City Council Staff Report Page 1 of 11 March 24, 2026
Staff Report
Agenda Item No. 4.1
DATE: March 24, 2026
TO: Honorable Mayor and Members of the City Council
FROM: Joan Malloy, City Manager
SUBJECT: Hold a Public Hearing and Adopt a Resolution of the City Council of the City of Union City Accepting the 2025 General Plan Annual Progress Report and the 2025 Housing Element Annual Progress Report
EXECUTIVE SUMMARY
Staff recommends that the City Council hold a public hearing and adopt the attached resolution (Attachment 1) accepting a report on the attached General Plan Annual Progress Report (“GP APR”) (Exhibit A) and the Housing Element Annual Progress Report (“HE APR”) (Exhibit B).
STRATEGIC PLAN ALIGNMENT
While this agenda item does not align with a specific Strategic Plan goal, acceptance of these reports supports the Strategic Plan’s citywide vision to communicate progress regularly to the City Council, employees, and the community through updates and reports.
BACKGROUND
California Government Code Section 65300 requires each city and county to adopt a general plan for the physical development of the jurisdiction. On December 10, 2019, the City Council adopted the Union City 2040 General Plan. The Housing Element, which addresses existing and projected housing needs, is one of the required elements of a general plan. The City’s 6th Cycle Housing Element, covering the period from 2023 through 2031, was adopted on May 23, 2023.
Consistent with California Government Code Section 65400(a)(2), the City is required to submit these reports to the Governor’s Office of Land Use and Climate Innovation and the California Department of Housing and Community Development by April 1 of each year. State law requires that the reports be presented to the City’s legislative body for review and acceptance. In addition, Housing Element Implementation Program HE-1.K requires the City to prepare an annual progress report on housing needs and implementation progress, and to present it to the City Council at a public hearing.
Agenda Item No. 4.1
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The GP APR (Exhibit A) addresses several components, including the City’s compliance with General Plan implementation programs, notable General Plan and Zoning amendments, and any required tribal consultation under state law when a General Plan amendment is proposed.
The HE APR (Exhibit B) summarizes the City’s progress in meeting its share of the regional housing needs allocation and implementing the programs contained in the 6th Cycle 2023–2031 Housing Element. The HE APR is prepared using electronic forms provided by the California Department of Housing and Community Development, and the City cannot modify the form’s font size or formatting.
DISCUSSION
Attached to this staff report are the City’s 2025 GP APR, included as Exhibit A, and the 2025 HE APR, included as Exhibit B. A high-level overview of each report, including selected 2025 highlights, is provided below.
A.General Plan Annual Progress Report
Consistency with State General Plan Guidelines
The Background section of the GP APR describes the process of developing the 2040 General Plan and the implementation programs to guide the plan’s goals.
Status of the General Plan Implementation Progress
The GP APR provides the status of the 2040 General Plan’s implementation programs.
The status is provided in the GP APR Summary Table (Attachment 1 to Exhibit A), which lists the programs that implement each element. There are a total of 116 implementation programs that implement the General Plan’s nine (9) elements.
Several of the implementation programs have been completed. A description of the notable progress implementing the General Plan in 2025 is highlighted below for each element.
Agenda Item No. 4.1
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Agenda Item No. 4.1
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Economic Development
• ED-1.A - Economic Development Strategic Plan. In 2025, the consultant worked with Economic Development staff to prepare a detailed analysis of the factors influencing economic development within the City. In addition, stakeholder interviews were conducted with the City Council, industrial and commercial businesses, property owners, real estate brokers in Union City, and others. These inputs went into the development of the plan’s goals, objectives, strategies, and implementation, which are currently being finalized. Approval from the City Council is anticipated in Spring 2026.
• ED-6.A - Retail Performance Monitoring. In 2025, the City worked with the new property owners of Central Plaza, located on Alvarado-Niles Road, which includes some commercial uses, on a blanket Use Permit to streamline the approval process for the establishment of new commercial uses (i.e., offices, restaurants, educational uses, etc.) and facade upgrades to modernize the existing center. • Additionally, the Union Landing Property and Business Improvement District (PBID) was renewed for an additional 5-year term, and a third-party management organization was hired to administer the district. Retail vacancy rates remain low, especially at Union Landing.
Staff also regularly worked to connect with the owners and brokers of the neighborhood shopping center to understand market trends and challenges.
Communication success has been mixed, with some stakeholders more engaged than others. This topic is also outlined in the draft Economic Development Strategic Plan.
• ED-7.A - Business Outreach Program.
o Staff worked with Mizuho OSI and Azimuth Semiconductor on business expansion efforts. Staff also worked closely with United Mechanical and Metal Fabricators (UMEC) on the construction of a building located near their current facility. In all three cases, staff have supported these businesses through the building and permit processes.
o Ongoing participation in the City's Homeless Task Force is critical to ensuring businesses and staff work together to address the adverse impacts of homeless individuals on businesses, including theft, employee safety, and business disruptions.
o Staff referred businesses in expansion mode to property owners with vacancies. o To promote Union City to new businesses and investors, staff worked with the San Francisco Business Times (SFBT) to create a "special insert." o With ongoing participation in East Bay Economic Development Alliance (EBEDA) and Silicon Valley Economic Development Alliance (SVEDA), staff can stay abreast of market conditions and other issues that impact businesses and economic development.
Agenda Item No. 4.1
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Health & Quality of Life
• HQL-2.A - Parks and Recreation Master Plan. In June 2025, staff from Community and Recreation Services (CRS) and the Public Works Departments began work on the Parks and Recreation Master Plan, which provides a vision for the next 15 years.
Union City contracted with Gates and Associates to assist in developing the plan. In 2025, City staff held the first round of community engagement activities to share the recommendations of the Parks and Recreation Master Plan and to solicit residents' vision and needs. There will be a second round of community engagement to refine the emerging themes and recommendations for the Master Plan. It is anticipated that the Plan will be completed by December 2026 and presented to City Council for review and approval late 2026 to early 2027.
• HQL-4.B - Public Service Grants. In Program Year 2025 (PY25), the City received a CDBG entitlement grant of $474,879. Union City used CDBG funds for various activities that benefited low- and moderate-income people throughout the City.
These activities included:
o Home repair grants for owner-occupied low-income households o Meals and health/mental health services for low-income seniors o Support for survivors of domestic violence
o Business support, education, technical assistance, and incentives to help residents launch and operate in-home, family childcare businesses o Fair housing support for tenants
o Park improvements to Charles F. Kennedy Park
o Support of homeless adults and children, including shelter, meals, case management, and housing search services to homeless individuals o Support of seniors in the form of comprehensive in-person and video conference assessment for care planning, financial planning, legal assistance, transportation assistance, entitlement program access, nutrition program, personal care, and protective services.
The City also receives a HOME allocation each year. For PY25, the City received an allocation of $130,108 in HOME funds. The funds were used for Tenant-based Rental Assistance, which is a program managed by the City of Fremont. In addition, funds were used to support the City’s Scattered Sites Program, which is a partnership with Bay Area Community Services.
Agenda Item No. 4.1
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Agenda Item No. 4.1
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Community Design
• CD-6.B - Mural Program. CRS staff have been working on the BART Mural Project to place murals on nine (9) BART pillars. In addition, there were eight (8) utility box mural projects completed in 2025 at the following locations: Whipple Road and Ithaca Street; Smith Street and Tidewater Drive; Whipple Road and Mission Boulevard, Union City Boulevard and Jean Drive, Alvarado-Niles Road and Hop Ranch Road, Alvarado-Niles Road and Nidus Court, Union Landing Boulevard and Alvarado-Niles Road, and Alvarado Boulevard and Fredi Street. • CD-6.C - Public Art Inventory. Per direction from the Arts & Culture Commission, CRS staff are creating an inventory of existing public art throughout the City, including utility boxes, murals, statues, and other works.
Mobility
• M-1.A Complete Street Design Standards. Public Works staff continue to incorporate complete street design standards into street resurfacing projects when feasible. Design plans for upcoming projects, such as Quarry Lakes Parkway, Arizona Street Bike Boulevard, and Decoto Road Phase 2 Project, will adopt these standards. Staff also continues to review the City's standard specifications and design criteria, including complete street standards when feasible. • M-1.B Evaluate Performance of Transportation Network for All Users. As private development and public projects are designed, staff continue to include upgraded features, such as a camera detection system, across all types of street networks. In addition, network evaluations for all users are incorporated as feasible.
For example, the City is preparing project plans for a part-time bus lane on AlvaradoNiles Road to improve bus schedule efficiency. • M-2.B ADA Transition Plan-related Improvements. The Annual Sidewalk, Curb and Gutter, and Ramp Repair Project, City Project No. 25-03, was completed in 2025. The project made improvements at approximately 117 locations citywide to repair uplifted or damaged sidewalks and curb and gutter, and to upgrade sidewalks. • M-3.A Short-Range Transit Plan. Union City Transit started the Short-Range Transit Plan (SRTP) in fall 2025. There are upcoming public outreach meetings scheduled for spring 2026 to gather initial community input, so the SRTP contractor can draft a report to present at public outreach meetings in fall 2026, with anticipated adoption in December 2026.
• M-3.C Convert Bus Fleet. The Federal Transit Administration (FTA) threatened to rescind awarded but unobligated discretionary funds for six battery-electric buses unless Union City Transit changed the buses' propulsion systems. Union City Transit complied and modified the grant; secured the funds; canceled the order for six battery electric buses as eight of the original fourteen battery electric buses ordered were already on the production assembly line; and ordered seven compressed natural gas (CNG) buses using the new FTA grant funds before the December 31, Agenda Item No. 4.1
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2025, deadline and before the California Air Resources Board (CARB) Innovative Clean Transit (ICT) regulation became applicable to Union City Transit on January 1, 2026. The eight battery electric buses that were part of the original order were delivered before December 31, 2025.
Safety
• S-1.A Maintain Codes and Regulations to Ensure Safety. The City Council adopted an update to the Building Code in November 2025 (Ordinance No. 2025- 006). The ordinance adopted the 2025 California Building Standards Code by reference and includes local amendments consisting of structural, fire and life safety, green building and sustainability, and administrative provisions or procedures. In accordance with state law, the 2025 California Building Standards Code, including all related appendices, went into effect on January 1, 2026. • S-2.A Comprehensive Emergency Management Plan. In 2025, the City's Office of Emergency Services (OES) launched a project to update the City's Emergency Operations Plan and all supplemental documents. In December 2025, the City Council adopted the new Emergency Operation Plan (EOP), which replaces the previous Comprehensive Emergency Management Plan (CEMP). • S-7.A Ensure Compliance with Hazardous Materials Regulations. The Environmental Programs Division made improvements to the City's Hazardous Materials Business Program. All but one deficiency from the State audit was satisfactorily corrected in 2025. Environmental Programs staff completed 299 CUPA program inspections at 111 facilities.
Public Facilities
• PF-2.A Customer Service Improvement. In 2025, the City began procuring a modernized online permitting system. Once implemented, the new system will replace the City’s current paper-based process and will increase transparency and accessibility for the public. Features of the new online system include processing Building, Planning, and Public Works permits; tracking related inspections; tracking Neighborhood Preservation cases; and supporting regulatory compliance activities. • PF-6.A Public Education Program on Waste Reduction, Recycling, Composting, and Green Purchasing. The following coordinated efforts continue to advance SB 1383 compliance, support greenhouse gas reduction goals, increase diversion, and promote long-term sustainable materials management within the community.
o The City further strengthened its public education program by enhancing the Community Compost Hub and expanding outreach and technical assistance efforts across all community segments, including single-family residents, multifamily properties, commercial businesses, schools, and community organizations. o Improvements to the Compost Hub included upgraded and standardized signage, improved site layout for safer and more efficient compost loading and pickup, Agenda Item No. 4.1
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clearer instructional graphics on proper compost use, and expanded educational displays with QR-linked digital resources to reinforce proper organics diversion, recycling practices, and green purchasing.
o Completed the rollout of new solid waste containers to all customers featuring SB 1383-compliant colors, standardized labeling, and clearer visual guidance to reduce confusion and contamination.
o City increased sector-specific outreach through updated service guides, targeted mailers, bill inserts, contamination feedback tags, and on-site engagement. o In coordination with its franchise haulers, the City expanded contamination monitoring (“lid-flipping”) campaigns and route-level education to reduce improper sorting, improve material quality, and enhance collection efficiencies. • PF-8.F Cybersecurity Plan. Union City has made significant progress in advancing and implementing our Cybersecurity Plan in 2025, including the following achievements:
o Introduced 24/7 identity monitoring to safeguard user access to cloud services o Enacted risk-based access controls to Microsoft's 365 environment o Implemented multi-factor authentication for remote connections to City systems and in support of CJIS requirements for UCPD
o Conducted the City’s first cybersecurity tabletop exercise, strengthening incident response preparedness
o Updated Union City's Cybersecurity Roadmap and Risk Register o Deployed a web application firewall to protect critical business services from external threats
o Delivered community workshops focused on fraud prevention and cybersecurity awareness for seniors
o Supported youth career development through cybersecurity training and educational programs
• PF-9.A Police Department Strategic Plan. The Police Department (PD) completed the fourth year of its 5-Year Strategic Plan. The PD continued to focus on transparency, accountability, and increased communication. One of the major highlights was identifying two officers who will transfer into the Community Oriented Policing and Problem Solving (COPPS) Unit at the beginning of 2026.
Resource Conservation
• RC-7.A - Update the Climate Action Plan. In 2025, City staff continued work on this action item by reviewing consultant proposals and conducting interviews to select a consultant to help update Union City's CAP. On May 13, 2025, the City Council adopted Resolution No. 2025-067, authorizing Ascent Environmental, Inc. to prepare the CAP update. Concurrently, the City Council also adopted Resolution No. 2025-070, establishing a Climate Action Plan Task Force, a Brown-Act body to provide policy guidance throughout the update development and support its implementation. The CAP Task Force comprises two City Councilmembers, three commissioners, and two at-large community members.
Agenda Item No. 4.1
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The project (CAP 2.0) officially commenced on July 23, 2025, with a kick-off meeting.
The initial months involved an audit of existing City documents and policies, gathering the requisite data, establishing an ICLEI account, and transferring the data to ClearPath 2.0. Concurrently, the project team also refined the project timeline and developed an engagement plan to guide work through 2025 and 2026.
In September 2025, the CivicSpark Fellow was hired to support ongoing coordination and analysis. City staff also continue to monitor evolving state requirements and regional climate and adaptation initiatives to identify opportunities for alignment and collaboration. On October 23, 2025, the Task Force convened for the first time, receiving an overview of state climate goals, the purpose and structure of climate action plans, the CAP 2.0 scope and schedule, and the Task Force’s advisory role.
Upcoming work on CAP 2.0 will include more Task Force meetings and community workshops to support public engagement and stakeholder input. Preparation of the Draft CAP 2.0 is anticipated in winter 2026/2027, with City Council consideration and adoption of the Final CAP expected in spring 2027.
Special Areas
• SA-1.B Funding for Station District Public Improvements. o The construction contract for the At-Grade Pedestrian Crossing to BART was awarded in 2025 and is anticipated to be completed in early 2027. o Oakland Subdivision replacement of concrete panels took place in the summer of 2025.
o Decoto Road Rehabilitation Project Phase 2 is scheduled to begin construction in Spring 2027. This project will add improved bike lanes and pedestrian infrastructure on Decoto Road. (from Mission Road to 11th Street) leading to BART.
o The Block 5 Mobility Hub project was funded through MTC's 2024 Climate Program Implementation Grants - Regional Mobility Hubs in the amount of $2,259,000. The project will be in planning and design through mid-2027. The Block 5 Mobility Hub project will complete the eastside improvements at the Union City BART Station with new transit amenities to support the East Plaza/Transit Loop area. These improvements include bus shelters, wayfinding signage, and informational signage for UC Transit and FLEA service. The project also includes a new transit plaza with benches, bike lockers, and repair stations, along with new lighting and landscaping. The project also includes the replacement of existing and the addition of new Union City Transit Center identification signs within the surrounding Station District area.
• SA-10.A Evaluate Lighting Levels in the Decoto Neighborhood. The lighting analysis for the Alvarado-Niles Road and Decoto Road corridors has been completed. Both corridors have been identified as part of the high-injury network in the Local Roadway Safety Plan (LRSP). Lighting improvements will be implemented in phases as funding becomes available.
Agenda Item No. 4.1
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General Plan and Development Code Amendments
In 2025, the City processed the following zoning text amendments:
• Title 18, Zoning, Chapter 18.34, Accessory Dwelling Units was amended in accordance with Housing Element Policy, HE-2.D Accessory Dwelling Unit (ADU) Promotion. The updates also included minor amendments to Chapters 18.08, Definitions; 18.31, SB 9, Subdivisions and Development Projects; 18.32, Residential Districts; and 18.33, Affordable Housing, to be consistent with the updates to Chapter 18.34.
• Chapters 18.08 Definitions, 18.27 Village Mixed Use District, and 18.36 Commercial Districts were amended to streamline regulations for live music uses and to allow event space uses within the Village Mixed Use (VMU) District. These amendments implement Implementation Policy SA-11.C, Review Permitted Uses in the Zoning Ordinance, which calls for a periodic evaluation of permitted commercial uses to support the economic vitality of the Smith Street commercial area.
Consultation with California Native American Tribes
Chapter 905 of the Statutes of 2004 requires that, when preparing or amending a general plan or adopting a specific plan, cities and counties provide opportunities for citizen involvement from California Native American tribes. There were no general plan amendments and, therefore, no tribal consultations.
B.Housing Element Annual Progress Report
Consistent with state requirements, the HE APR provides progress on housing development and housing-related programs for 2025, reflecting the City’s progress toward meeting its share of the regional housing need allocation (RHNA). RHNA determines the number of new residential units across various income levels that a local jurisdiction must plan for every eight years.
The reporting requirements address information related to discretionary applications for new housing development, compliance with various state requirements, including the identification of the City’s surplus lands and projects processed consistent with SB 35, and the status of state grants the City received.
The HE APR tracks housing progress by reporting the number of discretionary housing applications submitted and the number of building permits and/or certificates of occupancy issued. For housing projects completed or building permits and/or certificates of occupancy issued, the reporting requires the units to be broken into affordability categories based on Area Median Income (AMI) for households. The categories include: Extremely low income (0-30% AMI), Very Low Income (30%-50% AMI), Low Income (50%-80% AMI), Moderate (80%-120% AMI), and Above-moderate (Above 120% AMI). AMI for 2025 for a family of four is as follows:
• Extremely Low Income was between $0-47,950
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• Very Low Income was between $47,950-79,900,
• Low Income was between $79,900-125,050,
• Moderate Income was between $125,050-191,750, and
• Above-moderate Income was $191,750 or more.
For 2025, the City issued building permits for a total of 145 residential units, including 30 Very Low-income units, 56 Low-income units, 19 Moderate-income units, and 23 above-moderate-income units. The building permits issued for the affordable units (i.e., low, very low, and moderate categories) are mainly attributed to the Lazuli Landing project and individual ADUs/JADUs throughout the City. The building permits issued for the above moderate units are mainly attributed to the new homes associated with the Carmel Pointe development in the Seabreeze neighborhood, a 6-unit townhome project at Dyer Street and Meteor Drive, and the development of individual single-family homes.
As part of the HE APR, a Housing Programs Progress Report is also included that summarizes the implementation of the Housing Element programs.
A description of the notable progress in implementing the Housing Element is highlighted below.
• HE-6.D Increase Opportunities in the Decoto and Historic Alvarado District Neighborhoods. The City prioritizes improving public facilities and developing complete streets and transit amenities in the Decoto Neighborhood and the Historic Alvarado District to promote place-based revitalization and enhance pedestrian safety in these older, relatively lower-income areas. In 2024, the City completed a park upgrade to the Old Alvarado/Cesar Chavez Park in the Historic Alvarado District. The City rehabilitated Fred Castro Park, located in the Decoto neighborhood. In 2025, the Charles F. Kennedy Park Rehabilitation project began, serving the Decoto neighborhood.
• HE-7.E Safe Parking Program. The City continues to run the CAREavan program and provide safe parking locations for people experiencing homelessness. Due to recent cuts in state and federal funding, the City is beginning to explore other funding sources to support the program. In 2025, the program assisted 88 vehicles, 104 adults, 19 children, and 30 pets.
• HE-7.F Scattered Site Housing for Persons Experiencing Homelessness. The City has worked closely with BACS and the City of Hayward to secure a conditional award from the Homekey program. The partnership acquired one property with BACS using Homekey funds to provide extremely low-income housing for individuals experiencing homelessness, with an emphasis on identifying sites in high-resource census tracts. BACS successfully secured one property for the City, and the HCD approval process was completed to enter into a standard agreement. This agreement was finalized in December 2024. City staff worked with BACS to prepare the properties for lease-up, and the properties were fully leased by the end of 2025.
Agenda Item No. 4.1
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C.Next Steps
After acceptance by the City Council, staff will submit the GP APR to the Governor's Office of Land Use and Climate Innovation and California Department of Housing and Community Development, and the HE APR to the California Department of Housing and Community Development by the April 1 deadline. Staff will also be presenting the reports to the Planning Commission in April as an informational item.
FISCAL IMPACT
Acceptance of the GP APR and HE APR will not impact the General Fund.
RECOMMENDATION
Staff recommends that the City Council hold a public hearing and adopt the attached draft resolution accepting the 2025 General Plan Annual Progress Report and the 2025 Housing Element Annual Progress Report.
Prepared by: Natalie Dean, Associate Planner
Submitted by: Carmela Campbell, Economic and Community Development Director
ATTACHMENTS
• Draft Resolution
• Exhibit A - General Plan Annual Progress Report
• Exhibit B - Housing Element Annual Progress Report