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Date: |
November 18, 2026 |
29 |
Title
Noticed Public Hearing:
Adopt Updates to Zoning Rules to Allow More Housing Options and Authorize the County to Reapply for State Prohousing Designation Program (Public Hearing to Adopt the Housing Unlocked Zoning Ordinance Amendment and Related CEQA Addendum and to Adopt the Resolution Authorizing Application to and Participation in the Prohousing Designation Program) (Districts: All)
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Overview
The County of San Diego (County) is committed to advancing housing initiatives that produce diverse housing types, prevent displacement, promote equity and inclusion, streamline the permitting process, and strengthen engagement with the community. Today’s actions propose adoption of an ordinance amending the County’s Zoning Ordinance and adoption of a resolution authorizing the County to submit an application to renew its State of California Prohousing Designation. The ordinance amendment would update development standards that can unnecessarily constrain housing projects from achieving the residential capacity anticipated by the General Plan. The resolution and application to renew the County’s current Prohousing Designation would enable the County to continue receiving priority in grant funding opportunities.
The County’s General Plan establishes the allowable residential density (number of dwelling units per acre) for each property, while the Zoning Ordinance establishes detailed requirements governing how housing may be designed and constructed. In some cases, existing zoning requirements, including limitations on building types, stories, lot sizes, building separation setbacks, floor area ratio, and the location of open space, can unintentionally restrict design options or prevent projects from achieving the housing potential already envisioned by the General Plan.
Today’s Housing Unlocked Zoning Ordinance Amendment would better align these standards to make it easier for developers to achieve the maximum allowable density, without increasing the allowable density of any property. The Housing Unlocked project was originally a longer, more complex project, but to be responsive to California Department of Housing and Community Development (State HCD) and stakeholder feedback, the County split the project into two phases. Phase I is focused on the quicker and simpler changes that could have a more immediate impact on helping more housing projects be processed without rezones. Phase II will consider more robust zoning updates following additional stakeholder and community engagement and hearings.
The proposed amendment would:
1. Increase flexibility in building and site design by removing story limits while retaining maximum building heights; allowing a broader range of housing types; relying on applicable building and fire codes for separation between main buildings; excluding residential garages and similar accessory structures from floor-area ratio calculations; and providing greater flexibility for minimum lot size and usable open space.
2. Support more efficient use of sites identified in the General Plan Housing Element by requiring that any type of housing development on Housing Element inventory (Regional Housing Needs Allocation or RHNA) sites achieve at least 70 percent of the maximum allowable General Plan density, unless that density is determined to be infeasible.
3. Clarify and streamline housing regulations by defining and permitting prefabricated and 3D-printed construction, codifying standards for tiny homes on wheels, and improving the existing site plan permit-exemption process.
Today’s Zoning Ordinance Amendment implements five programs in the County’s Sixth Cycle Housing Element and one prior Board direction. It was informed by technical analysis, review of State law and practices in comparable jurisdictions, and more than 25 meetings with community, industry, environmental, and other stakeholder groups. The amendment represents near-term changes that can be implemented within the existing General Plan and environmental framework.
Today’s request is for the Board to consider the adoption of the proposed Zoning Ordinance changes identified in Housing Unlocked - Phase I to provide clearer and more flexible development standards, support infill and attainable housing, improve the County’s ability to realize its existing General Plan housing capacity, and demonstrate continued implementation of the County’s Housing Element programs (Attachment A - Action Sheet provides a consolidated list of proposed changes). Housing projects would remain subject to the General Plan density limits and all applicable infrastructure, wastewater, fire, building, environmental, and community-plan requirements.
Upon completion of Phase I, Phase II will focus on more robust, comprehensive updates to the zoning ordinance that could achieve longer-term goals and provide additional opportunities for outreach and engagement. Phase II is anticipated to be completed in 2027.
Body
Recommendation by Chief Administrative Officer:
1) Find that the General Plan Environmental Impact Report (EIR), dated August 3, 2011, on file with PDS as Environmental Review Number 02-ZA-001, was completed in compliance with the California Environmental Quality Act (CEQA) and the State and County CEQA Guidelines and that the Board has reviewed and considered the information contained therein and the Addendum (PDS2025-ER-25-00-003) thereto dated July 22, 2026, on file with PDS, prior to making its recommendation on the Update (Attachment B).
2) Find that only minor technical changes or changes that would not result in new significant impacts are proposed by the project; there are no changes in the project or in the circumstances under which the project is undertaken that involve significant new environmental impacts that were not considered in the previously certified EIR dated August 3, 2011; that there is no substantial increase in the severity of previously identified significant effects; and that no new information of substantial importance has become available since the EIR was certified as explained in the Environmental Review Update Checklist (PDS2025-ER-25-00-003) dated July 22, 2026, pursuant to Section 15164 of the California Environmental Quality Act Guidelines.
3) Adopt the Form of Ordinance, Sections 1110, 4110, 4210, 4221, 4310, 4502, 4605, 4610, 4615, 4840, 4917, 6502, 6636, 6678, 6945 and 7156, that address updates necessary to achieve the housing development and densities as identified in the General Plan and to satisfy California Department of Housing and Community Development (HCD) requirements (A - K):
An Ordinance Amending the San Diego County Zoning Code Sections 1110, 4110, 4210, 4221, 4310, 4502, 4605, 4610, 4615, 4840, 4917, 6502, 6636, 6678, 6945 and 7156, Relating to the Housing Unlocked Zoning Ordinance Amendment (PDS-25-005) (Attachment C and Attachment D [Changes Shown]).
A. Building Height Designator (Sections 4605, 4610, 4615): Remove story limits while maintaining height limits.
B. Building Type Designator (Sections 1100 & 4310): Allow duplexes, triplexes, and attached buildings across the unincorporated area where General Plan densities allow, and simplify building type categories.
C. Building Setback Designator (Section 4840): Remove setback limits between buildings while maintaining other setbacks.
D. Floor Area Ratio (FAR) Designator (Section 4502): Exempt all accessory non-habitable structures from FAR calculations.
E. Minimum Lot Size Regulations (Sections 4210 & 4221): Allow smaller minimum lot sizes to be approved by PDS through the permitting process.
F. Open Space Regulations (Section 4917): Expand allowances for open space requirements to be met through other kinds of group open space (in setbacks, etc.).
G. Planned Development Standards (Sections 6636 & 6678): Allow reduced open space requirements and higher building heights throughout a planned development to be approved by PDS through the permitting process.
H. Minimum Densities on RHNA Sites (Section 4110): Add to the Zoning Ordinance to require that 70% of the General Plan density be achieved on RHNA sites.
I. New Construction Technologies (Sections 1100 & 6502): Add definitions to the Zoning Ordinance to promote home construction using new prefabricated and 3D printed models.
J. Tiny Homes on Wheels (THOW) (Section 6945): Add to the Zoning Ordinance to codify the existing PDS Director’s Determination to promote home construction using Tiny Homes on Wheels.
K. Site Plan Permit Exemptions (Section 7156): Allow eligible properties to apply for site plan exemption checklists while resolving any open code cases with PDS.
4) Adopt the Resolution entitled:
5) A Resolution of the Board of Supervisors of the County of San Diego Authorizing Application to and Participation in the Prohousing Designation Program (Attachment E).
6) Accept an Update on Housing Unlocked Zoning Ordinance Amendment - Phase II (Attachment A). Phase II Status: PDS is developing the below list of items to explore in Housing Unlocked Phase II based on input to date (A - F). Next Steps include continued outreach and engagement with stakeholders and community members.
A. Building Height: Explore increasing building heights.
B. Setbacks: Explore reducing front, side, and rear yard setbacks, based on expanded building types and reduced minimum lot sizes proposed by the Small Lot Program.
C. FAR: Consider additional Floor Area Ratio exemptions.
D. Open Space: Consider if reducing private and group open space requirements are necessary, considering reductions to setbacks and minimum lot sizes.
E. Group Homes: Explore reducing permitting requirements for Group Homes from major use permits to minor use or administrative permits.
F. Zoning Density/Use: Allow parcels to use existing zoning density, if higher than General Plan density, without a rezone. Allow lots with split zoning to use the less restrictive Use regulations.
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Equity Impact Statement
Planning & Development Services (PDS) recognizes the historic and ongoing housing inequities that affect many residents in the San Diego region, including barriers to homeownership and challenges in accessing stable, attainable housing. Today’s Housing Unlocked Zoning Ordinance Amendment supports greater housing equity in the unincorporated area, providing greater flexibility in the County’s Zoning Ordinance regulations and removing unnecessary regulatory barriers that can limit housing opportunities. Better aligning the County’s Zoning Ordinance with the General Plan reduces procedural barriers that can disproportionately affect first-time applicants and lower-income households, while creating opportunities for a broader range of housing types. The Housing Unlocked program also advances equitable access to housing by formalizing the existing reasonable accommodation process that helps ensure individuals with disabilities have equal access to group housing.
Sustainability Impact Statement
This amendment supports the County's Sustainability Goals #1, #2, and #6, by providing greater flexibility in the Zoning Ordinance and Development Designator regulations, removing unnecessary regulatory barriers, and better aligning the Zoning Ordinance with the General Plan. These changes support sustainable growth (Goal #2) by facilitating a broader range of housing types within areas already planned for growth, including within existing Village Areas, Regional Housing Needs Allocation (RHNA) sites, and neighborhoods where infrastructure, services, and transportation already exist. By encouraging housing in these locations, the amendment promotes more efficient land use and supports sustainable community development. The amendments also increase flexibility in how required open space may be provided, creating opportunities to preserve larger, more functional open space areas and protect sensitive habitats (Goal #6). Throughout the process, County staff engaged with community members and stakeholder groups to provide just and equitable access to County policy decision-making throughout Phase I and continuing in Phase II (Goal #1).
Fiscal Impact
There is no fiscal impact associated with today’s recommendations. The proposed updates to the Zoning Ordinance are part of the existing Planning & Development Services workplan to implement Housing Element programs, complete regular updates to the Zoning Ordinance, and to maintain alignment with Board direction and State housing laws. The proposed updates can be completed with existing staff resources. There would be no change in net General Fund cost and no additional staff years.
Business Impact Statement
The proposed updates to the Zoning Ordinance would provide increased opportunities to produce housing which could support project feasibility and profitability for housing developers.
Advisory Board Statement
During public outreach, staff presented at the Community Planning and Community Sponsor Groups (CPSGs) Chairs meeting in Spring and Summer of 2026. Staff presented Housing Unlocked to ten CPSGs that requested individual presentations, including Sweetwater, Warner Springs, Ramona, Valley Center, Alpine, Twin Oaks Valley, Rainbow, Fallbrook, San Dieguito, and Lincoln Acres. The discussions generally focused on the potential benefits, such as creating new housing opportunities in areas where it is planned for, while also limiting negative effects on rural resources. Some expressed concerns about potential impacts to local infrastructure, fire safety, traffic, and the realities of planned versus actualized density. While each CPSG raised unique questions and considerations, to date, only the Fallbrook CPG took a vote (unanimous decision “to not support the changes)” on the proposed Zoning Ordinance amendment.
Involved Parties
This is a County of San Diego initiated project.
Planning Commission Vote
On August 7, 2026, the Planning Commission voted 4-0, with 3 absent, (Ayes: Ashman, Calvo, Pallinger, Sabellico; Noes: 0, Absent: Edwards, Sudberry, Weber) to recommend that the Board of Supervisors adopt today’s Housing Unlocked Zoning Ordinance Amendment per staff recommendation.
Background
The County of San Diego (County) is committed to advancing housing initiatives that expand housing opportunities, support a diverse range of housing types, improve housing attainability, streamline development processes, and make it easier to build homes in areas already planned for residential growth. Consistent with direction from the San Diego County Board of Supervisors (Board), including the Housing for All initiative, the County continues to identify opportunities to simplify development standards, remove unnecessary regulatory barriers, and provide greater flexibility in housing design.
The State of California (State) Prohousing Designation Program (Prohousing Program) provides
incentives in the form of additional points or other preference in the scoring of competitive housing, community development, and infrastructure grant programs. To receive these incentives, jurisdictions must be compliant with State Housing Element requirements, including timely implementation of Housing Element programs, and have enacted “prohousing polices.” The California Government Code (CGC) defines prohousing policies as programs and regulations that provide zoning and land use requirements that are favorable to housing development, accelerate housing production timeframes, reduce housing construction and development costs, and/or provide financial subsidies. Jurisdictions that seek to receive the State’s prohousing designation must submit a Prohousing Program Application identifying specific programs and regulations that meet or exceed the State’s 30-point prohousing threshold and must provide a resolution signed by the decision-making body authorizing the local entity to apply for the Prohousing Program.
At the 2022 Let’s Talk Housing Workshop, the Board of Supervisors adopted Resolution No. 22-166, authorizing the County of San Diego to apply to the Prohousing Designation Program (December 13, 2022 (30), Attachment F). The County subsequently received a State of California Prohousing Designation on March 24, 2023, which will expire at the end of this year. On October 13, 2026, staff provided the California Department of Housing and Community Development (HCD) with a draft Prohousing Program Application to conduct a preliminary review and confirm the County continues to meet the eligibility requirements for the Prohousing Program. It is recommended that the Board adopt a resolution (Attachment E) authorizing this second application to and continued participation in the State Prohousing Program, and to adopt the Housing Unlocked Zoning Ordinance Amendment to implement key Housing Element Programs to maintain eligibility requirements for the Prohousing Program.
On July 14, 2021 (1), the Board adopted the Sixth Cycle Housing Element for the 2021-2029 planning period. The Housing Element Implementation Plan contains 60 programs intended to support housing development and advance the County’s housing goals. Many of these programs call for amendments to the County’s Zoning Ordinance to remove regulatory barriers, provide greater flexibility in housing design, and create a clearer and more predictable development-review process. Housing Unlocked is a multi-year effort to implement these commitments and further the Board’s broader housing objectives.
The General Plan is the long-term blueprint that guides the location and amount of future growth and development, while the Zoning Ordinance specifies detailed requirements for how housing may be designed, such as the Development Designators. The Development Designators specify the different combinations of development standards including building types, maximum heights, setbacks, open space, minimum lot sizes, lot coverage, and floor area ratio (FAR). However, these regulations and standards found within the General Plan and the Zoning Ordinance could be better aligned to reduce applicant confusion and project delays, while increasing design options for the types of housing projects that can be built. To better support realization of the existing General Plan densities,the project includes a draft amendment to the Zoning Ordinance and the Development Designators. This collection of changes would improve consistency, simplify standards, remove regulatory barriers, and facilitate building more homes where they are currently planned under the General Plan (i.e., realize existing densities [dwelling units per acre] of the General Plan).
To develop the proposed amendments, staff conducted a comprehensive review of applicable Housing Element programs, Board direction, State housing laws, County zoning regulations, development standards, policies, procedures, and implementation practices (Attachment G). The review identified several overlapping or prescriptive regulations that limited design flexibility without advancing additional land use, public health, safety, or environmental objectives. Staff then identified potential solutions to address these issues while maintaining consistency with the General Plan and applicable State law.
The Housing Unlocked project is being advanced in two phases. Phase I focuses on targeted changes that can be implemented within the existing General Plan and environmental framework. Phase I addresses the following five Housing Element programs: Development Designators (Program 3.1.3.A), achieving General Plan densities (Program 3.1.1.C), expanding the range of allowable land use designations and building types (Program 3.1.1.D), site plan permit exemptions (Program 3.1.1.K), and group homes (Program 3.3.2.A). Phase I also addresses prior Board direction concerning tiny homes on wheels. Phase II, scheduled to return to the Board in 2027, will evaluate broader zoning and development-policy changes that require additional technical analysis, environmental review, and community engagement.
The potential solutions presented in today’s Zoning Ordinance Amendment were evaluated based on their anticipated benefits, implementation considerations, required time and resources, Board priorities, and stakeholder feedback. Staff coordinated, subject-matter experts, community, industry, environmental, and other stakeholder groups and representatives to review and refine the proposed amendments, including elevating some Phase II items into Phase I. This process helped identify potential zoning and procedural conflicts and improve the proposed language and its implementation.
The proposed Phase I amendments will include changes to Sections 1110, 4110, 4210, 4221, 4310, 4502, 4605, 4610, 4615, 4840, 4917, 6502, 6636, 6678, 7156, and the new Section 6945 for Tiny Homes on Wheels. They do not increase the residential density allowed by the General Plan. Housing development projects would continue to be subject to all other applicable requirements, including infrastructure, wastewater, fire, building, environmental, and community-plan requirements.
Project Analysis
Through project analysis and stakeholder outreach, the following topics were identified and implemented in today’s amendment:
Development Designator Changes:
A. Allow more flexibility in building design through increased flexibility in development standards by removing story limits while maintaining maximum building heights;
B. Provide more opportunities for missing-middle housing by expanding permitted housing types and simplifying building type categories;
C. Create simpler, more predictable development standards by removing building separation regulations and relying on existing building and fire codes (California Building Code) or permitting by applicable fire protection district;
D. Provide better support for infill housing by excluding residential garages and similar non-habitable accessory structures from Floor Area Ratio (FAR) calculations;
E. Create site design flexibility and support missing-middle housing types by allowing reduced minimum lot size requirements through the permitting and discretionary review process;
F. Increasing flexibility in how required open space may be provided; and
G. Creating additional flexibility for open space and height requirements for Planned Developments.
Other Ordinance Changes:
H. Require more complete utilization of Regional Housing Needs Allocation (RHNA) sites by requiring projects on those sites to achieve a minimum of 70 percent of the existing allowable residential General Plan density, unless infeasible, to assure that housing is built where already planned for.
I. Support innovative housing construction methods by defining and permitting prefabricated and 3D-printed homes as manufactured housing.
J. Codify standards for Tiny Homes on Wheels (THOWs), providing a consistent regulatory framework for their use as primary and accessory dwellings.
K. Create faster approvals for straightforward projects by allowing site plan exemption checklists for projects with open code enforcement cases, provided that the code enforcement action on the property be resolved prior to, or simultaneously with, approval of the exemption.
Other Updates to County Forms:
• Update site plan exemption instructions and other forms to promote use of these checklist reviews.
• Establish equitable access to housing and services through a streamlined reasonable accommodation process, in compliance with fair-housing laws, to ensure that group homes for 7 or more persons can obtain the required permits without unnecessary hurdles. Body
Please see below for more details on each change (Attachment C).
Housing Unlocked (Phase 1) Zoning Ordinance Amendment:
Zoning Ordinance and Development Designators (Program 3.1.3.A)
Building Height - Current zoning regulations limit both the maximum building height and number of stories permitted for residential development. The analysis found that these overlapping standards can unnecessarily constrain building design without advancing additional land use, safety, or density objectives.
This amendment proposes to remove the maximum story limitations while retaining the maximum building height in feet. This change maintains existing building, fire, health, and safety codes and does not increase allowable building height, building massing, or the maximum residential density permitted under the General Plan. Removing the overlapping story limit provides greater flexibility in building design and allows projects to better utilize the development potential already anticipated by the General Plan.
Specifically, this amendment removes the restriction on number of stories by designator in Sections 4605 and 4610 (Schedule B) and maintains the overall height in feet. Section 4615 which allows for exceptions that may permit additional stories is also removed, as there is no longer a limit on stories if developments adhere to the Building Code and maximum feet height requirement by the specified designator.
Building Type - Building Type Designators establish the types of buildings that are allowed on a parcel. For example, the most common Building Type Designator (C) currently limits development to detached single-family homes, while other designators allow duplexes, triplexes, and other attached multi-family dwelling housing (e.g., apartments, townhomes). Expanding the range of permitted building types provides greater flexibility in housing and site design while maintaining the residential densities established by the General Plan.
This amendment proposes to allow duplexes, triplexes, and other attached building types within additional residential zones, creating opportunities for a broader range of housing types, including those suited for missing middle housing, across the unincorporated area. Allowing additional building types gives the applicant greater flexibility to select housing forms that are more compatible with the characteristics of a site. This flexibility is particularly beneficial within the County's Village Areas, where the General Plan anticipates higher-density residential development, and on constrained sites, such as parcels with steep slopes or sensitive environmental resources. Because attached housing generally has a smaller development footprint than detached homes, projects may be able to preserve additional open space, avoid sensitive resources, or provide greater defensible space to support wildfire safety.
Specifically, this amendment revises Section 1100 (Definitions B) and Section 4310 (Schedule A), by condensing the Building Type categories; revising the definition of multi-dwelling to include attached units on the same or separate lots; and expanding the permitted Building Type categories throughout the Building Type Designators B through J.
Setbacks - Setback regulations establish minimum setbacks between buildings, streets, and property lines to support public safety, orderly site design, and other development objectives. The regulations also establish minimum separation requirements between main buildings located on the same project site. The analysis found that these additional separation requirements can create unnecessary complexity and limit site design flexibility where equivalent health and safety standards are already addressed through the California Building Code.
This amendment proposes to revise Section 4840 to remove the minimum separation requirements between main buildings on the same project site and instead relies on the applicable building and fire code separation requirements, or approval by the applicable fire protection district, to ensure public health and safety. Property line setbacks, roadway setbacks, and all other applicable setback standards remain unchanged. By eliminating redundant development standards, the amendment simplifies the Zoning Ordinance, provides greater flexibility in site design, and creates a more predictable development process while maintaining existing health and safety protections. These changes are particularly beneficial for constrained or infill sites. Additional updates to setback regulations are anticipated as part of Phase II of Housing Unlocked in 2027.
Max Floor Area Ratio (FAR) - FAR establishes the maximum amount of total building floor area that may be constructed relative to the size of the parcel. Under current regulations, residential garages and other non-habitable accessory structures count towards a project’s allowable FAR, which can limit building design flexibility, particularly on constrained or infill sites.
This amendment proposes revising Section 4502 to exclude residential garages and other non-habitable accessory structures from FAR calculations to provide greater flexibility in site and building design and allow projects to better utilize space. While FAR is not a primary constraint on residential development, this adjustment may support housing on constrained or infill lots, particularly mixed-use residential projects within Village areas.
Minimum Lot Size - Minimum lot size requirements establish the smallest lot size permitted for residential development. The Housing Unlocked analysis, along with stakeholder feedback, identified these requirements as limiting site design flexibility, particularly on constrained or infill lots where smaller lot configurations could still accommodate housing consistent with the General Plan.
This amendment proposes to remove the existing 3,000 square foot and 6,000 square foot minimum lot size requirements from Sections 4210 and 4221, respectively, and instead allows for smaller lot sizes through the permitting and review process. Removing these fixed thresholds provides greater flexibility in site design, particularly on infill or constrained lots, supports a broader range of housing types, including missing middle housing, and creates additional opportunities for projects to achieve the housing already anticipated by the General Plan without increasing allowable residential density.
In response to stakeholder feedback identifying lot size as a high-priority issue, these changes were advanced from the originally proposed Phase II work program into Phase I. Additional lot size updates remain planned as part of Phase II of Housing Unlocked and the County's Small Lot program, both anticipated for completion in 2027.
Open Space & P-Designator - Usable open space requirements establish the minimum amount of private and shared open space required for residential developments with three or more dwelling units per lot to ensure residents have access to private and shared outdoor areas. Providing additional flexibility in how required open space is designed and located would better accommodate a wider variety of housing and site designs while maintaining the overall open space requirements.
This amendment proposes revising Section 4917 to expand the locations where required usable group open space may be provided, including increased allotments on rooftops and within setback areas (each up to 30 percent of the required amount). The amendment also provides additional flexibility for Planned Developments (Special Area P-Designator) by allowing modifications to open space requirements (Section 6678) and removing the additional height restriction within 100 feet of an external boundary in residential and agricultural zones (Section 6636).
These changes provide greater flexibility in how open space is defined can add design options for different types of housing projects while maintaining open space requirements. This amendment is particularly beneficial for undersized or constrained sites.
Minimum Densities for Housing Element Sites (Regional Housing Needs Allocation Sites (RHNA)) (Program 3.1.1.C)
Require a minimum of 70% of the maximum density on RHNA sites - A provision was added to Section 4410 that requires projects being developed on a County Housing Element Regional Housing Needs Allocation (RHNA) site to achieve a minimum density of 70 percent of the maximum allowable General Plan density. This provides more consistent delivery of housing where it is needed, helps the County meet its RHNA commitments, and ensures that high‑opportunity sites deliver meaningful numbers of homes. A reduction may be approved by the final decision maker if the applicant can show that site constraints make achieving 70 percent of the maximum density infeasible. By maximizing densities on these sites, thereby meeting required housing allocations, neighboring properties would be less constrained and development pressures could lessen on rural and backcountry areas.
New Construction Technologies (Program 3.1.1.D)
Define and allow newer prefabricated and 3D-printed home construction technologies - A definition for 3D-Printed Homes and Building Construction, wherein building elements are fabricated using automated equipment that deposits layers of materials, has been added to Chapter 1100, as well as an allowance of 3D-printed and prefabricated homes as manufactured homes in Section 6502. The County does allow for these types of construction now, but this amendment would clarify and support new and emerging construction technologies, as well as address HCD requirements to implement this Housing Element program.
Tiny Homes on Wheels (Board Directive)
Codify existing Tiny Homes on Wheels (THOW) Board of Supervisors Directive - This new section (Section 6945) formally allows tiny homes on wheels - consistent with the County’s existing practice - as a primary and accessory dwelling use. The section implements the standards from the Director’s Determination (September 4, 2025) with clear, predictable rules for residents and builders, and expands options for affordability and aging-in-place. This also supports innovative housing technologies and types as they come to market.
Site Plan Checklist Exemptions (Program 3.1.1.K)
Provide flexibility to allow exemptions with code compliance cases - Currently, projects with open code compliance cases cannot proceed with applying for Site Plan exemptions which they would otherwise be eligible for. This change would allow the Site Plan exemption checklist to be processed concurrently with the resolution of the code compliance issues. This supports PDS’ ability to process more permit applications while simultaneously working with applicants to resolve any issues, including code compliance, to issue permits. This revised language has been added to Section 7156 and updated materials are provided (Attachment H).
Updates to PDS Forms:
Group Homes (Program 3.3.2A)
Support objective reviews of Group Care facilities - Section 86.801 of the Code of Regulatory Ordinances outlines the County’s existing reasonable accommodations procedure, which provides a procedure to request reasonable accommodation for persons with disabilities seeking equal access to housing under the Federal Fair Housing Act and the California Fair Employment and Housing Act (the Acts) in the application of zoning laws and other land use regulations, policies and procedures. This item would support the existing pathway for more objective reviews of group homes and group care facilities by formalizing the reasonable accommodations approval process (Attachment I). In the County of San Diego, Group Homes can refer to Group Residential and Group Care facilities. HCD has identified these types of housing as a priority for more objective project reviews. These reasonable accommodation efforts are legal protections designed to ensure individuals with disabilities have equal access to housing. The form would be utilized to assist projects in using and expediting the reasonable accommodations process.
Additionally, Board of Supervisors Policy A-115 outlines an expedited permit processing procedure for residential drug and alcohol treatment/recovery facilities. The applicant shall work with PDS and Behavioral Health Services (BHS) to develop an expedited project review schedule to support obtaining approval of required permits, which may include a major use permit, in alignment with critical dates for funding requirements.
Housing Unlocked Phase II Update:
PDS is developing the below list of items to explore in a Phase II Housing Unlocked Zoning Ordinance Amendment based on input to date. Next steps include continued outreach and engagement with stakeholders and community members leading up to a return to the Board in Fall/Winter 2027.
A. Building Height: Explore increasing building heights.
B. Setbacks: Explore reducing front, side, and rear yard setbacks based on expanded building types and reduced minimum lot sizes proposed by the Small Lot Program.
C. FAR: Consider additional Floor Area Ratio Exemptions.
D. Open Space: Consider if reducing private and/or group open space requirements are necessary to facilitate development considering reductions to setbacks and minimum lot sizes, including through the Small Lot Program.
E. Group Homes: Explore reducing permitting requirements for Group Homes from major use permits to minor use or administrative permits.
F. Zoning Density/Use: Allow parcels to use existing zoning density, if higher than General Plan density, without a rezone. Allow lots with split zoning to use the less restrictive Use regulations.
Environmental Statement
These amendments do not increase allowable density or development intensity, but instead, help to realize development potential already analyzed in the General Plan Environmental Impact Report (EIR), and therefore are not expected to result in new impacts. This project has been reviewed in compliance with the California Environmental Quality Act (CEQA), and the project qualifies for an Addendum to the General Plan Update EIR under CEQA Guidelines Section 15164. An EIR Addendum dated July 22, 2026, has been prepared for the project and is on file with Planning & Development Services (PDS). There are no changes in the project, no changes in the circumstances under which the project is undertaken, and no new information which results in a new significant environmental effect or a substantial increase in the severity of a previously identified significant environmental effect. More information is available in the EIR Addendum (Attachment A).
Public Input
Between spring of 2025 and summer of 2026, County staff conducted a comprehensive outreach effort of more than 25 meetings, which included hosting and participating in a series of public webinars, small group discussions with industry representatives and environmental organizations, and presentations at Community Planning or Sponsor Group (CPSG) meetings. Additionally, the Draft Ordinance Amendments had a public review period, starting June 5, 2026, and ending July 5, 2026. Information discussed during public engagement is summarized below. Public comment letters received have been included in Attachment J.
Staff met with stakeholder groups, including the County’s Environmental Coalition, Land Development Technical Working Group (LDTWG), the Farm Bureau, and the Building Industry Association (BIA). The stakeholder feedback was generally supportive of the changes proposed by today’s amendment. These groups recognized that housing is necessary and that the proposed changes would promote housing development in areas where the General Plan already calls for it. Environmental stakeholders recognized that the proposed amendments are consistent with the General Plan and support housing concentrated within the County’s Village Areas and on infill lots. Promoting development in these areas ultimately relieves pressures on rural infrastructure and natural resources. Stakeholders within the farming industry identified that employee and farm worker housing were needed and recognized that these changes could help provide additional housing opportunities.
The public webinars educated residents about the Zoning Ordinance, specifically the Development Designators to which most of the Housing Unlocked changes are being proposed and explained how they could facilitate housing development within the existing General Plan densities. Feedback from these webinars resulted in several follow-up small group meetings to address more specific community and landowner questions and/or concerns on technical feasibility and implementation considerations. These meetings provided opportunities to revise the proposed zoning changes and to guide future conversations and solutions.
Staff presented the Housing Unlocked project at the County’s CPSG All-Chairs meeting in March 2026 and provided an update in June. In addition, ten (10) CPSGs requested individual presentations at their public meetings. The discussions generally focused on the potential benefits, such as creating new housing opportunities in areas where development was envisioned in the General Plan, while also limiting negative effects on rural resources. Some groups expressed concerns about potential impacts to local infrastructure, fire safety and evacuation routes, traffic, and the difference between allowable General Plan density and actual development. While each CPSG raised unique questions and considerations, only the Fallbrook CPG took a vote (unanimous decision “to not support the changes”) on the proposed zoning amendments. Representatives of the Fallbrook CPG, Twin Oaks Valley CSG, and Bonsal CSG sent letters of opposition to be included in the Planning Commission record. Additional community outreach is planned for Phase II of the project, where the conversation can be continued regarding housing needs, how the General Plan elements support Housing Unlocked efforts, and the potential for updates to existing plans and analyses.
For land development and building industry stakeholders, the proposed changes are consistent with recommendations previously identified by the development community to support housing production. The Phase I amendment is viewed as a positive first step, however, stakeholders recommended that additional zoning reforms be included in Phase I. Feedback received during outreach expressed concerns about the implementation and timing of various County housing efforts. In response, staff evaluated and elevated several changes that were originally slated for Phase II of Housing Unlocked to Phase I to create a consistent set of updates to the Zoning Ordinance and Development Designators. Further zoning updates as part of Phase II of Housing Unlocked, as well as other County initiatives, will likely include changes that address additional implementation goals and stakeholder concerns. These identified changes would likely include more comprehensive zoning changes that require additional time for environmental review and community engagement. Stakeholders emphasized the importance of these changes and expressed concerns that the County would not continue its progress on these more robust updates.
The project team coordinated with County staff from other departments, including Department of Environmental Health and Quality and the Fire Marshal, to align proposed code amendments, address infrastructure and environmental concerns, and support consistent implementation of future regulations and development.
Department Reasons for Recommendation
Staff recommend the adoption of the attached Form of Ordinance to: support Board direction from the Removing Barriers to Housing and Housing for All initiatives by simplifying regulations and creating housing opportunities; help implement Housing Element programs needed to comply with California Department of Housing and Community Development (HCD) requirements; and to address stakeholder priorities.
Linkage to the County of San Diego Strategic Plan
Today's proposed actions support all the Initiatives in the County of San Diego's 2026-2031 Strategic Plan. Specifically, the proposed Amendment responds to the need for a broader range of housing opportunities to promote long-term economic sustainability for individuals and families across a wider range of income levels (Sustainability Initiative). The Amendment leverages policy tools and existing infrastructure to expand housing opportunities that respond to community needs (Equity Initiative). It provides changes to the Zoning Ordinance that increase the well-being of our residents by improving housing production and opportunities (Community Initiative). These actions are advanced within the County’s Housing for All framework, which brings together enterprise-wide efforts under a unified “One County” organizational approach to urgently address housing and homelessness while aligning with the County’s Strategic Initiatives related to equity, inclusion, and sustainability.
Respectfully submitted,
Dahvia Lynch
Deputy Chief Administrative Officer
Attachment(s)
Note: Due to the size of the attachments, the documents are available online through the Clerk of the ’Board’s website at www.sandiegocounty.gov/content/sdc/cob/bosa.html. <http://www.sandiegocounty.gov/content/sdc/cob/bosa.html>
Attachment A - Action Sheet
Attachment B - Environmental Document
Attachment C - An Ordinance Amending the San Diego County Zoning Code Sections 1110, 4110, 4210, 4221, 4310, 4502, 4605, 4610, 4615, 4840, 4917, 6502, 6636, 6678, 6945 and 7156, Relating to the Housing Unlocked Zoning Ordinance Amendment (PDS-25-005)
Attachment D - An Ordinance Amending the San Diego County Zoning Code Sections 1110, 4110, 4210, 4221, 4310, 4502, 4605, 4610, 4615, 4840, 4917, 6502, 6636, 6678, 6945 and 7156, Relating to the Housing Unlocked Zoning Ordinance Amendment (PDS-25-005) [Changes Shown]
Attachment E - A Resolution of the Board of Supervisors of the County of San Diego Authorizing Application to and Participation in the Prohousing Designation Program
Attachment F - County of San Diego Prohousing Designation Award Letter
Attachment G - Housing Unlocked Analysis & Implementation Memorandums
Attachment H - Site Plan Design Review Checklist Exemption Instructions
Attachment I - Reasonable Accommodations Request Form
Attachment J - Public Comment Letters