Local zoning · Burlingame

Burlingame — Overlay Districts

Overlay Districts under the Burlingame local zoning and planning code, with the controlling citations.

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Last reviewed: July 1, 2026

Overview

Overlay districts in Burlingame are geographically‑targeted zoning layers that modify or add to the underlying base zoning rules where special site, design, safety, or compatibility issues exist. The overlay rules live in Chapter 25.20 of the Burlingame Zoning Code and, when they conflict with base zoning, the overlay provisions control. See § 25.20.005 and § 25.06.010 for purpose and the overlay concept.

Note: this page interprets the Burlingame code text only. For building construction standards consult the California Building Standards Code and for process items consult the city's pages on design review, parking, and development standards.

District-by-district breakdown

Below are the overlay districts established in Burlingame with the code citations you’ll need for project planning. Each subsection states the overlay name, primary purpose, typical permitted uses (as stated or by reference to the base zone), the most decision‑relevant dimensional standards, and where the overlay applies (if the code locates it).

Important: where the Code references a process (special permit, conditional use, or Director determination) the overlay text often points to other sections (permit procedures or special permit findings) — verify those cross‑references for project‑specific rules.

Anita Road Overlay (AR)

  • Purpose: Transition/buffer between downtown commercial/Myrtle Road mixed‑use and adjacent single‑family neighborhoods. See § 25.20.010.
  • Permitted uses: Uses follow the underlying zoning except where the overlay limits or allows specific retail via conditional use (limited corner store retail may be allowed with a CUP). See § 25.20.010.D.
  • Key dimensional standards:
    • Maximum height: buildings over 35 ft up to 45 ft require a special permit; nothing may exceed 45 ft. See § 25.20.010.B.1–2.
    • Minimum rear setback: 20 ft. See § 25.20.010.C.
  • Where it applies: Anita Road interface areas as mapped on the official Zoning Map. See § 25.06.020 for how the map is adopted.

Commercial Residential Overlay — California Drive/Edgehill Drive (CR)

  • Purpose: Encourage compatible mixed residential and pedestrian‑oriented retail along the California Drive / Edgehill Drive interface; it modifies CMU rules for this area. See § 25.20.020.
  • Permitted uses: The overlay replaces the CMU allowed uses with the CR table (Table 25.20‑1). Table entries show Permitted (P), Conditional (CUP), Temporary (TUP), and Not permitted (—) statuses for specific uses (e.g., general retail P; certain services P; live/work P; multi‑unit dwellings P). See § 25.20.020.B and Table 25.20‑1.
  • Key dimensional standards:
    • Maximum height baseline 30 ft; buildings >30 ft and ≤36 ft require a special permit. See § 25.20.020.C.1.a.
    • Other residential design exceptions are called out to conform generally to CMU with specific modifications (see the subsection text). See § 25.20.020.C.2.
  • Where it applies: within the California Drive Mixed‑Use (CMU) zoning district at the Edgehill Drive interface; see the official zoning map and Table 25.20‑1 for precise parcels.

Downtown Parking Sector Overlay (DPS)

  • Purpose and specifics: The overlay is listed as § 25.20.030 (Chapter index) but the retrieved materials provide only the chapter index reference; substantive provisions for the DPS were not located in the returned excerpts. See § 25.20.030 (listed) — substantive text Not found in retrieved materials.

Hillside Overlay (H)

  • Purpose and specifics: The Hillside Overlay is an established overlay (listed as § 25.20.040) intended to apply hillside design and development controls. The retrieved excerpts identify the overlay but the detailed standards for the H overlay are Not found in retrieved materials. See § 25.20.040 (listed).

Multi‑Unit Residential Overlay (MUR)

  • Purpose: Provide opportunities to convert historically commercial parcels to multi‑unit residential where retail demand is low; requires compatibility with surrounding uses and services. See § 25.20.050.
  • Permitted uses: Multi‑unit residential is explicitly permitted; other uses consistent with the underlying zone are also permitted. See § 25.20.050.B.
  • Key dimensional standards: Multi‑unit projects must comply with R‑3 development standards (see Chapter 25.10). See § 25.20.050.C.
  • Where it applies: parcels historically supporting commercial uses as mapped in the overlay; check the Zoning Map to confirm applicability.

R‑4 Incentive Overlay (R‑4‑I)

  • Purpose: Incentivize high‑density residential within a specific portion of the Downtown Specific Plan Area (south of Howard Avenue between Highland Avenue and Park Road). See § 25.20.060.A.
  • Permitted uses: Incentivizes high density residential and allows limited corner store retail with a CUP per the referenced standards. See § 25.20.060.B–C.
  • Key dimensional standards:
    • Maximum height allowed 55 ft by right; a special permit is required for any building over 55 ft. See § 25.20.060.B.1.
  • Where it applies: the identified Downtown Specific Plan sub‑area (see Downtown Specific Plan Figure and the official Zoning Map).

Rollins Road Residential Overlay (RRR)

  • Purpose: Provide design sensitivity and transition between the freeway/intercommunity arterial and adjacent single‑family areas for R‑3 properties in the overlay. See § 25.20.070.
  • Permitted uses: Multi‑unit residential per underlying R‑3 but subject to overlay restrictions. See § 25.20.070.A and subsequent subsections.
  • Key dimensional standards:
    • Standard maximum height: 30 ft; buildings up to 36 ft may be allowed with a special permit; no more than two stories. See § 25.20.070.B.1.
    • Minimum front setback: 10 ft or the block average, whichever is greater. See § 25.20.070.C.
    • Common open space: 100 sq ft per unit minimum, 25% of which must be soft landscaping; minimum dimension 15 ft. See § 25.20.070.D.
  • Where it applies: R‑3 properties along Rollins Road as mapped — see the Zoning Map.

Two‑Unit Residential Overlay (R‑1‑2 / Two‑Unit)

  • Purpose: Allow up to two detached or attached dwelling units on one parcel in R‑1 and R‑2 zones and provide an objective, ministerial pathway consistent with state law. See § 25.20.080.A–B.
  • Applicability exceptions: excludes parcels that are subject to affordability covenants, rent/price controls, recently tenant‑occupied units (last 3 years), recent Withdrawals from rental, and properties within historic districts or locally/state‑listed historic resources. See § 25.20.080.B.1–5.
  • Permitted uses: Single‑unit and two‑unit dwellings as permitted uses; home occupations as accessory uses; Accessory Dwelling Units (ADUs) and Junior ADUs are allowed except where lot split rules are implicated. Short‑term rentals (<30 days) are explicitly not permitted in the overlay. See § 25.20.080.C and 25.20.080.E.
  • Key dimensional standards:
    • The overlay ensures development standards do not preclude constructing two units of at least 800 sq ft each. See § 25.20.080.D.1.
    • Maximum height: 30 ft, with stringent rear‑zone low height limits in the rear 20 ft (e.g., 10 ft or 15 ft for certain pitched roofs). See § 25.20.080.D.2.
    • Side/rear setbacks generally follow R‑1 rules but capped at 4 ft where the base standard would exceed that (see Table 25.10‑2 as modified). See § 25.20.080.D.3.
  • Where it applies: properties in R‑1 and R‑2 zoning as mapped, subject to the exceptions above and the official Zoning Map. See § 25.06.020 and § 25.20.080.B.

Quick reference table — decision‑relevant items

Overlay Most relevant standards/controls Code reference
AR (Anita Road) Max height 35 ft (SP for 35–45 ft); rear setback 20 ft § 25.20.010
CR (California Dr/Edgehill) Height baseline 30 ft (SP >30–36 ft); permitted uses listed in Table 25.20‑1 § 25.20.020 and Table 25.20‑1
DPS (Downtown Parking Sector) Text not found in retrieved excerpts — verify mapped rules § 25.20.030 (listed)
H (Hillside) Applicability listed; detailed standards Not found in retrieved excerpts § 25.20.040 (listed)
MUR Multi‑unit allowed; comply with R‑3 development standards § 25.20.050
R‑4‑I Up to 55 ft by right; >55 ft requires SP (Downtown sub‑area) § 25.20.060
RRR Max 30 ft (up to 36 ft with SP); front setback 10 ft; open space 100 sf/unit § 25.20.070
Two‑Unit (R‑1‑2) Ministerial two‑unit pathway; ADUs allowed (subject to exceptions); max height 30 ft; special rear‑zone limits § 25.20.080

Checklist

An applicant for a project in an overlay should, at minimum:

  • Verify the property is inside the intended overlay on the official Zoning Map and note any map layers (e.g., Downtown Specific Plan) — see § 25.06.020.
  • Confirm the overlay designation and read the specific overlay section (§ 25.20.010–25.20.080) that applies.
  • Confirm permitted uses in the overlay (some overlays replace underlying allowed uses — e.g., CR uses in Table 25.20‑1).
  • Check dimensional standards (height, setbacks, open space) in the overlay and related base‑zone chapters (e.g., Chapter 25.10 for residential standards).
  • Identify whether your proposal triggers discretionary review (Special Permit, CUP, Design Review) and locate the applicable process chapters (e.g., special permit findings in § 25.78.040 references).
  • If historic resources are involved, consult the Historic Preservation chapter for designation procedures and incentives, and parking exemptions for historic buildings. See § 25.35.060 and § 25.35.080.
  • Review applicable parking standards (parking reductions or special rules may apply in overlays or for incentives) and confirm with the Burlingame Parking rules.

Risks & Ambiguities

Issue Why it matters What to verify
Overlay boundary uncertainty Applicability (and whether overlay controls) depends on the Zoning Map; ambiguous boundaries change which rules apply Verify parcel on the official Zoning Map and request Director interpretation per § 25.06.040.
Cross‑reference to special permits or findings Overlays often allow or require special permits but leave findings/process in other chapters Confirm the triggering permit type and read § 25.78.040–25.78.080 for required findings and procedures; get process timelines from the Planning Department. Not all special‑permit text was reproduced in the retrieved excerpts.
Missing or partial overlay text (DPS, H) Some overlay sections were listed but substantive rules were not present in retrieved excerpts — risk of relying on incomplete info Obtain complete text for § 25.20.030 and § 25.20.040 from the full zoning code on the city site; verify with the City.
Historic resource exceptions Two‑Unit overlay excludes historic district properties; historic status can block ministerial approvals Confirm historic register status (local and State/National) and review § 25.20.080.B.5 and historic chapter § 25.35.
Conflicts between overlay and base zone Overlays supersede base rules where they conflict — project design may be constrained unexpectedly Where conflict exists, the overlay controls per § 25.20.005.B; document which standard controls each element of the project.

Plain-English Summary

Burlingame’s overlays are neighborhood‑specific layers that change or add rules to the underlying zoning — think of them as area‑specific “modifiers” that can lower heights, require added setbacks, specify allowable uses, or create incentive rules; check the specific overlay section (e.g., § 25.20.010 for Anita Road, § 25.20.080 for the Two‑Unit overlay) and the official Zoning Map to know which rules apply to your parcel.

Information Gaps

  • Full text for § 25.20.030 (Downtown Parking Sector Overlay) and § 25.20.040 (Hillside Overlay) was not present in the retrieved excerpts. The code index lists these overlays but substantive standards are Not found in retrieved materials. Verify complete text on the City Code or with Planning staff.
  • Complete special permit finding language referenced by overlays points to § 25.78.040 and related process sections; the detailed text for every cross‑reference was not fully present in the returned excerpts (see § 25.78.040/25.78.050/25.78.080). Verify those sections for project approvals.

Source References

  • Burlingame Zoning Code, Chapter 25.20 — Overlay Zoning Districts (§ 25.20.005–25.20.080) (downloaded from the city code online) — Chapter listing and individual overlay sections cited throughout.
    • See § 25.20.005 (purpose and applicability)
    • § 25.20.010 (Anita Road Overlay)
    • § 25.20.020 (Commercial Residential Overlay; Table 25.20‑1)
    • § 25.20.050 (Multi‑Unit Residential Overlay)
    • § 25.20.060 (R‑4 Incentive Overlay)
    • § 25.20.070 (Rollins Road Residential Overlay)
    • § 25.20.080 (Two‑Unit Residential Overlay)
    • § 25.20.030 and § 25.20.040 — listed but substantive text Not found in retrieved materials.
  • Burlingame Zoning Map and district establishment: § 25.06.010–25.06.020 (overlay defined; map adoption procedures).
  • Special permit and community benefits references: § 25.78.040–25.78.080 (special permit findings and procedures referenced by many overlays).
  • Historic Preservation chapter: § 25.35.050–25.35.080 (designation procedures, incentives, and flexibility such as parking and lot coverage rules).

Internal topic pages used for context (city GoCodebook menu):

Sources

Retrieved passages

  • Burlingame Zoning Code (§ 25.20.070.) High relevance
  • Burlingame Zoning Code (Chapter 25.10) High relevance
  • Burlingame Zoning Code (Section 25.40.070.C) High relevance
  • Burlingame Zoning Code (CHAPTER 25.20) High relevance
  • Burlingame Zoning Code (Title 1) High relevance
  • Burlingame Zoning Code (Section 25.35.080) Medium relevance
  • Burlingame Zoning Code (chapter and) Medium relevance
  • Burlingame Zoning Code (§ 25.16.030.) Medium relevance

Cited sections

Frequently asked questions

What is an overlay district in Burlingame and how does it relate to the base zoning?

An overlay district supplements the base zoning district with area‑specific rules that address special site, design, safety or compatibility issues; where an overlay conflicts with the base zone, the overlay controls. See § 25.06.010.C and § 25.20.005.

What are the height limits in the R‑4 Incentive Overlay?

The R‑4 Incentive Overlay allows buildings up to 55 ft by right in the designated Downtown sub‑area; any building over 55 ft requires a special permit. See § 25.20.060.B.

Can I build two units on my R‑1 or R‑2 lot under Burlingame’s Two‑Unit Overlay?

Yes — the Two‑Unit Residential Overlay permits up to two units on qualifying R‑1 and R‑2 parcels through an objective, ministerial pathway, subject to exceptions (e.g., historic district properties, recent tenant occupancy, certain affordability covenants). See § 25.20.080.A–B.

Are ADUs allowed inside the Two‑Unit Residential Overlay?

Accessory Dwelling Units and Junior ADUs are allowed in the Two‑Unit Residential Overlay, except where lot‑split rules or the overlay’s exceptions (e.g., historic district) prohibit them; see § 25.20.080.C and § 25.20.080.B.5. Confirm parcel‑specific applicability.

If an overlay and the base zone conflict, which rule applies?

The overlay controls. The code explicitly states that overlay provisions shall apply in the event of any perceived conflict with the rest of the Zoning Regulations. See § 25.20.005.B and the overlay definition in § 25.06.010.C.

Where can I find the permitted uses for the Commercial Residential (CR) overlay at Edgehill Drive?

Permitted uses for the CR overlay are listed in Table 25.20‑1 (CR Overlay Zoning District Use Regulations) and summarized in § 25.20.020.B; the table shows which uses are Permitted, Conditional, Temporary, or Prohibited. See § 25.20.020 and Table 25.20‑1.

Does Burlingame offer parking relief for designated historic resources?

Yes. For properties designated as historic resources the Code provides parking flexibility (for example, additions up to certain percentages may be allowed without providing additional parking under § 25.35.080.A). See § 25.35.080.

Are there overlays that allow higher height if I provide community benefits?

Yes — some Downtown and incentive areas (e.g., R‑4‑I and downtown Tier systems referenced elsewhere in Chapter 25) permit increased height or FAR subject to community benefits and special permit findings; see the incentive language referenced in § 25.20.060 and community benefits/special permit sections. Verify Tier and community benefits rules in the applicable district chapters and § 25.78 special permit provisions.

How do I confirm whether my parcel is inside an overlay and what exact rules apply?

Check the official Zoning Map for the parcel (adopted with the Code) and then read the overlay section (e.g., § 25.20.010–25.20.080). If the boundary is unclear, request a Director interpretation per § 25.06.040.

Is the Downtown Parking Sector Overlay text available in the zoning chapters?

The Downtown Parking Sector Overlay is listed as § 25.20.030, but the retrieved excerpts did not include substantive text for that section; obtain the complete code or check with Planning staff to confirm parking standards in that overlay. See § 25.20.030 (listed).

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