San Pablo — Overlay Districts

Last reviewed: July 2, 2026

Overview

This page explains how San Pablo’s overlay and special districts work inside the city’s zoning ordinance (Title 17). It summarizes the five overlay districts, the two adopted specific plans, and the designated housing-element (HE) overlay — with practical notes on allowed uses, key numeric standards, and where to look on the zoning map. For context on citywide rules see the San Pablo zoning & planning overview and the San Pablo Zoning pages.

How overlays operate (basic rule)

• Overlay districts supplement the underlying base zoning; when conflict exists, the overlay controls. See § 17.38.020.
• Specific plans (special districts) generally replace base zoning inside their boundaries; they may refer back to citywide procedures where noted. See § 17.38.020 and § 17.38.080.
• Confirm whether a parcel is inside an overlay or specific plan on the official zoning map; the map is part of the ordinance. See § 17.28.010.

Note: where the page mentions citywide technical topics you may need, first consult the related pages: [development standards], [parking], [design review], [ADUs], and [California Building Standards Code] (Title 24).

District-by-district breakdown

All district headings below show the ordinance name, purpose, typical allowed uses, key numeric/dimensional rules, and applicability notes. Bolded items are the exact local labels or controlling numbers called out in the ordinance.

Hillside Area Overlay District (D1)

• Purpose: Protect public safety and natural hillside features in geologically sensitive areas. § 17.38.030.
• Typical permitted uses: Uses of the underlying base district generally apply; D1 does not create new use categories except to require extra review for taller structures. § 17.38.030(A)(2).
• Key standards:
  • All structures more than one story require review by the zoning administrator. § 17.38.030(A)(1).
  • Projects must satisfy findings including a geotechnical report and measures to minimize grading, protect native trees, and integrate fire protection. § 17.38.030(B).
• Where it applies: Delineated on the zoning map with symbol D1. Verify parcel placement on the map. § 17.38.010 and § 17.28.010.

Priority Development Area (PDA) Overlay District (D2)

• Purpose: Encourage higher-density, pedestrian-oriented redevelopment near transit consistent with regional PDA designations. § 17.38.040(A).
• Typical permitted uses: Underlying uses apply; PDA adds density/intensity expectations and specific site standards intended to support mixed-use and transit-supportive projects. § 17.38.040(C).
• Key numeric standards (Table 17.38-A — excerpted in ordinance):
  • Density, min: 20 du/ac; Density, max: 60 du/ac (applies to mixed-use and residential components). § 17.38.040(C) / Table 17.38-A.
  • FAR, min: 0.5; FAR, max: 2.5 (includes residential floor area). § 17.38.040(C) / Table 17.38-A.
  • Height, max: 60 feet (Table 17.38-A). § 17.38.040(C).
• Where it applies: PDA overlay designations were adopted for areas identified by city resolutions; named PDAs include Rumrill Road, 23rd Street Specific Plan (SP1), and San Pablo Avenue Specific Plan (SP2); the overlay is applied where properties are within one-quarter mile (0.25 mi) of a designated station point. § 17.38.040(B).

Practical note: PDA standards explicitly displace conflicting citywide or underlying standards for sites within the overlay; confirm parking implications on the [parking] standards page.

Air Quality Health Risk Overlay District (D3)

• Purpose: Protect sensitive receptors from toxic freeway emissions (I‑80 corridor). § 17.38.050(A).
• Typical permitted uses: The overlay prohibits particular sensitive uses within the zone (see restricted uses). § 17.38.050(B).
• Key standards:
  • Overlay extends 500 feet from Interstate 80 on both sides. § 17.38.050(B)(1).
  • Restricted uses: residential development, parks/open space, schools, child care, senior centers, hospitals, medical facilities shall not be located in the district. § 17.38.050(B)(2).
  • New development must provide project-level mitigation measures to reduce exposure. § 17.38.050(B)(3).
• Where it applies: Mapped as D3; check parcel proximity to I‑80 on the zoning map. § 17.28.010.

Multifamily Overlay District (MF)

• Purpose: Recognize and protect existing multifamily properties located where the base zone no longer allows multifamily. § 17.38.060(A).
• Typical permitted uses: Multifamily use is specifically allowed in addition to underlying base district uses. § 17.38.060(C).
• Key standards:
  • MF areas are shown on the map with symbol (MF). § 17.38.060(B).
  • Renovations may be consistent with existing building envelopes; expansions/rebuilds must follow development standards for higher density zones (R-3/R-4) depending on density. Also, Chapter 17.08 Nonconformities applies to maintenance/expansions. § 17.38.060(D).
• Where it applies: Parcels mapped as MF. Check the zoning map for the overlay symbol. § 17.28.010.

Note: If you are evaluating an ADU, the ADU rules list MF as an allowable overlay for ADU placement — see the ADU rules and the city ADU page.

Creek Protection Overlay District (CP)

• Purpose: Protect creeks, groundwater recharge, and flood management functions. § 17.38.070(A–B).
• Typical permitted uses: Underlying uses generally apply, but structures and grading are restricted to protect waterways. § 17.38.070(C).
• Key standards:
  • No structure in any floodway. § 17.38.070(C)(1).
  • Structures in a floodplain must have finished floors at or above the 100‑year floodline (text uses “one‑hundred‑foot floodline” language in code). § 17.38.070(C)(2).
  • Additional recommended setbacks are in the general plan stormwater policies (see city stormwater exhibits and the [landscaping and screening] guidance as appropriate). § 17.38.070(D).
• Where it applies: Delineated as (CP) on the zoning map. § 17.28.010.

Specific Plan Districts (SP1 / SP2)

• Purpose: Identify unique planning areas with their own adopted specific plan documents; within the SP boundaries the specific plan’s uses and standards govern. § 17.38.080(A–D).
• Adopted specific plans named in the code:
  • SP1 — 23rd Street Specific Plan. § 17.38.010(B)(1).
  • SP2 — San Pablo Avenue Specific Plan. § 17.38.010(B)(2).
• Where it applies: Mapped as SP1 and SP2; allowed uses and development standards are those contained in the specific plan documents, not the general base-zone tables. § 17.38.080(C–D).

Designated Housing Element Sites Overlay (HE)

• Purpose: Permit ministerial review and set minimum density expectations for sites identified in the housing element as candidate lower‑income housing sites, consistent with state law. § 17.38.090(A).
• Typical permitted uses: Underlying zone uses apply; importantly, projects that provide ≥20% of units affordable to lower‑income households may be approved by the zoning administrator through minor design review (i.e., limited ministerial pathway) if objective standards are met. § 17.38.090(C)(2).
• Key standards:
  • HE sites are listed by parcel (several APNs and addresses are identified in the code). § 17.38.090(B).
  • For qualifying affordable projects, development standards default to the underlying zoning or, where in SP‑2, the San Pablo Avenue Specific Plan standards; but the HE overlay requires that the project allow at least 30 dwelling units per acre when proposed with ≥20% lower‑income affordability. § 17.38.090(D)(1–2).

Quick reference table — decision‑relevant overlay standards and uses

Checklist

• Confirm the parcel’s base zoning and any overlay/Special Plan designation on the official zoning map (Title 17 map). § 17.28.010.
• Identify which overlay(s) apply — D1, D2, D3, MF, CP, SP1, SP2, HE — and note the controlling § 17.38.0xx text for each. § 17.38.010.
• For D1 sites: arrange a geotechnical report and plan for Zoning Administrator review if the project exceeds one story. § 17.38.030(B).
• For D2 (PDA) proposals: confirm density, FAR, and height targets (Table 17.38‑A) and parking/transport/streetscape strategy; cross‑check [parking] rules. § 17.38.040(C).
• For D3 parcels: screen out prohibited sensitive uses (residential, schools, child care, parks, senior centers, hospitals) and prepare exposure mitigation. § 17.38.050.
• For CP parcels: check floodplain lines and required finished floor elevations; consult general plan stormwater policies for setbacks. § 17.38.070(C–D).
• For HE parcels pursuing affordable housing: prepare to meet the ≥20% affordable threshold and objective standards to qualify for minor design review and the 30 du/ac minimum. § 17.38.090(C–D).
• If the project includes ADUs, verify the overlay allows ADUs per Title 17 ADU rules (MF, SP1, SP2 are explicitly listed contexts). See the ADU chapter and the city ADU page.

Risks & Ambiguities

Plain‑English Summary

San Pablo’s overlays are map layers that modify the rules for specific places: D1 adds geotech/review for hillside lots, D2 (PDA) pushes for denser, transit‑oriented projects with explicit density/FAR/height targets, D3 excludes sensitive uses within 500 feet of I‑80, MF protects existing multifamily rights, CP protects creeks and floodways, and SP1/SP2 are area plans whose documents control design and uses; the HE overlay creates a streamlined path for qualifying affordable housing projects. Always check the official zoning map and the cited Title 17 sections before designing a project.

Source References

• San Pablo Zoning & Overlay purpose and list — § 17.38.010.
• Effect of overlays and special districts — § 17.38.020.
• Hillside area overlay rules — § 17.38.030.
• Priority Development Area overlay and Table 17.38‑A (density/FAR/height) — § 17.38.040, Table 17.38‑A.
• Air quality health risk overlay (500 ft buffer & restricted uses) — § 17.38.050.
• Multifamily overlay (MF) rules — § 17.38.060.
• Creek protection overlay (CP) — § 17.38.070.
• Specific plan districts and SP1/SP2 — § 17.38.080.
• Designated housing element sites overlay (HE) — § 17.38.090.
• Zoning map adoption and boundary interpretation — § 17.28.010.
• ADU applicability to MF/SP1/SP2 and ADU standards — Title 17 ADU chapter (see ADU rules) and related provisions.

(These citations reference the uploaded San Pablo Title 17 zoning code material current through Ordinance 2024‑001 as provided in the retrieved files.)

Retrieved passages

• San Pablo Zoning Code (§ 3) High relevance show source text
• San Pablo Zoning Code (title and) High relevance show source text
• San Pablo Zoning Code (§ 3) High relevance show source text
• San Pablo Zoning Code (§ 3) High relevance show source text
• San Pablo Zoning Code (Chapter 17.38) High relevance show source text
• San Pablo Zoning Code (§ 3) High relevance show source text
• San Pablo Zoning Code (§ 3) High relevance show source text
• San Pablo Zoning Code (Title 16) Medium relevance show source text

Cited sections

• San Pablo Zoning & Overlay purpose and list — **§ 17.38.010**. (§ 17.38.010)
• Effect of overlays and special districts — **§ 17.38.020**. (§ 17.38.020)
• Hillside area overlay rules — **§ 17.38.030**. (§ 17.38.030)
• Priority Development Area overlay and Table 17.38‑A (density/FAR/height) — **§ 17.38.040**, Table 17.38‑A. (§ 17.38.040)
• Air quality health risk overlay (500 ft buffer & restricted uses) — **§ 17.38.050**. (§ 17.38.050)
• Multifamily overlay (MF) rules — **§ 17.38.060**. (§ 17.38.060)
• Creek protection overlay (CP) — **§ 17.38.070**. (§ 17.38.070)
• Specific plan districts and SP1/SP2 — **§ 17.38.080**. (§ 17.38.080)
• Designated housing element sites overlay (HE) — **§ 17.38.090**. (§ 17.38.090)
• Zoning map adoption and boundary interpretation — **§ 17.28.010**. (§ 17.28.010)
• ADU applicability to MF/SP1/SP2 and ADU standards — Title 17 ADU chapter (see ADU rules) and related provisions. (Title 17)
• SanPablo_ZoningCode.md

• Official San Pablo code library