinsheimer Joanna Jansen
Deputy Director, Community Development Project Manager Managing Principal [email protected]
(650) 522-7203