PUBLIC HEARING
AMENDMENT TO ZONING ORDINANCE
PLAN2507-0002
ORDINANCE OF THE CITY COUNCIL OF THE CITY OF SAN PABLO AMENDING THE SAN PABLO ZONING CODE CHAPTER
17.26, ESTABLISHMENT OF ZONING DISTRICTS; CHAPTER 17.32, RESIDENTIAL DISTRICTS, ALLOWED USES, AND DEVELOPMENT STANDARDS; CHAPTER 17.34, COMMERCIAL AND INDUSTRIAL DISTRICTS, ALLOWED USES, AND DEVELOPMENT STANDARDS; CHAPTER 17.38, OVERLAY AND SPECIAL DISTRICTS; CHAPTER 17.54, PARKING AND LOADING; CHAPTER 17.60, SPECIAL RESIDENTIAL USES; CHAPTER 17.62, SPECIAL NONRESIDENTIAL USES; CHAPTER
17.68, UNIVERSAL TERMS; AND CHAPTER 17.70, USE CLASSIFICATION DESCRIPTIONS, TO IMPLEMENT THIRTEEN PROGRAMS OF THE HOUSING ACTION PLAN OF THE SAN PABLO 2023-31 HOUSING ELEMENT; IMPLEMENT THE LAND USE DESIGNATIONS OF THE GENERAL PLAN UPDATE 2035; AND UPDATE THE ACCESSORY DWELLING UNIT DEED
RESTRICTION PROVISIONS
CITY COUNCIL MEETING
NOVEMBER 17, 2025
ZONING ORDINANCE
AMENDMENTS
BACKGROUND
3 parts to the proposed ordinance:
1. Housing Element program implementation
2. Further implementation of recent General Plan update
3. State ADU law compliance
ZONING ORDINANCE
AMENDMENTS
BACKGROUND
Housing Element program implementation
March 18th, 2024: City adopts 2023-2031 Housing Element May 20th, 2024: Housing and Community Development (HCD) certifies the Housing Element Housing element: State-mandated General Plan component, must be updated every 8 years Includes Housing Action Plan (HAP), identifying goals, policies, and programs to implement the long-term housing objectives of the Housing Element Goals include increasing housing options, removing barriers to construction, improving conditions of existing housing, and providing equal access opportunities to all residents Proposed text amendment implements thirteen of the 56 programs of the HAP
ZONING ORDINANCE
AMENDMENTS
BACKGROUND
Housing Element programs
Program 1-D: Revise Multifamily Minimum Parcel Size.
Program 1-G: Reduced Parking Standards.
Program 1-H: Faith-Based Community Housing.
Program 1-I: Shopkeeper Housing.
Program 2-F: Mobile Home Parks.
Program 2-G: Single-Room Occupancy Hotels.
Program 3-B: Emergency Shelters.
Program 3-C: Employee Housing.
Program 3-D: Zoning for Residential Care Facilities.
Program 3-E: Transitional and Supportive Housing.
Program 3-J: Low-Barrier Navigation Centers.
Program 3-K: Density Bonus.
Program 3-M: Definition of Family.
ZONING ORDINANCE
AMENDMENTS
BACKGROUND
Further General Plan implementation
July 7th, 2025: City Council adopts General Plan Update 2035 Includes Rumrill Corridor Plan
New land use designations
Changes to the Zoning Code implement these new designations ORD2025-002, adopted by City Council on Aug 4th, 2025, began implementation of these General Plan changes
Proposed text amendment further implements these changes throughout the code
ZONING ORDINANCE
AMENDMENTS
BACKGROUND
State ADU Law Compliance
Current State law prohibits deed restrictions for ADUs ADU section of Zoning code must be updated to comply with State law
PROPOSED ZONING ORDINANCE
AMENDMENTS
1. UPDATE ESTABLISHMENT OF ZONING DISTRICTS WITH NEW ZONES Zoning Code Section 17.26.030 Establishment of Zoning Districts – Establishment of Zoning Districts New zones added to Table 17-26-A: Base Districts
Planned Development District (PD)
Mixed-Use Center West District(MUCW)
Employment Mixed-Use District (EMU)
Reference to 23rd Street Specific Plan removed from Table 17.26-B– Overlay Districts and Specific Plans
PROPOSED ZONING ORDINANCE
AMENDMENTS
2. UPDATE RESIDENTIAL USE TABLE
Zoning Code Table 17.32-A: Residential Districts –
Use Standards
New use classifications added to table
Existing use classifications modified
PROPOSED ZONING ORDINANCE
AMENDMENTS
3. UPDATE MINIMUM PARCEL
DIMENSIONS
Zoning Code Table 17.32-B: Residential
Districts – Development Standards
Reduced minimum parcel dimensions (R2, R3, R4,
RMU
Reduced minimum parcel frontages
17.32.050 amended so that RMU district follows
same substandard lot rules as R3 and R3
PROPOSED ZONING ORDINANCE
AMENDMENTS
5. UPDATE COMMERCIAL
USE TABLE
Zoning Code Table 17.34-A: Commercial
Districts – Use Standards
Use standards for new use classifications
added
Changes to where supportive housing,
transitional housing, and emergency shelters
are allowed
PROPOSED ZONING ORDINANCE
AMENDMENTS
6. UPDATE OVERLAY AND SPECIAL DISTRICTS
Zoning Code Section 17.38.010, Overlay and Special Districts – Purpose Zoning Code Section 17.38.040, Overlay and Special Districts – Priority Development Area (PDA) Overlay District (D2)
References to 23rd Street Specific Plan removed
PROPOSED ZONING ORDINANCE
AMENDMENTS
7. UPDATE PARKING STANDARDS
Zoning Code Section 17.54.020, Parking and Loading – Residential Off-Street Parking Requirements Community Care Facilities, Large: Requirement reduced from 1 space per 6 beds + 1 per employee to 1 space per 8 beds + 1 per employee. Moved from Commercial table to Residential table. Community Care Facilities, Small: Requirement reduced from two covered spaces plus one space per employee to one space per employee at the highest staffed shift.
Multifamily dwellings: Requirement reduced from 2 covered spaces per unit. New requirement: 1 space per studio/1bd, 2 spaces per 2+bd unit, at least one space per unit must be covered Single-family dwellings and duplexes: Requirement reduced from 2 covered spaces to 2 spaces, one of which must be covered. Administrative approval requirement for tandem parking removed. Emergency shelters: One space per employee at highest staffed shift Employee housing: Two spaces, one of which must be covered, are required
PROPOSED ZONING ORDINANCE
AMENDMENTS
7. UPDATE PARKING STANDARDS
Zoning Code Section 17.54.020, Parking and Loading – Residential Off-Street Parking Requirements Consolidates single-family parking requirements so that they are the same regardless of lot size, and no administrative review or administrative use permit is required for tandem parking on any size lot This edit is for clarity and consistency with new reduced covered parking requirements in accordance with HAP program 1-G
PROPOSED ZONING ORDINANCE
AMENDMENTS
7. UPDATE PARKING STANDARDS (cont.)
Zoning Code Section 17.54.050, Parking and Loading – Parking Waivers and Reductions Additional 10% parking reduction for mixed-use projects Reduced standards for housing on properties owned by faith-based institutions, per state law:
Subject to CUP , additional reductions may be granted for projects implementing TDM measures E.g.: Transit pass subsidies, secure bike rooms, parking cash-outs or unbundled parking
PROPOSED ZONING ORDINANCE
AMENDMENTS
8. REVISE DENSITY BONUS ORDINANCE
Zoning Code Section 17.60.020, Special Residential Uses - Density Bonus and Other Incentives Entire Density Bonus section removed
Replaced with new, rewritten ordinance
Based on ABAG Model Ordinance
Includes additional sections:
More specific incentives
Additional incentives for projects consolidating small lots and providing larger bedroom counts
PROPOSED ZONING ORDINANCE
AMENDMENTS
8. REVISE DENSITY BONUS
ORDINANCE
Zoning Code Section 17.60.020, Special
Residential Uses - Density Bonus and Other
Incentives
PROPOSED ZONING ORDINANCE
AMENDMENTS
8. ENHANCE MOBILE HOME PARK REGULATIONS
Zoning Code Section 17.60.060, Special Residential Uses – Mobile Home Parks
PROPOSED ZONING ORDINANCE
AMENDMENTS
9. UPDATE ACCESSORY DWELLING UNIT (ADU) REQUIREMENTS
Zoning Code Section 17.60.070, Special Residential Uses – Accessory Dwelling Units Reference to 23rd street specific plan removed
Deed restriction section updated to clarify that deed restrictions are only required for JADUs, not ADUs
PROPOSED ZONING ORDINANCE
AMENDMENTS
9. UPDATE ACCESSORY DWELLING UNIT (ADU) REQUIREMENTS
Zoning Code Section 17.60.070, Special Residential Uses – Accessory Dwelling Units Additional small changes in response to CalHDL comment letter addended to original packet:
“ADU pursuant to Government Code section 66323(a)(4):” an ADU with 4ft side and rear setbacks no more than 800sf in area that meets the height requirements of state law. Tweaks front setback requirements to clarify that they do not apply to 66323 ADUS Edits parking requirements to clarify when they do not apply to 66323 ADUs Clarifies that 6 foot building separation to affirm that it does not apply to 66323 unit Updates government code sections that are referenced to match new numbering scheme
PROPOSED ZONING ORDINANCE
AMENDMENTS
10. UPDATE EMERGENCY SHELTER REQUIREMENTS
Zoning Code Section 17.60.080, Special Residential Uses – Emergency Shelters Requirement that emergency shelters must be at least 500ft away from one another is struck
11. UPDATE SINGLE-ROOM OCCUPANCY REQUIREMENTS
Zoning Code Section 17.60.090, Special Residential Uses – Single-Room Occupancy (SRO) Language is amended to allow for SRO units to be occupied by up to 2 individuals
PROPOSED ZONING ORDINANCE
AMENDMENTS
12. INTRODUCE STANDARDS FOR LOW-BARRIER NAVIGATION CENTERS Zoning Code Section 17.60.100, Special Residential Uses – Low-Barrier Navigation Centers Purpose: Encourage provision of accessible temporary shelter with access to services Defined as “a housing-first, low-barrier service-enriched shelter focused on moving people into permanent housing that provides temporary living facilities while case managers connect individuals experiencing homelessness to income, public benefits, health services, shelter, and housing.” “Low-barrier” may include allowing presence of partners (at appropriate shelter types), allowing pets, having places to store possessions, and having privacy
Requirements: Must have connected services, a coordinated entry system, must comply with applicable State codes, and must have a Homeless Management Information System.
PROPOSED ZONING ORDINANCE
AMENDMENTS
13. UPDATE ZONES FOR RETAIL CANNABIS
Zoning Code Section 17.62.130, Special Nonresidential Uses – Regulation of Cannabis Activity Establishes that retail cannabis is allowed in the EMU and MUCW zones Removes reference to 23rd St Specific Plan
PROPOSED ZONING ORDINANCE
AMENDMENTS
14. NEW DEFINITIONS OF “FAMILY”
AND “SINGLE HOUSEHOLD
UNIT”
Zoning Code Section 17.68.020, Universal Terms
- Universal Definitions
Modernized definitions to be more inclusive of
diverse household types
PROPOSED ZONING ORDINANCE
AMENDMENTS
15. UPDATE RESIDENTIAL USE CLASSES
Zoning Code Section 17.70.010, Use Classification
Descriptions – Residential Uses
“Community Care Facilities” and “Residential Care Facilities” replaced with “Community Care Facilities, Large” and
“Community Care Facilities, Small”
Definitions tweaked
New classes: “Employee housing, 6 or Fewer” and “Employee Housing, 7+”
Definitions based on state law
PROPOSED ZONING ORDINANCE
AMENDMENTS
15. UPDATE RESIDENTIAL USE
CLASSES
Zoning Code Section 17.70.010, Use Classification
Descriptions – Residential Uses
New use class: Low-Barrier Navigation Centers
New use class: Shopkeeper Housing
Single-Room Occupancy modified to allow for 2
occupants per room
PROPOSED ZONING ORDINANCE
AMENDMENTS
16. UPDATE COMMERCIAL USE CLASSES
Zoning Code Section 17.70.040, Use Classification Descriptions – Retail, service, and office use classes Reference to 23rd Street Specific Plan removed from “Specialty Food Retail” and “Specialty Goods Retail”
GENERAL PLAN
CONFORMANCE
Supporting General Plan Policies
LU-G-1: Promote a sustainable, balanced land use pattern that responds to existing and future needs of the City, as well as physical constraints.
LU-G-2: Ensure planned land uses are compatible with existing uses and provide for appropriate transitions or buffers for new uses, as needed.
LU-G-5: Promote a variety of housing types and prices within neighborhoods to serve the needs of all economic segments of the community.
LU-I-3: Ensure that land use development occurs in an orderly fashion and in pace with the expansion of public services and utilities.
LU-I-21: Support residential infill on vacant and underused lots within existing neighborhoods.
ZONING ORDINANCE
COMPLIANCE
The proposed zoning ordinance amendments are consistent with the purposes of the Zoning Ordinance:
Section 17.01.020, “Purpose,” the purpose of the ordinance is to promote growth of the city in an orderly manner and to promote and protect the public health, safety, peace, comfort, and general welfare in conformance with the general plan.
The proposed amendment helps to implement the 2023-31 Housing Element, which is designed to promote new housing development and the preservation and improvement of existing housing, and the changes required by General Plan Update 2035, which are designed to better promote the orderly and harmonious development of the City by establishing new zoning designations to better match existing and planned future conditions of the sites in question.
PUBLIC HEARING NOTICE
Public hearing notice published in the West County Times (West Contra Costa edition of East Bay Times) newspaper on Wednesday, October 28, 2025.
ENVIRONMENTAL
DOCUMENTATION
Housing Element environmental impacts analyzed under March 18, 2024 Addendum to 2011 General Plan EIR
General Plan environmental impacts assessed under July 7, 2025 Addendum to General Plan 2030 EIR
These addenda confirmed that the proposed zoning code changes associated with adoption and implementation of the Housing Element and General Plan Update would not result in any additional or more significant environmental impacts, and no further environmental analysis is required.
ADU text amendments are statutorily exempt from CEQA pursuant to Public Resources Code Section 21080.17.
Additionally, PRC section 21080.085 states that CEQA does not apply to rezonings that implement actions contained in an approved housing element.
CONCLUSION
•Updates Zoning Ordinance to implement Housing Action Plan programs, as well as further implement General Plan Update 2035 and align ADU ordinance with state law
•Assists in the use and administration of the Ordinance by providing updated zoning standards, new uses, and more
•Helps improve the orderly future growth and development of the City by implementing improved zoning designations and encouraging development that meets housing needs and goals
•Consistent with the goals of the General Plan and purpose of the Zoning Ordinance.
PLANNING COMMISSION
RECOMMENDATION
•Proposed amendments were reviewed by the San Pablo Planning Commission at a duly noticed public hearing on Tuesday,October 28, 2025 •Planning Commission recommended adoption of the proposed Ordinance to City Council by a vote of 4 ayes, 1 absent
STAFF RECOMMENDATION
Review proposed amendments, as set forth in proposed Text Amendment and summarized in the Staff Report
Conduct a Public Hearing
Adopt Ordinance Amending the San Pablo Zoning Code Chapters Code Chapter 17.26, Establishment of Zoning Districts; Chapter 17.32, Residential Districts, Allowed Uses, and Development Standards; Chapter 17.34, Commercial And Industrial Districts, Allowed Uses, and Development Standards; Chapter 17.38, Overlay and Special Districts; Chapter 17.54, Parking and Loading; Chapter 17.60, Special Residential Uses; Chapter 17.62, Special Nonresidential Uses; Chapter 17.68, Universal Terms; and Chapter 17.70, Use Classification Descriptions, to implement twelve programs of the Housing Action Plan of the San Pablo 2023-31 Housing Element, and to implement the land use designations of the General Plan Update 2035.
QUESTIONS?