City of San Pablo, CA Chapter 17.34 Commercial and Industrial Districts, Allowed Uses, and Development Standards

§ 17.34.010 Purpose.

The purpose of this chapter is to define allowable land uses and property development standards, including intensity of development, for the commercial zoning districts and to permit a variety of industrial activities, with a focus on encouraging employment opportunities and clean industry, consistent with the policy direction in the San Pablo general plan. The commercial districts are intended to provide services to residents, support mixed-use development, and attract retail expenditures from outside San Pablo, consistent with the policy direction in the general plan. The intent of each of the commercial and industrial zoning districts is described below.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.020 Intent of individual districts.

A. NC district. The NC neighborhood commercial district is intended to implement the commercial land use designation in the general plan by providing small-scale commercial uses that primarily provide convenience, personal services, and social services such as retail and specialty shops, eating and drinking establishments, and commercial recreation. The maximum permitted floor area ratio is 1.0.

B. CR district. The CR regional commercial district is intended to implement the commercial land use designation in the general plan by providing opportunities for uses, such as malls, major department stores, factory outlet stores, and home improvement stores, that serve a very large geographic area. The CR districts are to be located where there is adequate vehicular access to regional markets. Other types of commercial uses are also encouraged, provided they are compatible with the regional uses. The maximum permitted floor area ratio is 0.75 for office uses and 0.40 for non-office uses.

C. CMU district. The CMU commercial mixed-use district is intended to implement the commercial mixed-use land use designation in the general plan by providing opportunities for retail, commercial, office, residential, and public uses. While the predominant development use is commercial, the city encourages the vertical and/or horizontal integration of office, residential, and/or public uses that are compatible with the commercial development. In multiple-story buildings, retail uses should be predominant on the ground floor. The maximum permitted floor area ratio is 1.5. The maximum density allowable in the district is fifty dwelling units per acre.

D. IMU district. The IMU industrial mixed-use district is intended to implement the industrial mixed-use land use designation in the general plan by providing opportunities for light manufacturing, distribution, sales, and services with ancillary commercial and office space uses. Targeted uses include single-and multi-story office, flex-space, and industrial buildings for single and multiple users, warehousing, and research and development facilities. Retail uses are not permitted. The maximum permitted floor area ratio is 0.6.

E. EMU district. The EMU employment mixed-use district is intended to implement the employment mixed-use land use designation in the general plan and the Rumrill Corridor plan by providing opportunities for a range of production, distribution, and repair-oriented businesses, including food production and distribution; small-scale auto and appliance repair; apparel, electronics, and furniture manufacturing; and other creative demonstration, showcase, and assembly uses. On-site live/work housing is also encouraged. On sites over 0.25 acres, multifamily housing is permitted where adequate buffering and noise mitigation is provided. Maximum nonresidential FAR is 0.6.

F. MUCW district. The MUCW mixed-use center west district is intended to implement the mixed use center west land use designation of the general plan and the Rumrill Corridor plan. This district is intended to provide for the creation of a prominent gateway into San Pablo with multifamily residential development between thirty to sixty dwelling units per acre and/or activity-generating commercial uses with a maximum FAR of 2.5. A mix of uses is encouraged, with desired commercial uses including a grocery store, restaurants, community-serving shops and services, a food truck park, a production facility with a tasting room or retail sales, or a commercial kitchen with on-site dining.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015; Ord. 2025-002, 8/4/2025)

§ 17.34.030 Uses allowed.

A. Matrix of uses. Table 17.34-A contains the use regulations for the commercial zoning districts, listed by classes of uses as defined in Division VI, Glossary. The allowable uses in Table 17.34-A for each district are established by letter designations as follows:

1. “R” designates classes of uses permitted by right.

2. “A” designates classes of uses that require an administrative review pursuant to Section 17.18.020, Plan check/zoning clearance.

3. “U” designates classes of uses permitted with a use permit pursuant to Section 17.20.040, Conditional use permit.

4. “–” designates classes of uses that are prohibited.

5. Any class of use not listed in Table 17.34-A is prohibited.

6. The zoning administrator shall determine if a use is classified as an allowed use.

B. Exceptions along railroad lines and streams. Notwithstanding the provisions of Table 17.34-A, the following provisions apply:

1. Any development, except industry — limited, industry — general, and salvage yards, within 300 feet of a railroad line that is used at least once daily shall require a use permit to ensure that the development adequately mitigates noise and vibration from the rail operations, pursuant to the relevant policies and actions under the general plan.

2. Any development, including land disturbance, that is within 50 feet of any stream shall require a use permit to ensure that the development adequately avoids impacts to wetland features or woodlands, reduces impacts to the creek, and prevents degradation of riparian and wetland features from potential urban pollutants, pursuant to the relevant policies and actions related to creeks within the general plan.

3. Sensitive uses as defined in Section 17.38.050B which are located in the Air Quality Health Risk Overlay District (D3) must obtain a conditional use permit unless the Sensitive Use is required by State Law to be permitted by right or is considered a residential use by this Zoning Ordinance or State Law. Sensitive Uses are also subject to the requirements in Section 17.38.050C.

C. Design review. Certain uses also require design review. A list of those uses is contained in Section 17.18.090, Minor design review, and Section 17.20.030, Major design review.

D. Principal uses only. Only principal uses are listed in Table 17.34-A. Accessory uses are addressed in Section 17.34.070, Accessory uses.

E. Other regulations. Some uses are also subject to the provisions of Title 5 and other titles of the San Pablo Municipal Code. Those provisions are in addition to the provisions in this chapter.

F. Special provisions. Special provisions related to a use are referenced in the special provisions column of Table 17.34-A.

Table 17.34-A - Commercial and Industrial Districts: Use Regulations
Land Use/Zoning District	NC	CR	CMU	IMU	EMU	MUCW	Special Provisions
Residential Uses
Accessory Dwelling Units	R	R	R	R	R	R	Section 17.60.070
Assisted Living Facilities	—	U	U	—	—	U
Boarding Houses	—	—	U	—	—	U
Community Care Facilities, Large	U	U	U	—	R	R
Community Care Facilities, Small	—	—	R	—	R	R
Day Care, Large Family1	U	U	R	—	—	R
Day Care, Small Family	—	—	R	—	—	R
Dwellings, Multiple-Family2	U	R	R	U	R5	R
Dwellings, Single-Family Attached2	—	—	R	—	R5	—
Dwellings, Single-Family Detached2	—	—	R	—	—	—	Section 17.32.050
Dwellings, Two-Family (Duplexes)2	—	—	R	—	—	—	Section 17.32.050
Emergency Shelter	—	R	—	—	U	U	Section 17.60.080
Employee Housing, 6 or Fewer	—	—	R	—	R	R
Employee Housing, 7+	U	U	U	U	U	—
Home Occupations	—	—	—	—	R	R	Section 17.60.030
Incidental/Caretaker Residences	U	U	U	U	U	U
Live-Work Facility	—	—	U	U	R	R	Section 17.60.040
Low-Barrier Navigation Centers	R	R	R	R	R	R	Section 17.60.100
Mobile Home Parks	—	U	—	U	—	—	Section 17.60.050
Shopkeeper Housing	R	R	R	R	R	R
Single-Room Occupancy	—	U	—	—	R	R	Section 17.60.090
Supportive Housing	R	R	R	R	R	R
Transitional Housing	R	R	R	R	R	R
Recreation, Resource Preservation, Open Space, Education, and Public Assembly Uses
Cemeteries	—	—	—	—	—	—
Community and Religious Assembly	U	U	U	U	U	U
Community Facilities	U	U	U	U	U	U
Community Gardens	A	A	A	—	A	A
Day Care Centers	U	U	U	—	U	U
Hospitals and Clinics	U	U	U	—	U	U
Medical and Dental Offices	R	R	R	A	R	R
Public Services	R	R	R	R	R	R
Recreation, Amusements	U	U	R	U	U	—
Recreation, Indoor	R	R	R	R	R	U
Recreation, Major Arcades	U	U	U	U	U	U	Section 17.62.030
Recreation, Minor Arcades	R	R	R	R	R	R	Section 17.62.030
Recreation, Outdoor Passive	R	R	—	R	R	R
Recreation, Parks and Playgrounds	R	R	R	R	R	U
Religious Institutions	U	U	U	U	U	U
Schools, Private	U	U	U	—	U	U
Schools, Public	U	U	U	—	U	U
Schools, Vocational Schools	U	U	U	U	U	U
Utility, Transportation, Public Facility, and Communication Uses
Wireless Facilities	—	—	—	—	U	U	Sections 17.62.200 and 17.62.300
Utilities, Major	U	U	U	U	U	U
Utilities, Minor	A	R	R	R	R	R
Retail, Service, and Office Uses
Adult-Oriented Businesses	—	U	—	—	—	—	Section 17.62.010
Alcoholic Beverage Sales	U	U	U	U	U	U	Section 17.62.020
Animal Boarding	U	R	U	R	U	—	Section 17.60.010
Animal Care	A	R	A	R	A	A	Section 17.60.010
Artist Studios	R	R	R	R	R	R
Banks and Financial Institutions, Credit Unions	R	R	R	R	R	R
Bed and Breakfast	—	R	—	U	R
Building Materials — Indoor Sales	U	U	—	R	R	U
Business and Professional Services	R	R	R	R	R	R
Cannabis, Retail Business	U	U	U	U	U	U	Section 17.62.130
Cannabis, Limited Personal Cultivation	P	P	P	P	P	P	Section 17.62.130
Cannabis, Outdoor Cultivation	—	—	—	—	—	—	Section 17.62.130
Check Cashing Businesses	U	U	U	—	—	U	Section 17.62.050
Commissaries	—	U	—	U	U	—
Dance and Fitness Studios	A	A	A	A	A	A
Escort Services	—	—	—	—	—	—	Section 17.62.120
Farmers Markets	U	A	A	U	A	U
Food and Beverage Sales, Catering Services	A	R	A	A	R	A
Food and Beverage Sales, Convenience3	A	R	U	U	R	R
Food and Beverage Sales, General	R	R	R	R	R	R
Funeral and Interment Services	U	—	R	R	R	U
Health and Exercise Clubs	A	R	R	R	R	R
Healthy Food Stores	R	R	R	R	R	R	Section 17.62.090
Live Entertainment	U	U	U	U	U	U
Lodging, Hotels and Motels	—	R	A	U	U	U
Massage Establishments	U	U	U	—	U	U	Section 17.62.120
Mobile Vending3	—	—	U	U	A	A	Section 17.62.140
Nightclubs and Bars	U	U	U	U	U	U
Nurseries	U	R	R	R	R	R
Offices	R	R	R	R	R	R
Pawnshops or Pawnbrokers	U	U	U	U	U	—	Section 17.62.150
Personal Services	R	R	R	R	R	R
Repair Services, General	—	—	—	R	R	—
Repair Services, Limited	U	R	U	R	R	A
Restaurants, Coffee Shops/Cafes	R	R	R	R	R	R
Restaurants, Fast Service	U	U	U	U	U	U	Section 17.62.160
Restaurants, Full Service	R	R	R	R	R	R
Restaurants, General	R	R	R	R	R	R
Restaurants, Outdoor Dining	A	A	A	A	A	A
Retail Sales, General	R	R	R	R	R	R
Retail Sales, Local	R	R	R	R	R	R
Retail Sales, Outdoor	U	U	U	R	R	U	Chapter 17.52
Retail Sales, Regional4	—	R	R	R	R	U
Secondhand Dealers	A	A	A	A	R	A	Section 17.62.170
Smoke Shops	U	U	U	U	U	U	Section 17.62.180
Specialty Food Retail	R	R	R	R	R	R
Specialty Goods Retail	R	R	R	R	R	R
Tattoo Parlors	U	U	U	U	A	A	Section 17.62.190
Wholesaling	—	U	—	R	R	—
Automobile and Vehicle Uses
Automotive, Major Repair	—	U	—	R	U	—	Section 17.62.040
Automotive, Minor Repair	U	U	U	R	A	—	Section 17.62.040
Automotive, New Car Sales	—	R	—	R	—	—
Automotive, Parts Sales	R	R	R	R	R	U	Section 17.52.040, Outdoor storage
Automotive, Gas Stations	U	R	—	R	—	—
Automotive, Used Car Sales	—	—	—	R	—	—
Automotive, Washing	U	A	—	R	U	—
Boat and RV Sales	U	R	—	R	—	—
Taxicab Companies	—	—	—	U	—	—
Truck Repair and Sales	—	—	—	R	—	—	Chapter 17.52
Industrial, Manufacturing, and Processing Uses
Building Materials Yard	—	U	—	R	U	—	Chapter 17.52
Industry, General	—	—	—	R	U	—
Industry, Limited	—	—	—	R	R	—
Junkyards	—	—	—	—		—	Section 17.62.110
Maintenance Yards	—	—	—	R	U	—	Chapter 17.52
Recycling Services, Consumer	—	—	—	A	U	—	Section 17.58.020
Recycling Services, Donation/Collection Boxes	U	U	U	U	U	U	Section 17.58.030
Recycling Services, General	—	—	—	A	—	—	Section 17.52.030
Research and Development	—	U	U	R	R	U
Storage, Personal	—	U	—	R	U	—
Warehousing and Storage, Enclosed	—	—	—	R	R	—
Warehousing and Storage, Outdoors	—	—	—	U	U	—	Chapter 17.52

Notes:
1.	A use permit is required if located in other than a single-family dwelling.
2.	In all cases, supportive housing and transitional housing are and shall be treated as residential uses, subject only to the permitting requirements that apply to residential uses of the same housing type location in the same zone.
3.	Food truck festivals require a temporary use permit.
4.	Home improvement centers may be approved under retail sales, regional.
5.	Multiunit residential uses permitted only on sites over 0.25 acres, where adequate buffering and noise mitigation is provided, pursuant to Section 17.45.080, Screening, and Chapter 17.50, Noise.

(Ord. 2015-002 § 3, 2015; Ord. 2016-001 § 3, 2016; Ord. 2017-003 § 3, 2017; Ord. 2017-005 § 3, 2017; Ord. 2020-002 § 8, 2020; Ord. 2020-011 § 5, 2020; Ord. 2025-001, 3/3/2025; Ord. 2025-002, 8/4/2025; Ord. 2026-002, 4/20/2026)

§ 17.34.040 Development standards.

A. General. Table 17.34-B establishes property development standards for commercial districts. Standards shown in the table are subject to the rules of measurement set forth in Chapter 17.46, Height and Yard Requirements.

Table 17.34-B — Commercial and Industrial Districts: Development Standards
	NC	CR	CMU2	IMU	EMU	MUCW
Minimum parcel area (sf)	2,000	10,000	5,000	No minimum	No minimum3	No minimum
Maximum building height (feet)	30	50	50	65	60	60
Minimum floor area ratio (FAR)	0.3	0.3	0.5	—	—	0.5
Maximum floor area ratio (FAR)	—	—	—	—	0.64	2.5
Office	1.0	0.75	1.5	0.6	—	—
Non-office	1.0	0.5	1.5	0.6	—	—
Maximum density (du/ac)	—	—	501	—	60	30—60
Minimum setbacks (feet)	See Section 17.34.040(B)

Notes:

No side yard setback is required except where the side of a parcel abuts the side of a parcel in a residential district or a parcel on which a conforming residential use is located, in which case the side yard shall be not less than ten feet.

No rear yard setback is required except where the rear of a parcel abuts a residential district or on a parcel on which a residential use is located, in which case the rear yard shall not be less than ten feet.

¹ Residential uses are only allowed when the commercial FAR is 0.5 or greater.

² For properties within SP1 and SP2 please refer to each specific plan for development and other design standards.

³ Minimum parcel size of 0.25 acres required for multifamily residential uses.

⁴ Maximum floor area of 0.6 for nonresidential uses only. No applicable FAR maximum for residential uses.

B. Setbacks. The following setbacks are required:

1. No front yard setback is required.

2. No side yard setback is required except where the side of a parcel abuts the side of a parcel in a residential district or a parcel on which a conforming residential use is located, in which case the side yard shall be not less than ten feet.

3. No rear yard setback is required except where the rear of a parcel abuts a residential district or a parcel on which a residential use is located, in which case the rear yard shall not be less than ten feet.

C. Stormwater management. For rules on stormwater management, see Chapter 8.40.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015; Ord. 2020-002 § 9, 2020; Ord. 2025-002, 8/4/2025)

§ 17.34.050 Residential uses.

Notwithstanding any other provision of this title, the following provisions apply to residential uses allowed pursuant to the planned development procedure:

A. Density. Residential dwelling units in a commercial district shall not exceed one dwelling unit per two thousand five hundred square feet of parcel size unless otherwise permitted in a specific plan.

B. Development standards. Residential dwelling units in a commercial district shall comply with the development standards set forth in Chapter 17.32, Residential Districts, Allowed Uses, and Development Standards, or in Section 17.34.040, Development standards, whichever are more restrictive.

C. In combination with other uses. If residential dwelling units are combined within one building or project site with nonresidential uses allowed by Section 17.34.030, Uses allowed, the following provisions shall apply:

1. The residential and nonresidential uses shall be determined to be compatible.

2. The nonresidential uses shall be at ground level along the street frontage(s).

3. The number of dwelling units shall not exceed one dwelling unit per two thousand square feet of parcel size.

4. The floor area ratio of a mixed-use residential and nonresidential building shall not exceed 0.75. The building shall comply with the height and setback requirements of this chapter.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.060 Noncommercial uses.

A. Presumption against. In the event of an application for a use permit for a project involving a noncommercial use located in a commercial district, the general welfare of the city requires that the application be denied unless the planning commission finds that the particular use will not be detrimental to the long-term economic vitality of the commercial district and/or to neighboring commercial uses.

B. Findings. In addition to any other finding which may lawfully be required for a use permit, the planning commission and/or city council shall make the following findings before approving a use permit subject to this section:

1. The proposed use will not adversely impact the city’s existing supply of land, structures, or sites that are particularly suitable for future commercial development.

2. The requested use at the location proposed will not be materially detrimental to existing or future commercial uses in the same general area.

3. The proposed use will not encourage marginal commercial development in the same general area.

4. The proposed use is substantially compatible with existing and likely future commercial developments in the same general area.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.070 Accessory uses.

Accessory uses normally incidental to the type of principal use located on the parcel are allowed. In case of dispute, the zoning administrator shall determine if a use is an accessory or a principal use.

A. Massage establishments are allowed when subordinate to or part of a principal use in the same facility and serving a use incidental to such principal use only in dance and fitness studios, a nail salon, as a service ancillary thereto when provided by a massage therapist with a valid permit under Chapter 5.36. Accessory uses shall comply with the requirements set forth in Chapter 17.42, Accessory Structures.

B. In no instance shall advertising, signs, or any other display relating to the availability of massage services be visible from the exterior of the building.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.080 Commercial design guidelines.

The commercial design guidelines in Appendix B are not a mandatory part of the zoning ordinance. The guidelines may, however, be imposed as conditions of approval, provided the applicable approval process allows for conditions to be imposed. Their primary purpose is to serve as a guide during the review, including design review, of a proposed development.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.090 Neighborhood commercial centers.

Neighborhood commercial centers are encouraged by the general plan at particular locations near primary street intersections in all overlay districts, except the Giant Trade Center Business Park district. Neighborhood centers are intended to meet the daily needs of the immediate population, including but not limited to housing, grocery and convenience stores, salons, offices, food and beverage sales, drugstores, dry cleaners, banks, community and cultural facilities, and recreation. Development incentives for the creation of mixed-use neighborhood commercial centers are contained in Section 17.34.100, FAR development incentives.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.100 FAR development incentives.

A. FAR increase. Properties within commercial districts or commercial projects, regardless of location, may be developed at a FAR of up to 0.75, if one or more of the following conditions are met:

1. The project provides public amenities and facility improvements such as open space and multiple (mixed) uses which serve to distinguish the development area as unique, consistent with the general plan;

2. The project incorporates feasible shared parking with adjacent or nearby development; or

3. The project consolidates parcels to facilitate efficient development, parking, access, and landscaping.

B. Use permit required. Any increase in FAR pursuant to subsection A of this section must be approved by a use permit.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.110 Mixed-use design guidelines.

The mixed-use design guidelines in Appendix D are not a mandatory part of the zoning ordinance. The guidelines may, however, be imposed as conditions of approval, provided the applicable approval process allows for conditions to be imposed. These guidelines are intended to encourage higher-quality, complementary mixed uses, unique design features, and pedestrian amenities, consistent with the general plan. They are designed to be used in conjunction with the design guidelines for residential, commercial, and industrial development.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)

§ 17.34.120 Industrial design guidelines.

The industrial design guidelines in Appendix C are not a mandatory part of the zoning ordinance. The guidelines may, however, be imposed as conditions of approval, provided the applicable approval process allows for conditions to be imposed. Their primary purpose is to serve as a guide during the review, including design review, of a proposed development.

(Ord. 2015-002 § 3 (Exh. 1)(part), 2015)