The Housing Element sets out San Francisco’s plan to meet its housing targets for 2023-2031. A key part of this plan is rezoning to add 36,200 more housing units on top of what's already allowed. The focus is on expanding housing options, especially in areas where multifamily housing has been limited.

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Background of the Rezoning Program

The Expanding Housing Choice program kicked off in Spring 2023 and is mainly focused on San Francisco's Housing Opportunity Areas. These are spots identified where increased zoning capacity will help close the city's 36,200-unit shortfall in housing, which is a major part of the city’s overall housing goals.

The rezoning targets transit corridors, commercial areas, and key opportunity sites, with plans for height increases in these zones to take advantage of existing infrastructure. In these areas, mid-rise housing (65’-85’, or about 6-8 stories) will be allowed, with some spots even getting higher height limits for projects that could go 12 stories or more.

A big part of this rezoning is shifting toward form-based zoning, where density is based on a building’s physical characteristics (like height and lot coverage) rather than just the number of units. This shift gives developers more flexibility, especially in areas that previously had stricter limits.

Fulfilling State Mandates

California requires cities to not only meet housing needs but also to Affirmatively Further Fair Housing (AFFH). This means cities need to actively work against housing discrimination, break down historic segregation, and make housing more accessible to everyone, especially in underserved communities. San Francisco's rezoning efforts are in line with these goals, specifically targeting historically exclusionary neighborhoods. These areas, which were often affected by practices like redlining or racially restrictive covenants, have had limited affordable housing options for non-white households. By focusing on rezoning in these neighborhoods, the city is aiming to increase housing opportunities where they've been lacking for a long time.

Updates to the Draft Zoning Map

The Department has been actively updating the Draft Zoning Proposal, first released in February 2024 and reviewed by the Commission in June 2024. These updates reflect ongoing conversations with stakeholders, including the Mayor, Board of Supervisors, and community groups, who’ve shared their thoughts on district-specific and citywide issues.

Proposed Zoning Map (April 2025)

The latest version of the Proposed Zoning Map (Exhibit A), available by April 2025, incorporates feedback from the 2022 Housing Element adoption, two rounds of outreach for the Expanding Housing Choice program, and additional input through March 2025. The updated map, along with a non-interactive PDF, will be available on the Expanding Housing Choice project webpage. These updates aim to address San Francisco's housing shortfall of 36,200 units while navigating the city's economic challenges and low housing production rates.

Key updates to the map focus on:

• Ambitious Zoning: Pushing for more housing production to meet the city's housing needs while considering San Francisco's unique characteristics.
• Neighborhood Strengthening: Ensuring neighborhoods grow sustainably with tenant and small business protections as development moves forward.
• Inclusive Growth: Expanding housing opportunities across the city, especially in traditionally single-family areas, and prioritizing affordable housing options.
• Financial Feasibility: Drawing from successful past developments to ensure new housing types are financially viable and backed by clear standards and streamlined review processes.

The proposed heights in the map align with those allowed under the Local Program, giving developers the flexibility to choose between the Local Program or state density bonus options to meet the height requirements.

Guiding Principles of the Updated Map

The updated zoning map follows several key guiding principles:

City’s Control over Growth

The city wants to manage its growth while still meeting state housing requirements.

Concentration of New Housing

New housing will be focused on major transit routes, commercial streets, and hubs, where the infrastructure supports higher-density development.

Balanced Distribution

Housing will be spread out across the city’s Housing Opportunity Areas to prevent overcrowding in any one neighborhood.

Height Variations

Most corridors will feature mid-rise development, with heights ranging from 65' to 85'. Taller buildings (140’ to 650’) are proposed near high-rise areas or major transit hubs.

Encouraging More Units

Zoning will be adjusted to allow for more units in residential areas near key transit and commercial streets, especially where higher-density development is appropriate.

Use of Opportunity Sites

Properties like public, nonprofit, and religious sites, along with large parcels in well-resourced neighborhoods, will get higher height limits to support more housing, especially affordable housing.

The plan also aligns with the Urban Design Element, ensuring that taller buildings are located in transit-accessible areas to reduce visual impact on the city’s iconic views.

Specific Edits Since the February 2024 Map

• Housing Opportunity Areas: Corner lots and parcels larger than 8,000 square feet can add two stories up to 65' with the Local Program. Density limits will be removed in most areas, particularly outside transit corridors and commercial hubs.
• Buffer Zones: Around key commercial districts, height limits will allow up to five stories within a one-block radius, impacting areas like Market Street, Glen Park BART, and Castro Street.
• Mid-Rise Areas: Additional areas are designated for 6-8 story development, including parts of Fisherman’s Wharf and Russian Hill.
• Increased High-Rise Heights: Height limits are raised in high-demand areas, including along Geary Boulevard and at major transit hubs like Balboa Park BART.
• Lowered Heights: Some areas, such as parts of Geary, Lombard, and Church Street, have seen reduced height limits based on community input.
• Removed Height Increases: Some areas, including parts of Park Presidio Boulevard, no longer have proposed height increases to balance community concerns.

Consistency with Housing Element and State Laws

The proposed zoning map aligns with the 2022 Housing Element and state laws, helping the city meet its RHNA obligations. Using a unit capacity estimation model, the map ensures that the housing shortfall is exceeded. External modeling experts have refined the map, considering economic conditions to make sure housing development is feasible across San Francisco.

The feasibility of different housing types has been reviewed with real estate experts to factor in construction costs and the approval process. These analyses confirm that the zoning changes will support the needed housing while addressing the city’s socio-economic needs.

The Department is working on a legislative package for the Housing Element rezoning, which includes amendments to the Planning Code, Zoning Map, Height Map, General Plan, and the creation of a Housing Sustainability District. Since the June 4, 2024, Planning Commission hearing, the focus has been on refining policies and incorporating community feedback. The package will establish a new zoning district called "RTO-C" and make changes to existing districts related to height, bulk, densities, design standards, affordable housing, parking, and uses. The optional Housing Element Local Program will offer flexibility in developing housing at proposed heights and densities.

The zoning amendments will provide several options for projects to reach the proposed heights, such as using the Local Program or other bonus laws like the State Density Bonus or AB2011. For example, some parts of Geary Boulevard are proposed to be rezoned from a 40-foot height limit to 85 feet.

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Base Zoning Amendments

The proposed zoning amendments will apply to projects using state bonus programs or the Local Program. These changes focus on several key areas:

Density decontrol

This includes form-based zoning and setting minimum densities for sites near transit hubs and other rezoned areas.

Height amendments

These changes will let projects use local or state programs to aim for heights that match the Local Program heights shown on the Proposed Zoning Map.

Codification of Objective Design Standards

These standards are already part of the Citywide Design Standards and will now be formally included.

Tenant protections

State laws will be codified locally, as discussed in the February 27th, 2025 Planning Commission hearing.

Demolition policies

New policies will focus on preserving residential flats.

Small business support

Larger developments will need to include micro-retail spaces to help small businesses with relocation assistance and affordability.

These amendments will mainly apply to Housing Opportunity Areas, with some extending to other areas or even citywide.

Summary of Base Zoning Amendments

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Housing Element Local Program

The Local Program offers an alternative to state programs like the State Density Bonus, giving project sponsors more flexibility while keeping San Francisco’s character intact.

How to qualify?

To get in, projects need to opt out of state bonus programs and meet specific code requirements and design standards. They can still benefit from streamlining provisions in state laws like AB2011 and SB423, if applicable.

Projects using the Local Program can pick from a range of "local waivers", which provide flexibility in Planning Code rules. These waivers cover common requests, like adjustments to rear yard, exposure, and open space requirements. The Department is actively collecting feedback to improve how the program is carried out.

Benefits of the Local Program

The Local Program offers a flexible alternative to the State Density Bonus (SDB) and other bonus programs. While density bonus programs like the SDB have been essential for affordable and mixed-income housing, the Local Program provides additional benefits by allowing greater flexibility and options for development.

Benefits to the Community

The Local Program offers several advantages:

Diverse Affordable Housing Types

It allows for various options like onsite or offsite affordable housing, land dedication, and rent-controlled units, targeting specific groups such as seniors, people with disabilities, and families.

Predictable Urban Form

Unlike the State Density Bonus, which often results in unpredictable building characteristics, the Local Program offers more control over building height and design, fostering planning across neighborhoods.

Clearer Policy Goals and Expectations

The Local Program ensures that projects align more closely with city policies, avoiding conflicts seen in some State Density Bonus projects, such as excess parking or inappropriate retail uses. It sets clearer standards while allowing flexibility where necessary.

Planning Approvals for Housing Development Projects

The Housing Element and state laws provide pathways for qualifying projects to gain approvals through ministerial or streamlined processes:

Ministerial Review

Projects that meet specific criteria may qualify for ministerial review under laws like SB423, AB2011, and the Housing Element “low-income sites” provision. They can also be used for a newly established Housing Sustainability District (HSD).

Streamlined Approval

Projects not eligible for ministerial review (e.g., those without on-site affordable housing) may still qualify for streamlined approval, with administrative review within 30-60 days. Projects consistent with the Housing Element's development density may also qualify for expedited environmental review through the General Plan Exemption (GPE) process.

Certain projects, such as those involving the demolition of rent-controlled housing, may require additional reviews or hearings, including Conditional Use Authorization from the Planning Commission.

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