Planning Commission Staff Report Page 1 of 4 December 11, 2025 Agenda Item No. 5.2.2
DATE: December 11, 2025
TO: Members of the Planning Commission
FROM: Carmela Campbell, Economic and Community Development Director
SUBJECT: Zoning Text Amendment (AT-25-003) to Title 18, Zoning of the Union City Municipal Code to Amend Chapter 18.08, Definitions;
18.27, Village Mixed Use (VMU) District; 18.36, Commercial Districts; 18.50, Civic Facilities (CF) District; and 18.92, Open Space (OS) Zoning District.
APPLICANT: The City of Union City
REQUEST: The City of Union City is proposing to update its zoning regulations in Chapters 18.08 Definitions; 18.27 Village Mixed Use (VMU) District;
18.36 Commercial Districts; 18.50 Civic Facilities (CF) District; and
18.92, Open Space (OS) Zoning District of Title 18, Zoning, of the Union City Municipal Code.
LOCATION: Citywide
ENVIRONMENTAL ASSESSMENT:
The amendments are exempt from environmental review in accordance with the California Environmental Quality Act (CEQA) Guidelines Section 15061(b)(3), the general exemption for projects with no potential for a significant effect on the environment. As a series of text amendments, it can be seen with certainty that there is no possibility that the amendments will have a significant effect on the environment.
EXECUTIVE SUMMARY:
The City has received feedback from local businesses regarding current regulations and allowed uses. Staff has reviewed the feedback and is proposing amendments which streamline the regulations and expand the allowed uses. Further the City is proposing minor amendments to facilitate ongoing projects on city owned property and clean up regulations in the Open Space (OS) zoning district.
The City is proposing to amend Chapters 18.08 Definitions; 18.27 Village Mixed Use (VMU) District; 18.36 Commercial Districts; 18.50 Civic Facilities (CF) District; and 18.92, Open Space (OS) Zoning District of Title 18, Zoning, of the Union City Municipal Code (UCMC). The proposed zoning text amendment aims to support local businesses in terms Attachment 2
Agenda Item No. 5.2.2
Planning Commission Staff Report Page 2 of 4 December 11, 2025 3 2 of operations and allowed uses and facilitates ongoing projects on City-owned properties.
See Attachment 1A - Exhibit A Zoning Text as Amended (Clean) and Attachment 1BExhibit B Zoning Text as Amended (Redlines) for the proposed amendment wording.
I. BACKGROUND
The City has received feedback that current regulations regarding live music are burdensome as they require live music to cease at 12:00 pm. Additionally, staff received inquiries regarding needed event space within the Historic Alvarado District. Staff reviewed this feedback and recommends amendments to Chapters 18.08 Definitions,
18.27 Village Mixed Use (VMU) District, and 18.36 Commercial Districts to streamline requirements for live music and allow for event spaces within the VMU district while maintaining the regulations necessary to protect community health, safety, and wellbeing.
Amendments are proposed to Chapter 18.50 Civic Facilities (CF) District and 18.92 Open space (OS) Zoning District to support City and other public entities’ projects.
The City has entered into agreements for establishment of temporary contractor yards on City-owned property to support its projects as well as outside utility projects. Temporary contractors’ yards/ construction offices are routinely allowed on site during a construction project; however, many public projects occur within the public rights of way or on sites which have limited or no vehicle access. To support these important public projects the city is proposing to allow “temporary contractor yards for public projects on publicly owned properties” as a permitted use within the CF and OS zoning districts.
Additionally, the amendments clean-up regulations within the OS district to account for existing conditions. The clean-up would clarify lot size minimums and setbacks within the OS Zoning District.
Union City Municipal Code (UCMC) Section 18.92.200 states that public lands are not subject to the minimum lot size if they include uses such as parks, trails, day camps, historical sites, other similar public facilities. However, lots that are designated public lands are still subject to the required 100-foot setbacks. The City’s public parks are zoned Open Space. Almost all have lot areas under 10 acres, and the existing development does not meet the 100-foot setback requirements. While these lots can continue to exist as they are legal non-conforming, this would limit the city’s ability to make further improvements to these lots. To address these issues the proposed amendments would eliminate setbacks for publicly owned lands.
There are a number of lots which have been zoned open space due to them being designated "Hazardous lands". UCMC Section 18.92.020 defines Hazardous lands as “lands hazardous to the public health, safety, and welfare (evidence of faults, folding, ground movement, slopes, unstable soil bearing valves, natural fire areas, areas susceptible to floods and other similar conditions).” Many of these lots do not meet the minimum lot area required by UCMC Section 18.92.070. The proposed amendment would eliminate lot area minimums for lots designated Hazardous lands.
Lastly, due to the number of existing lots within the OS district which are under 10 acres the proposed amendments would reduce the setbacks for these lots. The current 100- feet setbacks make many of these lots undevelopable even for uses which are permitted in the zoning district.
II. DISCUSSION
A high-level summary of the amendments is included below. For a more detailed review, Agenda Item No. 5.2.2
Planning Commission Staff Report Page 3 of 4 December 11, 2025 3 2 see Attachment 1A - Exhibit A Zoning Text as Amended (Clean) and Attachment 1B - Exhibit B Zoning Text as Amended (Redlines).
A. Chapter 18.08, Definitions
The amendments to Chapter 18.08 adjust the numbering and add a definition for “Event space”. This definition is needed to clarify the operations which would fall under the event space use.
B. Chapter 18.27, Village Mixed Use (VMU) District
The amendments to Chapter 18.27 allow “event space” as a conditional use within the VMU district and establishes additional standards for event space uses. These additional standards require a security plan and facilitate outdoor operations.
C. Chapter 18.36, Commercial Districts
The amendments to Chapter 18.36 modify standards for live music. These modifications include:
• Modifying where non amplified and amplified live music is permitted. • Removing burdensome regulations which are difficult to track and enforce • Clarifying requirements
D. Chapter 18.50, Civic Facilities (CF) District
The amendments to Chapter 18.40 allow “temporary contractor yards for public projects on publicly owned properties” as a permitted use within the CF zoning district.
E. Chapter 18.92, Open Space (OS) Zoning District
The amendments to Chapter 18.92 would allow “temporary contractor yards for public projects on publicly owned properties” as a permitted use within the OS zoning district.
Additionally, the amendment would modify site area and yard standards by eliminating minimum site areas for public lands and hazardous lands, eliminating setbacks for public lands, and reducing setbacks for sites under 10 acres.
F. Consistency with the General Plan
The proposed Zoning Text Amendments are consistent with the following Union City 2040 General Plan policies. There are no applicable specific plans. • Policy ED-3.1 Support Local Business Expansion, Policy ED-7.3 Remove regulatory barriers and Policy SA-11.9 Allow Uses that Support the Vision for the Historic Alvarado District. The proposed amendments implement these policies through removing regulatory barriers which have made it difficult for local businesses to expand operations and allow for new use in the VMU zoning district that supports the vision of the Historic Alvarado District. • Policy PF-3.1 Enhance and Improve water service and Policy PF-3.2 Preserve and Enhance Water Supply. The proposed amendments support these policies by facilitating the use of City owned property as temporary contractor yards for public projects including utility improvements by USD and ACWD.
G. Noticing & Communication
Agenda Item No. 5.2.2
Planning Commission Staff Report Page 4 of 4 December 11, 2025 3 2 Consistent with state law noticing requirements, a public hearing notice was published in The Argus newspaper on November 21, 2025. As of the publication date of this staff report, no public comment has been submitted regarding the proposed amendments.
E. Conclusion
The proposed Zoning Text Amendments are consistent with the applicable policies in the General Plan. Staff recommends that the Planning Commission recommend approval of Zoning Text Amendment (AT-23-003) to the City Council and make the required findings as provided in Section III of this report and discussed in the attached resolution, in support of this approval.
III. REQUIRED FINDINGS
Section 18.64.060 requires that, when considering zoning text amendments, the Planning Commission shall provide a recommendation to the City Council on the following:
1. Recommending that the application be granted or denied or that the proposal be adopted or rejected, including the reasons for the recommendation;
2. The relationship of the application or proposal to the general plan and any applicable specific plans; and
3. Whether the change is necessary or desirable to achieve the purposes of Title 18.
IV. ALTERNATIVES
1. Recommend approval of the proposed Zoning Text Amendment (AT-25-003) to the City Council as proposed;
2. Recommend approval of the proposed Zoning Text Amendment (AT-25-003) to the City Council with stated modifications;
3. Recommend denial of the proposed Zoning Text Amendment (AT-25-003) to the City Council, stating reasons for denial;
4. Continue the matter for further consideration.
V. RECOMMENDATION
Staff recommends that the Planning Commission recommend approval of Zoning Text Amendment (AT-23-003) to the City Council based on the required findings in support of this action:
Prepared by:
Brandon H. DeLucas, Contract Senior Planner
Attachments
Attachment 1: Draft Resolution
Attachment 1A: Draft City Council Ordinance
Attachment 1B: Exhibit A: Zoning Text as Amended (Clean) Attachment 1C: Exhibit B: Zoning Text as Amended (Redlined)