HomeMy WebLinkAboutReso - CC - 154-2023RESOLUTION NO. 154-2023
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF BURLINGAME TO
ADOPT THE ADDENDUM TO THE 2040 GENERAL PLAN ENVIRONMENTAL
IMPACT REPORT, ADOPT A GENERAL PLAN AMENDMENT TO REPEAL THE
2015-2023 CITY OF BURLINGAME HOUSING ELEMENT, AND ADOPT THE 2023-
2031 CITY OF BURLINGAME HOUSING ELEMENT, IN COMPLIANCE WITH STATE
HOUSING ELEMENT LAW
WHEREAS, the California Legislature has found that "California has a housing
supply and affordability crisis of historic proportions. The consequences of failing to
effectively and aggressively confront this crisis are hurting millions of Californians,
robbing future generations of the chance to call California home, stifling economic
opportunities for workers and businesses, worsening poverty and homelessness, and
undermining the state's environmental and climate objectives" (Gov. Code Section
65589.5.); and
WHEREAS, State Housing Element Law (Government Code Sections 65580 et
seq.) requires that the City of Burlingame (the City) adopt a housing element for the
eight-year period 2023-2031 to accommodate the regional housing need allocation
(RHNA) assigned to the City by the Association of Bay Area Governments of 3,257
housing units, comprised of 863 units affordable to very-low income households, 497
units affordable to low-income households, 529 units affordable to moderate-income
households, and 1,368 units affordable to above moderate-income households; and
WHEREAS, to comply with State Housing Element Law, the City has prepared a
2023-2031 Housing Element (the "Housing Element") in compliance with State Housing
Element Law and has identified sites that can accommodate housing units meeting the
City's RHNA; and
WHEREAS, the preparation, adoption, and implementation of the Housing
Element requires a diligent effort to include all economic segments of the community;
and
WHEREAS, the City conducted extensive community outreach over twenty
months, beginning in March 2022, as described in detail in Appendix B to the proposed
Housing Element; and
WHEREAS, in accordance with Government Code Section 65585(b), on
December 28, 2022, the City posted the draft Housing Element and requested public
comment for a 30-day review period; and
WHEREAS, on January 9, 2023, the Planning Commission and on January 17,
2023 the City Council held duly and properly noticed public meetings to take public
testimony and review the proposed Housing Element; and
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WHEREAS, on February 17,2023, after responding to public comments, the City
submifted the draft Housing Element to the State Department of Housing and
Community Development (HCD) for its review; and
WHEREAS, on May 18,2023 the City received a letter from HCD providing its
findings regarding the draft Housing Element; and
WHEREAS, on September 6 , 2023 lhe City published a revised draft Housing
Element responding to HCD's findings and requested public comment on the draft; and
WHEREAS, on September 15, 2023 the City submitted a second draft Housing
Element to HCD; and
WHEREAS, on November 'lO, 2023 the City submitted a third draft Housing
Element to HCD; and
WHEREAS, on November 15, 2023 the City received a letter from HCD stating
that the draft Housing Element, along with revisions, meets the statutory requirements
and that the Housing Element will substantially comply with Housing Element Law when
it is adopted, submitted to, and approved by HCD, in accordance with Government
Code Section 65585; and
WHEREAS, on January 7 , 2019, pursuant to Resolution No. 005-2019, the City
Council adopted the CEQA Finding of Fact, Statement of Significance, and Mitigation
Monitoring and Reporting Program, and certified the Environmental lmpact Report for
the Burlingame 2040 General Plan (SCH#2017082018) (the'General Plan ElR"); and
WHEREAS, on January 7 , 2019, pursuant to Resolution No. 006-201 9, the City
Council adopted the Burlingame General Plan document; and
WHEREAS, the proposed Housing Element is considered an amendment to the
Burlingame General Plan; and
WHEREAS, pursuant to CEQA Guidelines Section 15164, the City has prepared
an Addendum to the General Plan EIR (the "Addendum"), which is incorporated herein
by reference as Exhibit B to this resolution, affirming that the analysis contained in the
2040 General Plan EIR adequately addresses the potential physical impacts associated
with implementation of the proposed Housing Element; and
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WHEREAS, on November 2,2023 the City published a third draft Housing
Element that responded to informal comments received from HCD; and
WHEREAS, based upon the evidence submitted and as demonstrated by the
analysis included in the Addendum, none of the conditions described in Sections 15162
and 15163 of the State CEQA Guidelines calling for the preparation of a subsequent or
supplemental EIR or negative declaration have occurred; specifically:
a. There have not been any substantial changes in the project that require major
revisions of the EIR because of new significant environmental effects or a
substantial increase in the severity of previously identified significant effects;
b. There have not been any substantial changes with respect to the circumstances
under which the project is undertaken that require major revisions of the EIR due
to the involvement of new significant environmental effects or a substantial
increase in the severity of previously identified significant effects; and
c. There is no new information of substantial importance, which was not known
and could not have been known with the exercise of reasonable diligence at the
time the Final EIR was certified that shows any of the following: (a) the project
will have one or more significant effects not discussed in the Final EIR; (b)
significant effects previously examined will be substantially more severe than
shown in the Final EIR; (c) mitigation measures or altematives previously found
not to be feasible would in fact be feasible and would substantially reduce one or
more significant effects of the project, but the project proponents decline to adopt
the mitigation measure or alternative; or (d) mitigation measures or alternatives
which are considerably different from those analyzed in the Final EIR would
substantially reduce one or more significant effects on the environment, but the
project proponents decline to adopt the mitigation measure or alternative; and
WHEREAS, the proposed Addendum demonstrates that none of the conditions
described in CEQA Guidelines Section 15162 requiring preparation of a subsequent
EIR or negative declaration exist; and
WHEREAS, on November 27,2023, the Planning Commission conducted a duly
and properly noticed public hearing to take public testimony and recommended the City
Council adopt the Addendum to the General Plan EIR regarding the proposed Housing
Element, repeal the 2015-2023 Housing Element, and adopted the proposed Housing
Element,
WHEREAS, on December 18,2023, the City Council conducted a duly and
properly noticed public hearing to take public testimony and consider this Resolution
regarding the proposed Housing Element, reviewed the Housing element and and all
pertinent maps, documents and exhibits, including HCD's findings, the City's response
to HCD's findings, the staff report and all attachments, and oral and written public
comments.
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WHEREAS, the Addendum was prepared in compliance with the requirements of
the California Environmental Quality Act and the State CEQA Guidelines; and
1. The foregoing recitals are true and correct and are incorporated by reference into this
action.
2. The City Council has considered the Addendum attached as Exhibit B to this
Resolution as well as the General Plan EIR and finds that based upon the evidence
submitted and as demonstrated by the analysis included in the Addendum, none of
the conditions described in Section 15162 and 15163 of the State CEQA Guidelines
calling for the preparation of a subsequent or supplemental Environmental lmpact
Report have occurred, and therefore adopts the Addendum.
3. The City Council makes the following findings:
a. The amendment is internally consistent with all other provisions of the
General Plan.
The Housing Element is consistent with the General Plan and General
Plan goals, policies, and implementation programs, which specify
providing housing oppoftunities for all income ranges. The Housing
Element maintains the land uses and residential denslties provided in
the General Plan Community Character (Land Use) Element.
b. The proposed amendment will not be detrimental to the public interest,
health, safety, convenience, or welfare of the City of Burlingame.
On the basis of the Final Environmental lmpact Report (FEIR) certified
by the Butingame City Council on January 7, 2019, pursuant to
Resolution No- 005-2019, the Environmental lmpact Report (EIR)
Addendum dated November, 2023 and the documents submitted and
reviewed, and comments received and addressed by this commission,
it has been found that there is no substantial evidence that the Housing
Element will have a significant effect on the environment beyond those
that were previously evaluated in the certified FEIR for the 2040
General Plan.
5. Based on substantial evidence in the record, due to rapidly expanding demand for
residential land in the region and the underutilized nature of the sites identified in the
sites inventory, the existing uses on the non-vacant sites identified in the site inventory
to accommodate the RHNA are likely to be discontinued during the planning period
and therefore do not constitute an impediment to residential development on the sites
during the period covered by the housing element.
NOW, THEREFORE, BE IT RESOLVED, based on substantial evidence in
the record:
4. The Housing Element substantially complies with State Housing Element Law, as
provided in Government Code Section 65580 et seq.
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6. As required by Govemment Code Section 65585(e), the City Council has considered
the findings made by the Department of Housing and Community Development
included in the Department's letter to the City dated May 18,2023, and, consistent
with Government Code Section 65585(0, the City Council has changed the Housing
Element in response to the findings of the Department to substantially comply with the
requirements of State Housing Element Law.
7. The 20'15-2023 Burlingame Housing Element is hereby repealed in its entirety, and
the 2023-2031 Burlingame Housing Element, as shown in Exhibit A to this Resolution
and incorporated herein, which has been found by the Department of Housing and
Community Development in its November 15,2023 letter to be in substantial
compliance with State Housing Element Law, is adopted.
9. The Community Development Director or designee is hereby directed to file all
necessary material with the Department of Housing and Community Development for
the Department to find that the Housing Element is in conformance with State Housing
Element Law and is further directed and authorized to make all non-substantive
changes to the Housing Element to make it internally consistent or to address any
non-substantive changes or amendments requested by the Department to achieve
certification.
10.The Community Development Director or designee is hereby directed to distribute
copies of the Housing Element in the manner provided in Government Code Sections
65357 and 65589.7
Mi ael Brownri M r
l, Meaghan Hassel-Shearer, City Clerk of the City of Burlingame, certify e foregoing
resolution was introduced at a regular meeting of the City Council held on e 18th dav of
December 2023 and was adopted thereafter by the following vote:
AYES: COUNCIL MEMBERS: B"ec* BNOES: COUNCIL MEMBERS: oc.ra
(oc&1ffr rr&, C+Scrr , OXrt7-, Sreya€On
ABSENT: COUNCIL MEMBERS: 4o..
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eagha hearer, City Clerk
8. This Resolution shall become effective upon adoption of the City Council.
City of Burlingame
2023 – 2031 Housing Element
Draft for Adoption
November 27, 2023
TOC-1
Table of Contents
Chapter 1. Executive Summary ...................................................................................................... HE-1
Introduction .............................................................................................................................. HE-1
Profile of the Community ......................................................................................................... HE-1
Housing Constraints ................................................................................................................. HE-1
Community Resources ............................................................................................................. HE-2
Community Opportunities ....................................................................................................... HE-2
Evaluation of the 2015-2023 Housing Element ...................................................................... HE-3
Housing Goals, Policies and Action Program......................................................................... HE-8
Chapter 2. Introduction .................................................................................................................. HE-9
Role and Organization of Housing Element ........................................................................... HE-9
Sources of Information ........................................................................................................... HE-10
Civic Engagement .................................................................................................................. HE-10
Consistency with Other General Plan Elements................................................................... HE-12
Preparation of the Housing Element .................................................................................... HE-13
Chapter 3. Profile of the Community .......................................................................................... HE-15
Housing Needs Assessment .................................................................................................. HE-15
Demographic Profile .............................................................................................................. HE-15
Housing and Households....................................................................................................... HE-17
Special Needs Populations .................................................................................................... HE-21
Housing Stock Characteristics ............................................................................................... HE-30
Regional Housing Needs ....................................................................................................... HE-36
Chapter 4: Affirmatively Furthering Fair Housing ....................................................................... HE-39
History of Segregation in Burlingame and San Mateo County ........................................... HE-39
Burlingame’s Fair Housing Assessment ................................................................................ HE-41
Contributing Factors and Fair Housing Action Plan ............................................................ HE-42
TOC-2
Chapter 5: Housing Constraints .................................................................................................. HE-45
Governmental Constraints ..................................................................................................... HE-45
Land Use Regulations ............................................................................................................. HE-45
Building Codes and Enforcement ......................................................................................... HE-56
Water/Sewer Capacity ........................................................................................................... HE-57
Water Supply .......................................................................................................................... HE-57
Wastewater Collection and Treatment ................................................................................. HE-58
NPDES (National Pollutant Discharge Elimination System) Requirements ........................ HE-59
Dry Utilities .............................................................................................................................. HE-59
On and Off-Site Improvements ............................................................................................. HE-59
Environmental Requirements ................................................................................................ HE-60
Fees and Exactions ................................................................................................................. HE-63
Process and Permitting Procedures ...................................................................................... HE-73
Constraints to Housing for Persons with Disabilities ........................................................... HE-82
Non-Governmental Constraints ............................................................................................ HE-84
Environmental ......................................................................................................................... HE-84
Land and Construction Costs ................................................................................................ HE-84
Financing and Affordability.................................................................................................... HE-85
Chapter 6: Community Resources and Opportunities ............................................................... HE-87
Legislative Context for the Housing Element’s Inventory of Sites ...................................... HE-87
Site Inventory Methodology .................................................................................................. HE-88
Site Inventory Approach ........................................................................................................ HE-89
Realistic Capacity of Mixed Use Sites ................................................................................... HE-97
Identification of Sites for Affordable Housing .................................................................... HE-100
Distribution of Units by Affordability................................................................................... HE-103
Sites Inventory....................................................................................................................... HE-106
Housing Funding Opportunities ......................................................................................... HE-109
Energy Conservation Opportunities ................................................................................... HE-111
TOC-3
Chapter 7: Housing Goals, Policies, and Action Programs: 2023-2031 .................................. HE-113
Quantified Summary of Objectives ..................................................................................... HE-140
Data Sources ............................................................................................................................... HE-141
Appendices ................................................................................................................................. HE-142
Appendix A: Review of RHNA Programs ........................................................................................ A-1
Appendix B: Community Outreach Summary ................................................................................ B-1
Appendix C: Affirmatively Furthering Fair Housing Assessment .................................................. C-1
Appendix D: Sites Inventory ............................................................................................................ D-1
List of Figures
Figure HE-1: Race and Ethnicity .................................................................................................. HE-16
Figure HE-2: Average Home Sales Price between 2010 and 2020 ............................................ HE-18
Figure HE-3: Major Public and Legal Actions that Influence Fair Access to Housing ............. HE-40
Figure HE-4: Noise Contours ....................................................................................................... HE-61
Figure HE-5: Areas Subject to Anticipated Sea Level Rise ........................................................ HE-62
Figure HE-6: Areas Subject to Anticipated Liquefaction ........................................................... HE-62
List of Tables
Table HE-1: Poverty ...................................................................................................................... HE-16
Table HE-2: Overcrowding ........................................................................................................... HE-20
Table HE-3: Age and Type of Disability ...................................................................................... HE-26
Table HE-4: Overpayment by Tenure ......................................................................................... HE-29
Table HE-5: Number of Housing Permits Issued between 2015 and 2021 by Affordability .... HE-31
Table HE-6: Households by Tenure............................................................................................. HE-32
Table HE-7: Housing at Risk of Conversion ................................................................................ HE-35
Table HE-8: Projected Housing Need by Income Category ..................................................... HE-37
Table HE-9: Summary of Fair Housing Issues and Action Plan ................................................. HE-43
Table HE-10: Burlingame Planning Fees ..................................................................................... HE-64
Table HE-11: Example of Single Family and Multifamily Project Fees ..................................... HE-65
Table HE-12: Burlingame Public Facilities Impact Fees ............................................................. HE-67
TOC-4
Table HE-13: Residential Impact Fees ........................................................................................ HE-68
Table HE-14: Sewer and Water Capacity Fees ........................................................................... HE-69
Table HE-15: Total Fees (includes entitlement, building permits, and impact fees)
per Unit .................................................................................................................. HE-71
Table HE-16: Total Fees per Unit - Distribution of Fees Charged by San Mateo County
Jurisdictions ........................................................................................................... HE-71
Table HE-17: Total Fees as a Percentage of Total Development Costs................................... HE-72
Table HE-18: Type of Environmental Review Under CEQA ...................................................... HE-79
Table HE-19: Permit Processing Times (in months) .................................................................... HE-81
Table HE-20: Burlingame RHNA Targets Summary ................................................................... HE-87
Table HE-21: 2015-2022 Downtown Specific Plan Project Densities ........................................ HE-91
Table HE-22: 2015-2022 Downtown Specific Plan Unit Yields ................................................... HE-92
Table HE-23: 2019-2022 North Rollins Road Mixed Use Project Densities .............................. HE-94
Table HE-24: 2019-2022 North Rollins Road Mixed Use Unit Yields ......................................... HE-95
Table HE-25: 2019-2022 North Burlingame Mixed Use Project Densities ................................ HE-96
Table HE-26: 2019-2022 North Burlingame Mixed Use Unit Yields .......................................... HE-97
Table HE-27: 2015-2023 Residential Projects in Mixed Use Districts ........................................ HE-98
Table HE-28: 2015-2023 Nonresidential Projects in Mixed Use Districts .................................. HE-99
Table HE-29: RHNA Income Distribution .................................................................................. HE-104
Table HE-30: Sample RHNA Income Distribution .................................................................... HE-104
Table HE-31: Summary of Pipeline Projects ............................................................................. HE-105
Table HE-32: Sites Inventory Affordability Breakdown ............................................................ HE-107
Table HE-33: Sites Inventory Affordability by Neighborhood ................................................. HE-109
Table HE-34: 2023-2031 Goals, Policies and Action Programs ............................................... HE-114
Table HE-35: Quantified Summary of Objectives – First Five Years of the Housing
Element Work Program (2023-2027) .................................................................. HE-140
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 1
Chapter 1
Executive Summary
Introduction
By state mandate each city and county in California is required to plan for the housing needs for
its share of the expected new households in the Bay Region over the next eight years as well as
for the housing needs of all economic segments of the city’s population. This planning will be
done in Burlingame by updating the City’s 2015-2023 Housing Element of the General Plan.
Broad based community participation is essential to preparing an implementable and locally
meaningful housing policy and action program. The programs included in this document
evolved from the participation and experience of local residents and representatives of
agencies which provide housing and other social service assistance to city, county and regional
residents.
Profile of the Community
Research on Burlingame community demographics identifies some themes of change through
the years. While the city’s total population has remained fairly stable over the past 40 years
there has been an increase in ethnic diversity and number of children living at home as well as
growth in the population approaching retirement. The median income in 2020 was $138,344.
The median prices of single-family homes ($2,000,000+) reflected the rising home prices in a
competitive housing market. More than three-quarters of the city’s housing stock is over 50
years old, but most remain well maintained as exemplified by the number of building permits
issued for improvements during the previous planning period.
Housing Constraints
Residential developers looking to build in Burlingame face zoning regulations and fees
comparable to those in other San Mateo cities. Like all cities in the state, but particularly
because of our location on the edge of San Francisco Bay, the regulations of outside agencies
have come to play an increasing role. These regulations tend to increase both processing time
and cost of new residential development. Since, like our San Francisco Peninsula neighbors,
there are few vacant properties, scarcity of land and high construction costs increase the cost of
housing. While energy is a critical parameter to future growth throughout California today,
Burlingame has been aggressive in implementing local conservation and recycling legislation
(electric reach codes, etc.) as well as providing information on energy conservation programs
offered by other agencies.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 2
Community Resources
The city began as a small settlement centered on the Burlingame Train Station (designated a
State Historic Landmark). In a sense, this was an early example of what urban planners now refer
to as “transit villages,” though at the time it was simply a reflection of the transportation and
development patterns of the time. Later the City of Burlingame annexed the Broadway train
station and the settlement adjacent to it. A century later, the Millbrae train station just to the
north of Burlingame was expanded to provide both Caltrain and BART (Bay Area Rapid Transit)
service, as well as SamTrans bus service, creating a robust regionally-oriented transit hub within
proximity to Burlingame’s northern neighborhoods. Over these same decades, El Camino Real
developed with the city’s highest-density residential uses – a pattern distinctly different from
other cities on the Peninsula, where it developed as a commercial corridor.
Because the land area of Burlingame is primarily built-out with few vacant properties, the
majority of new housing opportunities will have to replace existing development. In the
proposed planning program the key sites for residential reuse follow the compact, transit–
oriented pattern of our past, building on the transit access opportunities offered at the northern
end of the city, in Downtown and along El Camino Real. Beyond these areas, additional sites in
“buffer areas” offer opportunities to improve compatibility between low-scale residential and
other land uses. The site selection program evaluated residential densities and affordability,
and these opportunities were influenced by community goals such as situating housing within
proximity to transit and providing sensitive transitions between existing lower-scale residential
neighborhoods and other uses. The General Plan Update was adopted in 2019 confirming that
services are available through collection and processing facilities that are in place to support
these programs.
Community Opportunities
The 2015-2023 Housing Element set the foundation for policies and programs that provide the
best opportunities to meet the city’s fair share of housing needs. Starting with the areas already
identified for housing opportunities in the Downtown, North Burlingame and Rollins Road
Mixed Use areas, additional opportunities were added within these areas and along the El
Camino Real Priority Development Area. The most effective programs from the 2015-2023
Housing Element have been carried forward, as well as new programs which will affirmatively
further fair housing opportunities to a range of households.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 3
Evaluation of the 2015-2023 Housing Element
The update of the Housing Element provides an opportunity to reflect on past achievements
and challenges, identifying what is working and where changes are needed in meeting
Burlingame’s housing needs.
The following summary highlights key accomplishments and challenges from the previous
Housing Element’s planning period (2015 to 2023). This information will help ensure that the
updated element for 2023 to 2031 builds on success, responds to lessons learned, and positions
the City to better achieve the community’s housing priorities. A more detailed program-by-
program review of progress and performance is found in Appendix A.
Achievements
There are several achievements relating to implementation of Burlingame’s Housing Element
over the past eight years:
Overall housing unit objectives were met. Every Housing Element cycle, the state creates a
housing need target called RHNA (Regional Housing Needs Allocation) for each jurisdiction,
and Burlingame worked hard to meet the overall target numbers assigned to it. These
numbers are also assigned to specific income categories. Developers built 995 new units of
“above moderate income” housing between 2015 and 2022, exceeding Burlingame’s
housing need target (RHNA) for this income category by 345 percent (see Table HE-4). This
is because the rents and sales prices developers can obtain for these units make the
projects economically viable, and there has been plenty of demand. Although the market
was the primary force behind the construction of housing for higher income categories, it
was able to do so because the framework that Burlingame put in place made it possible.
Special Needs Groups. California Government Code Section 65588 requires that local
governments review the effectiveness of the housing element goals, policies, and related
actions to meet the community’s special housing needs. As shown in Appendix A, Review of
RHNA Programs, the City worked diligently to continuously promote housing for special-
needs groups in a variety of ways. Some of the accomplishments are highlighted below:
− In 2021, the City’s Density Bonus Ordinance was updated. As part of the update, the
City requires in-lieu fees if affordable units are not provided to incentivize affordable
housing development that is typically occupied by special needs groups including
persons with disabilities, seniors, and extremely low-income households. The City
processed thirteen projects that included a density bonus during the 5th cycle planning
period.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 4
− The City revised the accessory dwelling unit (ADU) regulations in 2020 to comply with
State requirements. To facilitate ADU production, as an affordable housing option for
lower income residents, the City staff has created a user friendly ADU handout to help
residents understand the regulations to further streamline the ADU standards. The City
issued 75 ADUs building permits in 2021.
− As part of an effort to incentivize higher density development, the City updated its
zoning code in the North Burlingame Mixed Use and North Rollins Road Mixed Use
areas that offer density bonuses and greater height allowance for projects
incorporating affordable units.
− To provide seniors with access to nearby services, the City coordinated with the
Peninsula Health Care District on planning for the Peninsula Wellness Community
Master Plan which will include a variety of senior housing options, including hospice
care, assisted and independent living facilities
− The City has lowered parking requirements to remove potential constraints on smaller
units that tend to be affordable and has updated the zoning to reduce parking
requirements within the Downtown Specific Plan area.
− To ensure access to housing information, the City promotes the County’s first-time
home buyer program on the City’s Housing Resources webpage and in the City’s
newsletter. Additionally, City staff provides information on the County’s home-sharing
program offered through HIP Housing in breakrooms for employees.
− The City Council annually evaluates Community Group Funding at the first Council
meeting in June. The list of recipients includes HIP Housing, Inn Vision Shelter Network
and Samaritan House, CALL Primrose Center and HIP Housing. In addition, the Council
budget includes funding sufficient for membership of HEART and a County Homeless
Outreach Team contribution. The City reduces building permit fees for non-profit
rehabilitation programs such as Christmas in April and Rebuilding Together. The City
reduced or waived fees for two city-initiated affordable projects, The Village at
Burlingame (currently under construction) and Eucalyptus Grove Apartments, approved
and issued building permits in 2023. In total the City waived fees for 201 affordable
units.
Progress is being made on meeting affordable housing goals. Through a combination of
policy changes, planning, investment and use of city land, Burlingame is making progress
toward meeting the city’s affordable housing goals. Key projects included:
- The Village at Burlingame. This 100% affordable housing development has been built
on a city-owned parking lot in conjunction with a new public parking garage. It will
provide 132 new housing units for lower income seniors and the city’s workforce. The
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 5
City Council played an important role in making this affordable housing happen instead
of what was originally proposed as a market-rate development.
- State Density Bonus. Market-rate housing developments have utilized the State Density
Bonus provisions to provide below-market units affordable to a greater range of
households. Units are being provided for Moderate, Low, and Very Low Income
households.
New policies and programs were implemented that will help fund and create more
affordable housing into the future. Burlingame faced a legal challenge to the city’s
inclusionary ordinance and replaced it with an impact fee-based program. Developers can
choose to pay fees, but also have the option to provide housing units on site in lieu of
paying these fees. Burlingame also adopted commercial linkage fees, resulting in the
collection of more than $3.8M in housing funds in the first four years of the program. The
majority of housing developments so far have opted to provide units on site, with
approximately 350 units of affordable housing now built or in the pipeline. New policies and
programs introduced in the previous planning period to better address the needs of all
special needs populations will continue and be bolstered with new programs.
Groundwork has been laid for future housing and envisioned transit-oriented
development. There were significant upzonings completed in Burlingame’s General Plan in
order to achieve the city’s housing goals. One way this was accomplished was through
rezoning areas for residential uses, such as in the case of the North Rollins Road Mixed-Use
(RRMU) zoning district, a light industrial area in the north end of the city near the Millbrae
Intermodal Station. This has already had great success, with three projects already approved
to build a combined total of 983 units. Another area where the city changed the zoning to
create more housing opportunities is the North Burlingame Mixed-Use (NBMU) zoning
district, also close to the intermodal station, where the allowed density was increased from
40 to 140 units per acre. Four new projects totaling more than 400 units were approved in
this area within the first two years of the upzoning. And lastly, the Plan reintroduced housing
along the California Drive corridor, a transit-oriented location, as well as along Broadway’s
commercial zone.
More “missing middle” housing is being built. “Middle housing” is different forms of
house-scale multi-unit buildings located in walkable neighborhoods, such as duplexes,
triplexes, townhomes, and garden apartments. Burlingame has seen a great deal of interest
in this important kind of housing, particularly in the shape of townhomes for sale or rent.
The City Council has expressed particular interest in supporting more of these housing
types, and approved changes to the General Plan and Zoning Ordinance to help make it
happen, with residential zoning along the California Drive corridor, and duplex zoning in the
R-1 single family neighborhoods.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 6
ADUs have increased. Accessory dwelling units, or ADUs (often referred to as second units
or in-law units), have become increasingly popular after the city adopted a series of new
ADU ordinances in response to changes in State law. Interested homeowners can now more
easily add ADUs to their property, and many are, helping to create new rental housing in
existing neighborhoods. Burlingame has intentionally lowered permit fees and increased
outreach and education, and the result has been very successful. While in the past
Burlingame rarely saw more than 10 ADU permits a year, last year the city approved 70 ADU
permits, and is on track to continue doing so this year. These units are being constructed
not only on lots with existing homes, but are also included in new construction. Please refer
to the discussion of ADUs on pages 52-53 and 101-102.
Persistent Challenges
While there were many achievements, there is a lot the city still needs to work on. Some of the
challenges that kept Burlingame from achieving all of its’ housing goals include:
Burlingame doesn’t have enough sites that are readily available for housing
development. Developers approach Burlingame because they want to build here, and the
city is faced with informing them that there is a lack vacant sites for them to build on.
Housing projects rely on developable sites, and Burlingame’s shortage is such that new
housing developments are typically built on lots that already have other uses, which raises
the cost of building. In such cases, it also often happens that existing owners of possible
sites are not ready or do not want to sell.
Burlingame doesn’t always agree on the future of housing in the community. Some
members of the community fear the impact that height and density could have on their
neighborhoods, particularly in neighborhoods zoned for single-family homes. However,
projects have been approved with overall community support, and the City Council and
Planning Commission have recognized the need to address the jobs-housing imbalance that
has been growing in our region. For this reason, they have worked hard to support the
implementation of the General Plan, and projects that help meet the city’s housing goals.
Burlingame schools need to keep up with the growing community. The community is
changing, and in past years student enrollment has outpaced increases to our schools’
capacity. Accommodating students from new housing developments may present
challenges to maintaining existing school enrollment boundaries if some schools become
more heavily impacted than others. Burlingame is struggling to find new sites to build more
classrooms, as well as to secure funding to do so. Burlingame will need to work together to
ensure that these issues get solved.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 7
Prices remain unaffordable. Both rental and for-sale housing prices remain unaffordable for
many households, but particularly for low- and moderate-income households. While
Burlingame is on track to the meet its total RHNA allocation of homes, the city has struggled
to meet the need for low and moderate-income homes.
Opportunities Ahead
There are some things already in motion based on existing work efforts and trends, and lessons
learned that Burlingame is incorporating in the updated housing element:
Expanding efforts to preserve existing affordable housing. There is concern that older
“naturally affordable” housing won’t stay affordable unless there is an incentive to do so.
There is interest in potentially using funds accrued through development impact fees to
support retention of older existing units that are more affordable than newly constructed
units.
Choosing how to invest the funding from commercial linkage fees and residential
impact fees. Because these programs are relatively new, Burlingame is only now beginning
to have conversations on how the fees collected from developments should be reinvested in
housing in the community.
Finding creative solutions to site limitations. Burlingame’s experience with the Village at
Burlingame showed that the city can build affordable housing by putting existing surplus
city land to better use. These sites are spread throughout the community, typically in good
locations near transportation and services, and are a promising resource for affordable
housing development. Burlingame plans to replicate the experience.
Seeking to Affirmatively Further Fair Housing (AFFH). This element of the Fair Housing
Act requires the city to take meaningful actions to overcome patterns of segregation and
foster inclusive communities. The first step is to identify all protected class groups that
should be considered under AFFH, and then to create programs that will promote
integration and equality in the community.
Making sure affordable housing is really affordable. Many new units currently being built
are within the “moderate” income category (which is defined as being anywhere from 80 to
120 percent of San Mateo County’s Average Median Income, or AMI). However, because
the AMI in San Mateo County is high, the city is finding that this income threshold is
resulting in rents that are too high for many households and are not serving the needs of the
community. Burlingame wants to work to build more affordable housing that serves the
needs of the workforce and community.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 8
Housing Goals, Policies and Action Program
The Housing Element’s goals and policies describe the City’s land use and development
parameters for residential land uses. The action program for each policy describes the specific
means and targets for each program to implement the City’s housing policies between 2023
and 2031. The Housing Element is unique because a quantified eight-year program is required.
Each action program also has a specific time frame. These requirements form the basis of the
annual progress report provided to the City Council. A more detailed program-by-program
review of progress and performance is found in Chapter 6 - Housing Goals, Policies, and Action
Programs.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 9
Chapter 2
Introduction
Role and Organization of Housing Element
Each city and county in California is required to plan for the housing needs of all economic
segments of its population. California Government Code Section 65400 sets forth requirements
for a Housing Element, one of the seven mandatory elements of a local general plan.
Communities in the nine Bay Area counties are required to update their Housing Elements by
January 31, 2023.
The law sets guidelines for the preparation and adoption of a Housing Element. Local
governments are required to “make a diligent effort” to involve all economic segments of their
population in development of the Housing Element. The future local housing needs numbers
for Burlingame which are to be addressed in the housing element were developed by the
twenty-one cities within San Mateo County, as well as the County itself, with the help of the
Association of Bay Area Governments (ABAG). The twenty-one cities, organized as the 21
Elements Technical Advisory Committee, determined a methodology for housing unit allocation
specific to their region. Local governments are also directed by the government code to
address housing needs by lowering barriers and encouraging the construction of housing for all
economic segments of the population; however local governments are not required by State
mandate to build housing directly or commit the City’s operating funds to the effort of building
housing.
Burlingame’s Housing Element identifies strategies and programs that focus on:
Providing adequate housing sites;
Assisting in the provision of affordable housing;
Retaining existing affordable housing;
Removing governmental and other constraints to housing investment; and
Affirmatively furthering fair housing opportunities
The City’s Housing Element consists of the following major components:
An analysis of the city’s demographic, household and housing characteristics and related
housing needs.
A review of potential market, governmental, and infrastructure constraints to meeting
Burlingame’s identified housing needs.
An evaluation of residential sites, financial and administrative resources available to
address the City’s housing goals.
The Housing Element Work Program for addressing Burlingame’s housing needs,
including housing goals, policies and programs.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 10
The Burlingame Housing Element is a statement of community housing goals and policies. It
outlines the strategies that will be pursued to implement the community’s housing objectives
during the planning period (2023-2031). The action program identifies the strategies to be
pursued in providing adequate sites for future housing; in assisting in developing affordable
housing, in removing government constraints which might affect housing production and cost;
and in promoting housing opportunities within the community. The goals, policies and action
program for the 2023-2031 Burlingame Housing Element is included in this report as its own
section.
Sources of Information
Burlingame’s current Housing Element was prepared in 2014 for the 2015-2023 timeframe, and
was certified by the California Department of Housing and Community Development (HCD) the
same year. The present document is an update of the 2015-2023 Housing Element, but with
heightened emphasis on affirmatively furthering fair housing. In preparing the Housing Element,
various sources of information are consulted. Demographic, economic, and housing data,
prepared by 21 Elements, became the basis for analysis. It was supplemented by additional
data from the U.S. Census and American Community Survey.
This updated element uses population data and housing and employment data from the 2010
and 2020 Census; the 2015-2020 American Community Survey; income limits from the
Department of Finance; projections from the Association of Bay Area Governments Projections
forecasts for the San Francisco Bay Area as part of their adopted Plan Bay Area 2050 project;
ABAG’s Certified Final 2031 Regional Housing Needs Allocation (RHNA); and current local
perspectives and opportunities related to housing collected from local sources as referenced in
the text. A list of all the data sources used in preparation of Burlingame’s 2023-2031 Housing
Element is included at the end of the document.
Civic Engagement
Civic engagement for the Housing Element began long before the official commencement of
the RHNA 6 process. Realizing the importance of housing to the future of the city, and seeing a
need for community engagement and conversations, the City (with the support of the County of
San Mateo) initiated the “Burlingame Talks Together About Housing” initiative 2017. This was
part of the County’s “Home for All” initiative, which was created to understand how community
perspectives about housing affect decisions made by local governments.
The goal was to gather a broad cross section of people who live and work in Burlingame to talk
about current challenges related to housing and to share ideas. For outreach, staff prepared a
comprehensive list of community stakeholders (referred to as a “community landscape”
including community-based organizations, faith-based organizations, arts groups,
environmental groups, businesses, schools and educational groups, and community health and
wellness entities.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 11
Realizing it was also necessary to “meet people where they are” staff also conducted a series of
“intercept” interviews in a range of locations around town. This included the various business
districts, train and bus stops, the library, popular lunch locations to reach members of the
workforce, and English as a Second Language (ESL) classes.
The main events of the “Burlingame Talks Together About Housing” initiative was a pair of
workshops in early 2018. To make it easy to participate in workshops, attendees were provided
with breakfast, as well as childcare and translation. A mix of short presentations and small group
discussions allowed people of all backgrounds be able to contribute their thoughts and
perspectives. Nearly 100 people from a diverse range of backgrounds attended each of the two
workshops. Summaries of the workshops are provided in Appendix B.
The “Burlingame Talks Together About Housing” initiative occurred in the midst of the General
Plan Update, and was a significant factor in the General Plan providing a range of new land uses
districts to accommodate housing. The initiative also provided a robust contact list that has
been used in the Housing Element Update itself.
As the Housing Element Update was initiated in 2021, staff participated in a series of
countywide workshops hosted by 21 Elements known as “Let’s Talk Housing.” These meetings
built upon lessons learned in the Home for All initiative, with a focus on inclusive outreach and
discussions. Staff invited all of the organizations from the Burlingame Talks Together community
landscape as well as prior workshop participants. Summaries of the “Let’s Talk Housing”
webinars are included in Appendix B.
Following the countrywide outreach, The City created a series of local outreach and
engagement activities in early 2022. Once again drawing on the invitation list from the prior
housing initiatives, the City hosted two virtual community workshops, two in-person pop-ups
(one during the Downtown Burlingame Farmer’s Market, and one on Broadway during
weekends), along with Planning Commission and City Council meetings open to the public.
Outreach activities were publicly advertised in the City’s eNewsletter, Facebook and Nextdoor
pages, the Simplicity app, and distributed to separate interest lists. Attendees comprised
Burlingame residents, employers, local organizations and affordable housing providers. The
workshops and activities allowed residents to learn more about the Housing Element process
and comment on housing issues, and the webinar format of the workshops allowed attendees
to ask questions and make comments during the meeting itself, including use of the chat
function. Summaries of the local outreach is included in Appendix B.
Finally, Planning Commission and City Council meetings were held to review the Public Review
Draft and receive comments from the public prior to initial submittal to the Department of
Housing and Community Development (HCD). This provided opportunities for additional public
input in a more formal format.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 12
A comprehensive summary of public participation including how public input was considered
and incorporated into the Housing Element is included in Appendix B.
Consistency with Other General Plan Elements
The Burlingame General Plan provides the long-range policy direction for future land use and
development within the city. The General Plan is made up of nine elements, one of which is the
Housing Element. It is essential that the goals and policies of all of the General Plan elements
should be internally and mutually consistent. If the Housing Element as adopted makes other
elements of the general plan inconsistent, those elements should be adjusted.
While the Housing Element is the primary document regarding housing, the other elements
establish goals, policies, objectives and actions that have a relation to or directly affect housing:
The Community Character (Land Use) Element establishes categories of net residential
density which are confirmed on the plan diagram: low density up to 8 dwelling units per
acre; medium density 8.1 to 20; medium high density 20.5 to 50; and high density 50.1 to
80 dwelling units per acre.
The Mobility (Transportation) Element includes goals, policies, and programs that
integrate transportation to land use.
The Infrastructure Element addresses water and sewer priority requirements to support
housing production.
The Community Safety Element addresses public safety, emergency preparedness,
disaster response, seismic and geologic hazards, airport hazards, sea level rise, and
flood hazards and management.
The Healthy People and Healthy Places (Conservation and Open Space) Element
addresses public health, climate adaptation, parks and open space, and water
resources. In 2023 the element will be amended to expand coverage of disadvantaged
communities and environmental justice.
The Climate Action Plan (CAP) presents the City's blueprint for responding to the
challenge of climate change, including an emission inventory, reduction targets to lower
annual greenhouse gas emissions, and strategies to reach zero waste, procure 100%
renewable electricity, support green building and electric vehicles, and significantly cut
exhaust emissions.
Specific Plans for the Downtown area and North Rollins Road area have been adopted
or are in the process of being adopted, and a specific plan for the Broadway area is
underway. These Specific Plans are refinements of the General Plan and also specify
residential densities.
Areas of the city identified as having potential for residential development include the North
Burlingame area between El Camino Real and the railroad tracks, and along Trousdale Drive
between Magnolia Avenue and Ogden Drive; in the North Rollins Road area; in the Downtown
and Broadway districts; and along California Drive. Some of these areas were identified for
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 13
future housing development in the 2015-2023 timeframe and continue to be areas of housing
opportunity for the 2023-2031 Housing Element, while other areas are newly designated.
A review of the policies, objectives and actions of the other elements indicates that the
proposed policies and implementing actions of this Housing Element are also consistent with
the intent of these other elements in the General Plan as well as local and regional planning
documents. Furthermore, compliance with the San Mateo County Comprehensive Airport Land
Use Plan, as amended, for San Francisco International Airport: Government Code Section
65302.3 requires that a local agency general plan and/or any affected specific plan must be
consistent with the applicable airport/land use compatibility criteria in the relevant adopted
airport land use plan (CLUP). The housing policies, goals, programs, and any other provisions to
accommodate future housing development, as specified herein, do not conflict with the
relevant airport/land use compatibility criteria contained in the San Mateo County
Comprehensive Airport Land Use Plan, as amended, for San Francisco International Airport.
Preparation of the Housing Element
The Housing Element was prepared by the Burlingame Community Development Department
staff with technical assistance provided by Baird & Driskell, along with outreach assistance
provided by MIG. The Housing Element programs were developed building on the lessons
learned through the implementation of the 2015-2023 Housing Element and by widening the
scope of the successful Housing Element programs.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 15
C hapter 3
Profile of the Community
Housing Needs Assessment
The type and amount of housing needed in a community are largely determined by population
growth and other demographic variables. Factors including age, race/ethnicity, occupation, and
income level combine to influence the type of housing needed and the ability to afford housing.
Demographic Profile
People
Population
Burlingame’s population has been growing, but less than the Bay Area region overall with 7%
growth in the city from 2000 to 2020, compared to 9% for the county and 15% for the Bay Area.
This increase throughout the region is mostly due to natural growth (births minus deaths) and
the strong economy drawing new residents to the region. As of the 2020 Census, there are an
estimated 31,386 people living in Burlingame.
Income
Burlingame has a lower percentage of lower income households than the rest of the county and
region, with 34% of households earning less than 80% of the Area Median Income (AMI)1
compared to 40% of households in San Mateo County and 39% of households in the Bay Area
as a whole.
Age
Community members in Burlingame are overall slightly older than they were in the past. The
median age has increased from 38.4 in 2000 to 39 in 2019. In that year, 24% of the population
was under 18 and 14% was over 65.
Race/Ethnicity
In 2019, 53% of the population was White, 27% was Asian, 13% was Latinx, and 1.2% was African
American (see chart).
1 The Area Median Income is the middle spot between the lowest and highest incomes earned. The AMI for the San
Mateo County in 2021 was $104,700 for a single person, $119,700 for a household of two and $149,600 for a family
of four.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 16
Figure HE-1: Race and Ethnicity
Source: U.S. Census Bureau, American Community Survey 5-Year Data (2015-2019), Table B03002.
Poverty
Currently, people of color in San Mateo County are more likely to experience poverty. The
groups with the highest poverty rates in Burlingame are American Indian/Alaska Native
residents (62.3%) and Native Hawaiian or Other Pacific Islander residents (25.3%). Asian and
Black or African American residents have the lowest poverty rates (3.6% and 2.1% respectively).
Table HE-1: Poverty
Race and Hispanic or Latino Origin Percent of Each Group Below Federal
Poverty Level in Burlingame (2020)
White Alone 4.1%
Black or African American Alone 2.1%
American Indian or Alaskan Native Alone 62.3%
Asian Alone 3.6%
Native Hawaiian and Other Pacific Islander
Alone 25.3%
Some other race alone 3.6%
Two or more races 2.2%
Hispanic or Latino origin (any race) 6.6%
Source: U.S. Census Bureau, American Community Survey 5-Year Data (2015-2019), Table B03002.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 17
Jobs
Employment
Generally, having a similar number of jobs and employed residents produces more benefits for
a community, such as reducing traffic and climate impacts, and allowing people who work in the
community to also live there. Both San Mateo County and Burlingame are job rich, meaning
they have more jobs than employed residents. In Burlingame, there are 16,209 employed
residents and 30,170 jobs, resulting in a jobs-to-resident-workers ratio of 1.86. Between 2002
and 2018, the number of jobs in Burlingame decreased by 22%.
Unemployment
Jurisdictions throughout the region experienced a sharp rise in unemployment in 2020 due to
impacts related to the COVID-19 pandemic, though with a general improvement and recovery
in the later months of 2020. As of January 2021, Burlingame’s unemployment rate was 4.5%,
which was lower than the regional unemployment rate of 6.6% and its pandemic-related high
rate of 9.9% in April 2020. Burlingame’s pre-pandemic unemployment rate was 2.2% (January
2020). (Source: California Employment Development Department, Local Area Unemployment
Statistics (LAUS), Sub-county areas monthly updates, 2010-2021).
Housing and Households
New Homes Built
The number of new homes built in the Bay Area has not kept pace with the demand, resulting in
longer commutes, higher prices, and greater displacement and homelessness. The number of
homes constructed in Burlingame increased 0.8% from 2010 to 2020, which is substantially
below the housing growth rate for San Mateo County and the Bay Area overall during this time
period (4% and 5% respectively).
Home Prices and Rents
Given high job growth and low housing growth in the county, the cost of housing in Burlingame
has increased significantly in the past decade:
– Sales Price – In 2020, the average sales price of a single family home in Burlingame was
approximately $2,734,651. Home prices increased by 174% from 2010 to 2020.
– Rental Prices – Rental prices increased by 74% from 2009 to 2019. The median rent in
2019 was $2,120. To rent a typical apartment without cost burden, a household would
need to make $85,000 per year.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 18
Figure HE-2: Average Home Sales Price between 2010 and 2020
Source: San Mateo Association of REALTORS Annual Reports 2010-2020.
Housing Type
In 2020, 48% of homes in Burlingame were single family detached, 4% were single family
attached, 7% were units in small multifamily buildings (2-4 units), and 41% were in medium or
large multifamily buildings (5+ units). Furthermore, Burlingame’s housing consists of less
detached single family homes than the region as a whole (48% as compared to 52% in the Bay
Area).
Housing for Large Families
Large families are generally served by homes with 3 or more bedrooms, of which there are 5,122
units in Burlingame (42% of the housing). Among these 3+ bedroom units, 13% are renter-
occupied and 87% are owner-occupied.
Unit Mix in New Construction
Based on several new multifamily residential construction projects that are under construction
or recently approved, the most common unit types are 1-bedroom and 2-bedroom units,
comprising of 60% and 28% of new units, respectively. The remainder of new construction units
include studio (9%) and 3-bedroom units (3%).
Cost Burden
The U.S. Department of Housing and Urban Development (HUD) considers housing to be
affordable for a household if the household spends less than 30% of its income on housing
costs. A household is considered “cost-burdened” if it spends more than 30% of its monthly
income on housing costs, while those who spend more than 50% of their income on housing
$500,000
$1,000,000
$1,500,000
$2,000,000
$2,500,000
$3,000,000
Burlingame Average Home Sales Price
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 19
costs are considered “severely cost-burdened.” In Burlingame, 17% of households are cost
burdened, while an additional 17% of households are severely cost burdened. Please see
Chapter 7 Programs A-1, A-2, B-5, D-1, D-2, D-3, D-4, D-5 and E-3 for some examples of
programs intended to address cost burden for all segments of the City’s population.
Neighborhood Equity
Some neighborhoods are identified as “Highest Resource” or “High Resource” by the State of
California based on a range of indicators such as access to quality schools, proximity to jobs and
economic opportunities, low pollution levels, and other factors. However, neighborhoods don’t
always receive an equitable share of these community resources and may be designated as
“Low Resource” if they lack these amenities. All Burlingame residents live in neighborhoods
identified as “Highest Resource” or “High Resource”, meaning there are no “Low Resource”
neighborhoods in Burlingame.
Displacement and Exclusion
Displacement, or the inability of residents to afford to remain in their homes, is a major concern
in the Bay Area due to increasing housing prices. Displacement has the most severe impacts on
low- and moderate-income residents. When individuals or families are forced to leave their
homes and communities, they lose their support network. A related concern is the impact of
gentrification or exclusion—when neighborhoods have limited or no housing opportunities for
low- and moderate-income residents. According to research from The University of California,
Berkeley, no households in Burlingame live in neighborhoods that are susceptible to or
experiencing displacement or in areas at risk of or undergoing gentrification. However,
approximately 32% of households in Burlingame live in neighborhoods where low-income
households are likely excluded due to prohibitive housing costs.
Special Housing Needs
Some population groups may have special housing needs such as mobility and accessibility
barriers. In Burlingame, 6.6% of residents have a disability and may require accessible housing.
Additionally, 6.4% of Burlingame households are larger households with five or more people,
who likely need larger housing units with three bedrooms or more. Also, 7.7% of households are
female-headed families, which are often at greater risk of housing insecurity, or being at risk of
losing their home.
Overcrowding
Some residents may be occupying overcrowded units, defined by the Census Bureau as one
unit occupied by 1.01 persons or more per room (excluding bathrooms and kitchens). Units with
more than 1.5 persons per room are considered severely overcrowded. Table HE-2 on the
following page shows that in Burlingame, 326 residents lived in an overcrowded unit, while 504
live in very overcrowded units. These account for 1% and 1.6% percent of total residents,
respectively.
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Table HE-2: Overcrowding
OVER-02: Overcrowding Severity
Universe: Occupied housing units
OVER-02: Overcrowding Severity
Universe: Occupied housing units
Geography 1.00
occupants
per room
or less
1.01 to
1.50
occupants
per room
1.50
occupants
per room
or more
Geography 1.00
occupants
per room
or less
1.01 to
1.50
occupants
per room
1.50
occupants
per room
or more
Burlingame 11,320 326 504 Burlingame 93% 3% 4%
San Mateo
County
242,599 12,333 8,611 San Mateo
County
92% 5% 3%
Bay Area 2,543,056 115,696 72,682 Bay Area 93% 4% 3%
Notes:
The Census Bureau defines an overcrowded unit as one occupied by 1.01 persons or more per room
(excluding bathrooms and kitchens), and units with more than 1.5 persons per room are considered
severely overcrowded.
Notes on Data:
The data presented here is drawn primarily from US Census American Community Survey (ACS) 5-year
data updated as of 2019 and the U.S. Department of Housing and Urban Development’s
Comprehensive Housing Affordability Strategy (CHAS). The ACS data set includes a broad range of
demographic and economic variables not included in the decennial US Census, allowing for detailed
cross tabulations and analysis of various demographic factors involving income and poverty, among
other key topics related to local housing policy and planning. The recently released 2020 US Census
data, though not as comprehensive as the ACS in terms of the types of variables covered, does provide
updated data for the following key variables: population by sex, age, race and Hispanic origin, as well
as housing data by occupancy, vacancy status, and tenure. This current 2020 decennial Census data is
available from the US Census here: https://data.census.gov/cedsci/
These data are samples and as such, are subject to sampling variability. This means that data is an
estimate, and that other estimates could be possible if another set of respondents had been reached.
We use the five-year release to get a larger data pool to minimize this “margin of error” but particularly
for the smaller cities, the data will be based on fewer responses, and the information should be
interpreted accordingly.
Additionally, there may be instances where there is no data available for a jurisdiction for particular
data point, or where a value is 0 and the automatically generated text cannot perform a calculation. In
these cases, the automatically generated text is “NODATA.” Staff should reword these sentences
before using them in the context of the Housing Element or other documents.
Note on Figures:
Any figure that does not specify geography in the figure name represents data for Burlingame.
Source: U.S. Department of Housing and Urban Development (HUD), Comprehensive Housing Affordability Strategy
(CHAS) ACS tabulation, 2013-2017 release.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 21
Special Needs Populations
Housing is a basic necessity of life for everyone. However, the search for decent affordable
housing is greatly complicated for many individuals because of various barriers, including
disability, advanced age, and life crisis. The City has identified several populations that are in
need of particular housing services and are most likely to be in the Extremely Low-Income
category: seniors, persons with disabilities, large families, single-parent households, college
students, and families and persons in need of emergency shelter. (Given Burlingame’s urban
location, farmworkers are not considered a population with special needs, but a short
description is provided below.)
Senior Households
Seniors, the persons over the age of 65, have four primary concerns:
Income: People over 65 are usually retired and living on a fixed income;
Health Care: Because the elderly have a higher rate of illness and dependency, health
care and supportive housing is important;
Transportation: Some seniors are not able to drive, do not have access to a car, or are
do not live within a convenient distance to transit. For those who can access transit,
some have disabilities that require alternatives to transit;
Housing: Many seniors live alone and rent.
Approximately 4,739 residents 65 years or older live in the City of Burlingame, representing 15.1
percent of the population.
Seniors who live on fixed and limited incomes may encounter difficulties in finding affordable
housing. Nearly one-third of senior households (4% of the total population in the City) in
Burlingame have incomes below the federal poverty level. Generally, persons 75 and older who
are heads of household are homeowners, but there are many who are in the Low, Very-Low and
Extremely-Low Income categories.
The San Mateo County Housing Authority is responsible for the Housing Choice Voucher
(Section 8) program in Burlingame. Priority is given to senior (62 years old or older), disabled, or
handicapped residents that meet the income guideline limits established by the federal
government. Many Burlingame seniors reside in conventional single-family homes. Senior
homeowners who need maintenance assistance can apply to Rebuilding Together Peninsula’s
Safe at Home Minor Repair or National Rebuilding Day Programs, which provides free home
repair and modification to eligible low-income homeowners in Burlingame. Additionally, low-
income, senior homeowners or renters who need free accessibility modifications can apply to
the Center for Independence of Individuals with Disabilities’ Housing Accessibility Modification
Program.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 22
Large Households (5+ members)
Large households, defined by HCD as households containing five or more persons, have special
housing needs due to the limited availability of adequately sized, affordable housing units.
Larger units can be very expensive; as such, large households are often forced to reside in
smaller, less expensive units or double up with other families or extended family to save on
housing costs, both of which may result in unit overcrowding.
6.4% of Burlingame households are larger households with five or more people, who likely need
larger housing units with three bedrooms or more. 42% of the housing units in Burlingame have
three or more bedrooms. Among these 3+ bedroom units, 13% are renter-occupied and 87%
are owner-occupied. Given that the population of large households within Burlingame is less
than the existing housing stock for large units, existing supply may be adequate to support this
group. However, support services may be necessary to address existing overcrowding due to an
inability to afford larger unit sizes.
The San Mateo County Housing Authority implements the Housing Choice Voucher/Section 8
rental assistance on behalf of Burlingame. These vouchers are portable and not tied to a
specific apartment project. Section 8 Project Based Vouchers can also support lower income
larger households in newly built housing. The first development project in Burlingame utilizing
Project Based Vouchers has been approved, with 69 low-income units. Of the 69 units, 20 (29%)
will have three bedrooms.
Persons with Disabilities
A disability is defined as a long-lasting condition that impairs an individual’s mobility, ability to
work, or ability to care for themselves. Persons with disabilities include those with physical,
mental, or emotional disabilities. Disabled persons have special housing needs because of their
fixed income, shortage of affordable and accessible housing, and higher health costs associated
with their disability.
The 2020 American Community Survey (ACS) estimates reported that 2,003 persons in
Burlingame had one or more disabilities, accounting for roughly 6.7 percent of the population
(compared to 10.7% for California). Table HE-4 shows the age and types of disabilities. It is
important to note that a person may have multiple disabilities.
The living arrangements for persons with disabilities depend on the severity of the disability.
Many persons live at home in an independent environment with the help of others, including
family members. To maintain independent living, disabled persons may require assistance. This
can include special housing design features for the physically disabled, income support for
those who are unable to work, and in-home supportive services for persons with medical
conditions. Accessible housing can also be provided via senior housing developments.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 23
Accommodating a sufficient quantity and quality of housing for people with disabilities of any
kind is a significant challenge in these times due to the lack of funding and complexity of
housing and service needs involved. Burlingame supports the provision of housing for persons
with disabilities and has provisions in the Zoning Code to enable group housing through the
residential care facility process. The City also prioritizes supportive housing, a mix of unit sizes,
locations near public transit, and housing for extremely low-income households to support the
needs of persons with disabilities:
Integration of housing for persons with disabilities in typical affordable housing helps
affirmatively further fair housing for a group that has historically experienced no
alternative to segregated living.
Coordination of housing with onsite supportive services, including housing navigation
and housing retention services, provide a supported pathway for people with
developmental disabilities to apply for and retain an affordable apartment and are as
beneficial to a person with a developmental disability as a physically modified unit is to a
person with a mobility impairment.
A mix of unit sizes at inclusive housing properties help address the needs of those who
require live-in aides, want to live with roommates, or have children.
Location near public transit helps accommodate the transit-dependency of most adults
with developmental disabilities.
Deeply affordable housing, targeting extremely low-income households, supports
housing choices for persons with developmental disabilities.
The City has in place a reasonable accommodation procedure that complies with Section 504 of
the Fair Housing Amendments Act and other applicable local, state, and federal laws to ensure
equal opportunity and access for people with disabilities. The procedure accommodates
physical improvements or adjustments necessary to allow people with disabilities the same
opportunity to housing as non-disabled people. Reasonable accommodations may be
requested by a homeowner, tenant, landlord on behalf of a tenant, or non-profit organization
providing other services to the person with disabilities. The initial request for reasonable
accommodation may be submitted to the City’s Community Development Department (please
see the Accessible Accommodations section below for a description of the application process
and approval findings). The City of Burlingame attempts to grant every reasonable
accommodation requested; however, certain requests may impose an undue hardship and
cannot be accommodated. If the reasonable accommodation would pose an undue hardship,
the City considers whether there are alternative accommodations that would not pose such a
hardship.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 24
The City also refers individuals in need of making accommodations for disabilities and mobility
issues to the Center for The Independence of Individuals with Disabilities. The Center has a
Housing Accessibility Modification Program that offers installation of grab bars, railings, wheel
chair ramps, hand-held showers, shower benches, toilet safety frames, and bed rails.
Persons with Developmentally Disabilities
Persons with developmental disabilities are a separate population identified by the State of
California, with differing housing needs from others with disabilities. The Lanterman
Developmental Disabilities Act ensures that “patterns and conditions of everyday life which are
as close as possible to the norms and patterns of the mainstream of society” are available to
these individuals. Furthermore, the Olmstead v. L.C and E.W. United States Supreme Court
case required an “Integration Mandate” that “States are required to place persons with mental
disabilities in community settings rather than institutions…when determined to be
appropriate.” Despite these laws, people with developmental disabilities may finding it difficult
to find affordable, accessible, and appropriate housing that is inclusive in the local community.
A developmental disability is defined by the State as “a lifelong disability caused by a mental
and/or physical impairment manifested prior to the age of 18 and are expected to be lifelong.”
The conditions included under this definition include intellectual disability, epilepsy, autism
and/or cerebral palsy, and “Other Conditions needing services similar to a person with
intellectual disability, but shall not include other handicapping conditions that are solely
physical in nature.”2
According to the 2020 American Community Survey 5-year estimates, there are 625 persons
with developmental disabilities living in Burlingame. According to the Department of Social
Services – Community Care Licensing Division (April 2022), there are 2 adult day care facilities in
Burlingame, with a total capacity of 10 persons, capable of serving persons with developmental
disabilities. Two adult residential facilities and one group home have the ability to
accommodate persons with developmental disabilities and can serve up to 24 individuals at
maximum capacity.
The housing needs of persons with developmental disabilities can vary from person to person.
Many live with parents or guardians. Some can live independently or in community care
facilities. Because developmental disabilities exist before adulthood, the first issue in supportive
housing for the developmentally disabled is the transition from the person’s living situation as a
child to an adult.
Local service providers include Housing Choices, which focuses on housing opportunities for
people with developmental disabilities, and Golden Gate Regional Center, which provides
services and supports to individuals with developmental disabilities. The City also provides
2 Source: California Welfare and Institutions Code, Division 4.5, Services for the Developmentally Disabled [4500-
4885], Chapter 1.6 General Provisions [4507- 4519.10], Section 4512
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 25
funding to AbilityPath, which provides support services for children, adults, and seniors with
developmental disabilities and their families.
Accessible Accommodations
Both the Federal Fair Housing Act and the California Fair Employment and Housing Act impose
an affirmative duty on local governments to make reasonable accommodations (i.e.
modifications or exceptions) in their zoning and other land use regulations when such
accommodations may be necessary to afford disabled persons an equal opportunity to use and
enjoy a dwelling. Typical improvements which may be considered for reasonable
accommodation provisions include ramps, walls, handrails, elevator or lifts, or other similar
physical improvements necessary to accommodate a person’s disability. For example, it may be
a reasonable accommodation to allow covered ramps in the setbacks of properties that have
already been developed in order to accommodate residents with mobility impairments.
The Burlingame zoning ordinance has been amended to provide a process to request
reasonable accommodations for these types of physical improvements to a residence. The
application process includes submitting an application to the Planning Division, which includes
an application form, findings checklist, written medical certification, plans showing the
improvements, and a filing fee of $626. The application is reviewed ministerially by the
Community Development Director (without discretionary review or a public hearing). A request
for reasonable accommodation is granted within 30 days of submittal if all approval findings are
met. Applicable approval findings include:
1. The housing that is subject to the request for reasonable accommodation will be used
for an individual with a disability under the Acts.
2. The request for reasonable accommodation is necessary to make specific housing
available to an individual with a disability under the Acts.
3. The requested reasonable accommodation does not impose an undue financial or
administrative burden on the community and does not require a fundamental alteration
to the City’s zoning requirements, development standards, policies, or procedures.
4. The requested reasonable accommodation would not adversely impact surrounding
properties or uses.
5. There are no reasonable alternatives that would provide an equivalent level of benefit
without requiring a modification or exception to the City’s applicable rules, standards,
and practices.
The City does not currently have a definition of Family in the zoning code. However, the City
has included program x to define family as “One or more persons living together in a dwelling
unit, with common access to, and common use of all living, kitchen, and eating areas within the
dwelling unit”.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 26
Table HE-3: Age and Type of Disability
Number Percent
Burlingame County State Burlingame County State
Under 18 with Disability 142 3,919 306,806 1.75% 1.9% 2.65%
Age 18-64 with
Disability 717 23,680 1,944,580 3.9% 4.65% 7.45%
Age 65 + with Disability 1,144 34,818 1,895,565 27.9% 30.4% 36.4%
Any Age with Any
Disability 2,003 62,417 4,146,961 6.7% 8.2% 10.7%
Any Age With Hearing
Disability 785 19,065 1,147,500 2.6% 2.5% 3.0%
With Vision Disability 427 10,500 778,145 1.4% 1.4% 2.0%
With Cognitive
Disability 625 22,911 1,585,969 2.2% 3.2% 4.4%
With Ambulatory
Disability 701 30,648 2,118,765 2.5% 4.3% 5.5%
With Self Care
Disability 366 14,141 964,579 1.3% 2.0% 2.6%
With Independent
Living Disability 601 26,339 1,654,210 2.6% 4.4% 5.5%
Source: 2020 ACS 5-Year Estimates
The living arrangements for persons with disabilities depend on the severity of the disability.
Many persons live at home in an independent environment with the help of others, including
family members. To maintain independent living, disabled persons may require assistance. This
can include special housing design features for the physically disabled, income support for
those who are unable to work, and in-home supportive services for persons with medical
conditions. Accessible housing can also be provided via senior housing developments.
Persons Experiencing Homelessness
The number of persons and families experiencing homelessness has been increasing nationally
and in the Bay Area. The demographics of persons experiencing homelessness also have been
changing, from predominately single persons often with substance abuse or mental illness to an
increasing number of families unable to afford high rents.
According to the 2022 San Mateo County One-Day Homeless Count, there were 1,808 people
experiencing homelessness in San Mateo County counted in 2022. Approximately 39.6 percent
of these individuals were found in shelters; 60.4 percent were unsheltered. In the city of
Burlingame, 10 persons were counted during this survey; all of whom were unsheltered.
Although these numbers represent small fractions of the total population (less than one percent
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 27
at both the city and county level), the shelter and care needs of persons experiencing
homelessness are great.
According to the Burlingame Police Department Homeless Outreach Team (HOT) members,
unhoused individuals tend to cluster in a few locations throughout the city including:
Burlingame Avenue Caltrain Station
Burlingame Plaza Shopping Center
Mills Peninsula Medical Center
Star Vista First Chance shelter/sobering center located at 826 Mahler Road
Gas Station 1390 Old Bayshore Highway
Various bus stops along El Camino Real
All of these locations have proximity to transportation. Samtrans Route ECR serves Burlingame
Plaza and the Mills Peninsula Medical Center. These locations are also within proximity to the
multimodal transit station in Millbrae. Samtrans Route 292 serves the First Chance shelter and
the gas station on Old Bayshore Highway.
The unhoused at Burlingame Plaza tend to come there after having been discharged from the
nearby Mills Peninsula Medical Center. They are typically brought there from elsewhere in San
Mateo County or from the airport, and then remain in the area after having been discharged.
These individuals tend to be transient and usually move along after a short stay.
The unhoused at First Chance also tend to be brought there from other jurisdictions within San
Mato Couty, and after being discharged they migrate to the nearby gas station on Old
Bayshore Highway station due to its 24-hour operation and access to restrooms and food.
The longer-term “non-transitory” unhoused individuals will often locate downtown, where they
receive assistance from the public and merchants.
The characteristics of the unhoused usually revolve around mental health and self-medication
issues. The HOT team offer services to any unhoused individual whenever they are contacted.
The city is part of the countywide San Mateo Continuum of Care that provides assistance to
homeless persons at every level of need and assists in the move from homelessness to
permanent housing. The Continuum of Care begins with assessment of the needs of the
homeless individual or family. The person/family may then be referred to permanent housing or
to transitional housing where supportive services are provided to prepare them for independent
living. The goal of a comprehensive homeless service system is to ensure that homeless
individuals and families move from homelessness to self-sufficiency, permanent housing, and
independent living. The San Mateo Continuum of Care services and facilities available for the
homeless in Burlingame are coordinated by the San Mateo County Human Services Agency.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 28
The zoning ordinance provides the opportunity for shelters for persons experiencing
homelessness in the R-3, R-4, BMU, CMU, RRMU, NBMU, I-I zoning districts. “Shelters for
Persons Experiencing Homelessness” in Chapter 5 provides additional information on the
provisions for shelters. The First Chance shelter is located in the I-I zoning district.
In Burlingame, the City Council has a long-standing commitment to support unhoused and
housing insecure residents to provide services and emergency housing, while addressing
concerns about public health, environmental impacts, and public safety. The City provides
financial support to the following organizations with either provide services for persons
experiencing homelessness, and/or homelessness prevention services:
• LifeMoves, which provides interim housing and supportive services.
• Samaritan House, which is a core social service agency assisting the communities of
central San Mateo County.
• CALL Primrose Center, which is a food pantry providing free grocery assistance to low-
income families and individuals.
• HIP (Human Investment Project) Housing, which provides programs for home-sharing,
self-suffiency, and development of low-income housing.
Farmworkers
Farmworkers are traditionally defined as persons whose primary incomes are earned through
seasonal agricultural work. Farmworkers have special housing needs because they earn lower
incomes than many other workers and move throughout the season from one harvest to the
next. However, there are no farms in or near Burlingame, and the 2020 American Community
Survey 5-year Estimates reported 0 Burlingame residents working in Agriculture and Natural
Resources Jobs. This low percentage, combined with the lack of farms or farm labor housing in
or near Burlingame, indicates that the number of actual farm workers in Burlingame is very small
and, therefore, the City has no specialized housing programs targeted to this group beyond
overall programs for housing affordability.
Extremely-Low Income and Very-Low Income Households and Housing Provided
The CHAS (Consolidated Housing Affordability Strategy) 2014-2018 database reported 1,255
extremely-low income (ELI) households, representing 10.1 percent of the total occupied
households (12,418) in Burlingame. In addition, 1,140 households were defined as very-low
income, representing another 9.2 percent of total households. For the purposes of meeting the
RHNA, half of the very-low income units are assumed to be needed by ELI households. This is
consistent with the proportion determined by the CHAS data and HCD provisions.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 29
Table HE-4 below contains 2015-2019 data of overpayment by tenure for lower-income
households.
Table HE-4: Overpayment by Tenure
Income by Cost Burden:
Renter Households Cost burden > 30% Cost burden > 50% Total
Household Income <= 30% HAMFI 880 805 950
Household Income >30% to <=50%
HAMFI
730 315 810
Household Income >50% to <=80%
HAMFI
545 50 1,165
Household Income >80% to <=100%
HAMFI
135 0 785
Household Income >100% HAMFI 45 0 2,595
Total 2,335 1,170 6,305
Income by Cost Burden:
Owner Households Cost burden > 30% Cost burden > 50% Total
Household Income <= 30% HAMFI 415 280 590
Household Income >30% to <=50%
HAMFI
155 120 330
Household Income >50% to <=80%
HAMFI
350 140 840
Household Income >80% to <=100%
HAMFI
240 110 545
Household Income >100% HAMFI 425 30 3,540
Total 1,585 680 5,845
Notes:
1. The four severe housing problems are: incomplete kitchen facilities; incomplete plumbing
facilities; more than 1 person per room; and cost burden greater than 50%.
2. Cost burden is the ratio of housing costs to household income. For renters- housing cost is
gross rent (contract rent plus utilities)
Source: 21 Elements, 2022
As shown in Table HE-4, the four severe housing problems for lower income households are
incomplete kitchen facilities; incomplete plumbing facilities, overcrowding (more than one
occupant per room); and cost burden greater than 50%.
As shown in Table HE-4, nearly 85% of Extremely Low Income renter households (defined as
equal or less than 30% HUD Area Median Family Income (HAMFI)) and nearly 39% of Very Low
Income renter households (between 30% and 50% HAMFI) spend more than 50% of their gross
income on housing costs. Of owner households, more than 40% of Extremely Low Income
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 30
households and more than 36% of Very Low Income owner households spend more than 50% of
their gross income on housing costs.
Overcrowding is defined as having more than one occupant per room. According to the ABAG
Housing Needs Data Workbook, 3.1% of Extremely Low Income households have between one
and 1.5 occupants per room, and 4.1% have more than 1.5 occupants per room. For Very Low
Income households, 11.5% of households have between one and 1.5 occupants per room, and
7.2% have more than 1.5 occupants per room.
Data on housing condition are very limited, and data for housing condition specific to income
category especially limited. The most consistent data is from the American Community Survey
(ACS) which captures units in substandard condition as self-reported in Census surveys. In
Burlingame, renter households are more likely to have substandard kitchen and plumbing
facilities compared to owner households. According to the ACS, 2.4% of renters have reported
lacking kitchen facilities while 1.3% have reported lacking plumbing. For owners, less than one
percent are lacking either kitchen or plumbing facilities. These statistics are for all households
rather than specific income categories, however.
There are a number of programs in the Housing Element intended to address these issues. This
includes programs to encourage development of Accessory Dwelling Units, develop housing for
lower income households on city properties, review tenant protections, increase affordability for
senior households, improve livability of housing units for disabled individuals, add affordable
housing for larger households, provide affordable smaller units for smaller households, and
assist non-profit housing corporations in acquiring and rehabilitating existing naturally occurring
affordable apartment units (please see Chapter 7 Programs A-1, A-2, B-5, D-1, D-2, D-3, D-4, D-
5 and E-3).
Housing Stock Characteristics
This section identifies the characteristics of Burlingame’s physical housing stock. This includes
an analysis of housing growth trends, housing conditions, housing prices and rents, and housing
affordability.
Number of Housing Units
In past decades, the total number of housing units has remained fairly stable. However the pace
of housing construction has increased in recent years. Between 2015 and 2021, there was an
average of 174 new units added per year (see Table HE-5 on next page). Housing growth has
primarily been attributable to infill on redeveloped commercial sites resulting from additional
zoning capacity identified in Downtown and in the North Burlingame and North Rollins Road
areas.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 31
Table HE-5: Number of Housing Permits Issued between 2015 and 2021 by Affordability
Source: City of Burlingame, Annual Element Progress Report for Housing Element Implementation 2015-2021
2015 2016 2017 2018 2019 2020 2021 Affordability
Total
Very Low 0 0 0 0 0 82 0 82
Low 0 0 0 0 0 35 38 73
Moderate 0 0 0 29 0 28 15 72
Above
Moderate 5 133 13 271 10 142 421 995
Annual Total 5 133 13 300 10 287 474 1,222
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 32
Increase in Housing Stock
Burlingame has had an incremental increase in new housing units over the past several Housing
Element cycles:
Between 1994 and 1998, 152 net new housing units were built in the city.
Between 1999 and 2007, 111 net new housing units were added to the city's housing
stock.
From 2008 to 2012, 70 net new units were added. This period coincided with an economic
downturn.
From 2013 to 2021, 1,232 net new housing units were built in the city.
Housing Type and Tenure
Table HE-6 below presents the mix of housing types in Burlingame. Of the city’s more than
13,000 housing units in 2020, 48 percent were single-family homes and 48 percent were
multifamily units. The remaining 3-4 percent of units (approximately), are made up of
“attached” single-family units such as townhomes. Burlingame has no mobile home units.
Renter Vs Owner Occupied
Housing tenure refers to whether a housing unit is owned, rented or is vacant. Tenure is an
important indicator of the housing climate of a community, reflecting the relative cost of
housing opportunities, and the ability of residents to afford housing. Tenure also influences
residential mobility, with owner units generally exhibiting lower turnover rates than rental
housing. According to the 2009-2011 American Community Survey, 49 percent of Burlingame’s
households were homeowners.
The 2015-2020 American Community Survey indicates that of Burlingame's occupied units, 51.3
percent were owner occupied and 48.7 percent were renter occupied. The number of owner-
occupied units has increased from 49 percent in 2010.
Table HE-6: Households by Tenure
Tenure Percent
2011
Owners 49%
Renters 51%
2020
Owners 51.3%
Renters 48.8%
Source: 2015-2020 American Community Survey
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 33
Vacancy Rate
A vacancy rate measures the overall housing availability in a community and is often a good
indicator of how efficiently for-sale and rental housing units are meeting the current demand for
housing. A vacancy rate of five percent for rental housing and two percent for ownership
housing is generally considered healthy and suggests that there is a balance between the
demand and supply of housing. A lower vacancy rate may indicate that households are having
difficulty finding housing that is affordable, leading to overcrowding or households having to
pay more than they can afford.
The 2020 Census reports a homeowner vacancy rate of 0.0 and a rental vacancy rate of 4.9. The
vacancy rate decreased for owners since 2010, when the homeowner rate was 1.3 and the rental
rate was 4.5.
Housing Age and Condition
The age of a community’s housing stock can provide an indicator of overall housing conditions.
Typically housing over 30 years in age is likely to have rehabilitation needs that may include new
plumbing, roof repairs, foundation work and other repairs.
Based on building permit activity, with many new homes replacing older homes, second floor
additions and remodels, the overall condition of the housing stock in Burlingame has been
improving. Between 2013 and 2021, the City issued 150 building permits for new single family
dwelling units, most of which were replacement of single family dwellings on the same lot.
Single family homes and properties continued to age, and therefore were upgraded or
rehabilitated; approximately 3,350 building permits were issued for residential alterations.
Of the 13,170 units reported in the 2020 Census, approximately 81 percent were built prior to
1980. Typically, structures over 30 years old may be in need of major repairs, however,
discussions with the City’s Code Enforcement Officer revealed that only three units have been
cited for property upkeep or identified as unfit for human habitation in the past seven years.
These units were each in different neighborhoods (one was located Downtown, one in the
Burlingame Park neighborhood, and one on El Camino Real). Code enforcement has referred
property owners and area residents to San Mateo County Mosquito and Vector Control for
assistance with rodents, mosquitos and racoons, and two residents were assisted by Adult
Protective Services.
Property owners in need of minor repairs needed to improve home health and safety as well as
energy and water conservation are referred to the Rebuilding Together Peninsula Safe at Home
Program. This program covers door repairs, electrical maintenance, plumbing repairs, seismic
anchoring, and window repairs.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 34
Assisted Housing at Risk of Conversion
The State Housing Element law and HUD Consolidated Plan regulations require cities to
prepare an inventory including all assisted multifamily rental units which are eligible to convert
to non-low-income housing uses due to termination of subsidy contract, mortgage prepayment,
or expiring use restrictions. State Housing Element law requires this inventory to cover a ten-
year evaluation period following the statutory due date of the Housing Element (January 31,
2023); whereas the HUD regulation requires the inventory to cover only the five-year planning
period of the Consolidated Plan.
According to a study conducted by the California Housing Partnership Corporation published in
2014, the City of Burlingame has no HUD subsidized properties (with HUD 236 and 221 (d)(3)
mortgages and/or Section 8). None have been added since that time. This means that there are
no subsidized units at risk of conversion to market rate.
Multifamily residential developments in Burlingame are required to pay a residential impact fee,
or provide below-market units in lieu of paying the impact fee. The earliest below-market
program adopted in Burlingame specified either a 10- or 15-year term, after which the units
convert to market-rate. During the 2023-2031 Housing Element cycle, six moderate-income
rental units and five moderate-income ownership units will convert to market rate as a result of
their affordability restrictions expiring, as shown in Table HE-7 on the following page. For all of
the units:
All units were approved as inclusionary units as a condition of approval, and none have
received direct government assistance.
All units are nonelderly units.
All units have been required to be affordable to households with income up to 120% of
San Mateo County Area Median Income (AMI).
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 35
Table HE-7: Housing at Risk of Conversion
Address
Number of
Units at
Risk of
Conversion
Unit Sizes Income
Levels
Date of
Expiration
904 Baywater Ave Unit #6 1 2 bed/2 bath rental 120% AMI 2024
1321 El Camino Real #3 1 2 bed/2 bath rental 120% AMI 2025
1225 Floribunda Ave #5 1 2 bed/2 bath rental 120% AMI 2025
1800 Trousdale Dr #203,
#207, #303
1 1 bed/1 bath rental 120% AMI 2025
2 2 bed/2 bath rental 120% AMI 2025
1838 Ogden Drive #207,
#208, #307, #308, #408
3 1 bed/1 bath ownership 120% AMI 2027
2 2 bed/2 bath ownership 120% AMI 2027
Total Units 11
Source: Burlingame Community Development Department, 2022
Below-market units in all newly approved residential projects are required to be affordable for
at least 55 years. The 11 units expiring in the 2023-2031 Housing Element cycle are the last from
the early program that only required affordability to be maintained for 10 or 15 years.
Program H(A-9) has been added to address the replacement of the units expiring in the 2023-
2031 cycle. The program requires providing priority to residents of expiring below-market units
to relocate to units comparable in size and rents, and/or to evaluate subsidizing an extension of
the term of affordability for expiring units. There are currently 29 Moderate Income units under
construction, which would allow all households currently residing in expiring units to relocate to
a comparable unit in a new development. The timing of the construction will allow new units to
be available prior to any of the existing units expiring.
The cost of a new replacement unit has been determined to be approximately $800,000 for new
construction, or $675,000 to acquire an existing naturally occurring affordable unit. Subsidizing
an extension of the affordability term of an existing unit would depend on the level of
affordability and duration of the term, but is assumed to be approximately $6000 per year for a
Moderate Income unit, and up to $25,000 per year for an Extremely Low Income unit. Funding
could be provided through City’s commercial linkage and residential impact fees, or from other
sources such as federal grants or tax-increment financing.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 36
Regional Housing Needs
State law requires that a housing element quantify existing and projected housing needs for
persons of all income levels within each community, including the community’s share of the
regional housing need by income level. The Association of Bay Area Governments (ABAG) is
responsible for preparing estimates of local and regional housing need based on factors
prescribed by State Law (Section 65884 or Article 10.6). The factors included in the division of
the regional housing need into individual community assignment are: market demand for
housing, availability of suitable sites and public-facilities, commuting patterns, housing type and
tenure, and housing needs of farm workers. In addition, ABAG looks at regional and local
vacancy rates and at housing values and rents as indicators of market demand. Household
projections are based on employment opportunities, availability of sites and commuting
patterns. Type of housing is based on census data and regional projections.
Existing Housing Needs
The projected housing need obligation for the 2023 to 2031 planning period is 3,257 units. Of
these units, the city will need to accommodate 1,360 low to extremely low income housing
units.
Eight-Year Projected Housing Need
State law requires that each community consider the housing needs of people of all income
levels. In addition, State law requires that the regional housing needs should be balanced
throughout the region so that communities will not be impacted with relatively high proportions
of lower income housing. In considering existing need, we also should give attention to the
number of existing units needed to replace substandard structures or substandard living
conditions generally marked by overcrowding and overpayment.
ABAG has the responsibility of projecting the housing needs for the 2023-2031 period based on
the factors identified in State law. The eight-year housing need numbers include market rate
housing as well as units for those with lower incomes. The projected need number is the number
of dwelling units needed to provide for the total expected household growth and Burlingame’s
share of the projected regional housing need. The projected need number for the planning
period (2023-2031) for Burlingame is 3,257 dwelling units.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 37
Following are the projected housing need numbers for 2023 through 2031 for the City of
Burlingame by income category:
Table HE-8: Projected Housing Need by Income Category
Income Category Definition No. of Units
Very Low Household income up to 31-50% of AMI 863
Low Household income up to 51-80% of AMI 497
Median Income Area Median Income (AMI)
Moderate Household income up to 81-120% of AMI 529
Above Moderate Household income above 120% of AMI 1,368
Total Current need 3,257
Average Yearly Need 814
Source: ABAG Regional Housing Needs Allocation for Burlingame
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 39
C hapter 4
Affirmatively Furthering Fair Housing
Assembly Bill (AB 686), introduced by the State of California in 2018, requires that all public
agencies in the state affirmatively further fair housing (AFFH) beginning January 1, 2019. Public
agencies receiving funding from the U.S. Department of Housing and Urban Development
(HUD) must demonstrate their commitment to AFFH. The federal obligation stems from the fair
housing component of the federal Civil Rights Act mandating federal fund recipients to take
“meaningful actions” to address segregation and related barriers to fair housing choice.
Affirmatively Furthering Fair Housing
“Affirmatively furthering fair housing” means taking meaningful actions, in
addition to combating discrimination, that overcomes patterns of segregation
and fosters inclusive communities free from barriers that restrict access to
opportunity based on protected characteristics. Specifically, affirmatively
furthering fair housing means taking meaningful actions that, taken together,
address significant disparities in housing needs and in access to opportunity,
replacing segregated living patterns with truly integrated and balanced living
patterns, transforming racially and ethnically concentrated areas of poverty into
areas of opportunity, and fostering and maintaining compliance with civil rights
and fair housing laws. The duty to affirmatively further fair housing extends to
all of a public agency’s activities and programs relating to housing and
community development. (Gov. Code, § 8899.50, subd. (a)(1).)”
Source: California Department of Housing and Community Development Guidance, 2021
This section summarizes the AFFH research and analysis prepared for Burlingame and the rest
of San Mateo County by Root Policy Research (Appendix C).
History of Segregation in Burlingame and San Mateo County
This history of segregation in the region is important not only to understand how residential
settlement patterns came about—but, more importantly, to explain differences in housing
opportunities among residents today. In sum, not all residents had the ability to build housing
wealth or achieve economic opportunity. This historically unequal playing field in part
determines why residents have different housing needs today.
In the early 1900s, the areas of modern-day Burlingame and Hillsborough were the playground
of wealthy families in San Francisco, largely driven by the Burlingame Country Club. When the
earthquake hit San Francisco in 1906, refugees flooded the area, primarily taking up residences
in two largely small-lot subdivisions east of the El Camino Real.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 40
Pre-civil rights San Mateo County faced resistance to racial integration. Local discriminatory
practices were exacerbated by the actions of the Federal Housing Administration which
excluded low-income neighborhoods, where the majority of people of color lived, from its
mortgage loan program. Enforcement of racial covenants after World War II forced the
migration of the county’s African Americans into neighborhoods where they were allowed to
occupy housing—housing segregated into less desirable areas, next to highways, and
concentrated in public housing and urban renewal developments.
The timeline of major federal Acts and court decisions related to fair housing choice and zoning
and land use is provided in Figure HE-3 below. As shown in the timeline, exclusive zoning
practices were common in the early 1900s. The Federal Fair Housing Act was not enacted until
nearly 60 years after the first racial zoning ordinances appeared in U.S. cities. This coincided
with a shift away from federal control over low-income housing toward locally-tailored
approaches (block grants) and market-oriented choice (Section 8 subsidies)—the latter of which
is only effective when adequate affordable rental units are available.
Figure HE-3: Major Public and Legal Actions that Influence Fair Access to Housing
Source: Root Policy Research
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 41
Burlingame’s Fair Housing Assessment
Racial/Ethnic Disparities
City of Burlingame's population is less diverse with a greater portion of non-Hispanic White
residents and higher income households, compared to San Mateo County. However, the City of
Burlingame has experienced significant shifts in racial and ethnic makeup since 2000. The Asian
share of the population in the city nearly doubled, and the population that identifies as some
other race or multiple races increased by 5%.
Racial and ethnic minority populations are disproportionately impacted by living conditions
compared to the non-Hispanic White population, such as poverty, low household incomes,
overcrowding, and homelessness. Additionally, racial and ethnic minorities are more likely to be
denied a home mortgage loan. These disparities are most prevalent in the Hispanic population
(Figure II-4 and Figure II-5 in Appendix C).
Racial and ethnic minority students in the city experience lower educational outcomes
compared to other students (served by the San Mateo Union High School District and the
Burlingame Elementary School District). Pacific Islander, Hispanic, and Black students in the San
Mateo Union High School district were less likely to meet the admission standards for a
University of California (UC) or California State University (CSU) school. Dropout rates among
Hispanic (7%), Black (6%), and Pacific Islander students are higher in San Mateo Union High
School District (Disparate Access to Educational Opportunities in Appendix C).
Household Characteristics
There are disparities in housing cost burden in the City of Burlingame by race and ethnicity
(Figure IV-11 in Appendix C). One in three (34%) of all renter households in the city are cost
burdened—spending more than 30% of their gross income on housing costs—and 16% are
extremely cost burdened—spending more than 50% of their gross income on housing costs.
Please see Chapter 7 Programs A-1, A-2, B-5, D-1, D-2, D-3, D-4, D-5 and E-3 for some
examples of programs intended to address cost burden for all segments of the City’s
population.
Household sizes in the City of Burlingame are generally smaller than in San Mateo County, with
62% of households 2-person or smaller compared to 54% in the county (Figure II-16 in Appendix
C). The city also has a greater share of single-person households and fewer single-parent
households compared to the county (Figure II-17 and Figure II-18 in Appendix C).
Familial status can indicate specific housing needs and preferences. A larger number of
nonfamily or single-person households indicates a higher share of seniors living alone, young
adults living alone or with roommates, and unmarried partners. Higher shares of nonfamily
households indicate an increased need for one and two-bedroom units.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 42
The city has a greater share of households earning more than 100% of AMI compared to the
county. All census tracts in the city have median household incomes greater than the 2020 State
Median income of $87,100 (Figure II-26 and Figure II-27 in Appendix C). However, there are a
small number of census block groups in the city with a concentration of low to moderate-
income households, primarily along Rollins Road alongside Highway 101 (Figure II-28 in
Appendix C).
Challenges to Residents with Disability
Unemployment is disproportionately high among residents living with a disability (7%),
compared to 4% for residents without a disability in the City of Burlingame—particularly when
compared to the county (Figure III-20). The city has a share of 7% of the population living with at
least one disability, and no census tracts with greater than 10% of the population with a
disability (Figure II-14 in Appendix C). Lower proportions of residents living with a disability may
indicate a lack of services, suitable housing options, or transportation for this population.
Finally, the aging population is putting a strain on paratransit access countywide.
Geographic Inequality
The northeast area of the city has greater shares of both renters using housing vouchers (Figure
I-7 in Appendix C) and low or moderate-income households (Figure II-27 in Appendix C),
specifically along Rollins Road alongside Highway 101 and within the Oak Grove Manor and
Burlingame Terrace neighborhoods. This area is also at greater risk for flooding (Figure IV-31 in
Appendix C).
Resident Needs through Local Survey
A survey administered to capture residents’ needs and support the AFFH found the following
housing challenges:
14% of residents said their house or apartment is too small for their family;
13% of renters said they worry that if they request a repair they will experience a rent
increase or get evicted;
14% of respondents indicated they had been discriminated against when looking for
housing in San Mateo County.
The methodology for this survey is discussed in Appendix C.
Contributing Factors and Fair Housing Action Plan
Burlingame is characterized by high-resourced neighborhoods, where residents have good
access to employment opportunities and strong educational outcomes. This is true even for the
neighborhoods where low-income households are concentrated.
The fair housing issues—and the factors contributing to those issues—identified by the research
conducted for this AFFH are summarized in Table HE-9 on the next page.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 43
Table HE-9: Summary of Fair Housing Issues and Action Plan
Fair Housing
Issue
Contributing Factors Policy or Program
Recommendations
(see relevant section
for more information)
Timeline
Persons with
disabilities and
families are most
likely to file
complaints of
housing
discrimination
and retaliation.
− Housing discrimination against
residents with disabilities and
family households.
(High priority to address)
− Lack of understanding of
reasonable accommodation
requirements by landlords and
property owners.
(High priority to address)
− H(B-1): Implement
an outreach
program for
persons with
disabilities
− H(D-1): Allows for
alternative curbside
designations for
seniors that require
alternative mobility
options
− H(D-2): Improve
livability of housing
units for the
disabled
population.
- (B-1) Develop
outreach
materials within
two years of
Housing
Element
adoption.
Annual
outreach
thereafter.
- (D-1) Ongoing
- (D-2) Ongoing
Burlingame has
proportionately
lower shares of
low and
moderate-income
households,
residents living
with a disability,
residents who
speak English less
than very well,
and racial and
ethnic minorities
than the county
and the Bay area
overall.
- There is a lack of affordable
housing opportunities
throughout the city.
[High priority to address]
- Residents with a disability, who
speak English less than very
well, and racial and ethnic
minorities have lower median
household incomes.
[Medium priority - the city has
limited power to influence
income gaps but can provide
more affordable housing
opportunities]
- Historical and current
discriminatory practices in
lending and homeownership
against people of color in the
community.
− [Medium priority - the city has
limited power to improve
credit access but can provide
more affordable housing
opportunities]
− H(C-2): Provide
incentives for
developers to
include additional
affordable units in
new residential
projects.
− H(B-5): Commit to
reviewing and
strengthening
tenant protections
with elected
officials.
− (C-2) Within
one year after
adoption of the
Housing
Element.
− (B-5) During at
least one public
hearing within 2
years of
Housing
Element
adoption.
Source: Burlingame Community Development Department, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 44
AFFH and the Sites Inventory
The Section “Identification of Sites for Affordable Housing” in Chapter 6 provides a detailed
analysis of the suitability of sites in the Sites Inventory for affordable housing. All sites in the
Sites Inventory are located in either “High Resource” or “Highest Resource” neighborhoods, as
indicated on the 2023 Tax Credit Allocation Committee (TCAC) Opportunity Area Map.3 These
neighborhoods offer residents good access to employment opportunities and strong
educational outcomes. Sites for affordable housing are not isolated, and are not located in
areas with concentrated poverty or disparities in access to opportunity per the AFFH analysis.
All affordable housing in Burlingame has been built in neighborhoods alongside market-rate
developments, and in most instances are built within market-rate developments. The two 100%
affordable housing developments in Burlingame have been or are being built directly adjacent
to market-rate developments.
3 https://belonging.berkeley.edu/2023-ctcac-hcd-opportunity-map
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 45
Chapter 5
Housing Constraints
One of the roles of the Housing Element is to identify possible constraints to the creation of
affordable housing. Constraints can be government policies, financial burdens, market trends,
environmental factors, and more. This section will discuss potential constraints, both
governmental and non-governmental to the production of housing.
Governmental Constraints
Land Use Regulations
General Plan
The General Plan establishes land uses and land use densities for the city of Burlingame.
Residential densities are as follows:
Low Density Residential (up to 8 dwelling units per acre);
Medium Density Residential (8.1 to 20 units per acre);
Medium High Density Residential (20.5 to 50 units per acre);
High Density (50.1 to 80.0 units per acre)
California Mixed Use (up to 20 units per acre)
Broadway Mixed Use (up to 50 units per acre)
Live/Work (up to 70 units per acre)
North Burlingame Mixed Use (20.1 to 140 units per acre)
Specific Planning Areas
North Rollins Road Specific Plan
The North Rollins Road Specific Plan specifies areas in the northern portion of the Rollins Road
corridor for multiple family residential uses with a maximum density of 70 units per acre. Mixed
uses projects with a residential component are also allowed. The plan corresponds to the
Live/Work land use designation in the General Plan, and the RRMU (Rollins Road Mixed Use)
zoning district. The adopted zoning for includes parking reductions given that the planning area
is within proximity to the Millbrae Multimodal Transit Station.
Downtown Specific Plan
The Burlingame Downtown Specific Plan was adopted in 2010, and the implementing zoning for
the plan was adopted in 2011. Downtown Burlingame is divided into a series of Planning Areas,
and each planning area or district provides for a different mix of uses and intensities. Multifamily
residential uses are permitted in eight of the twelve areas, both on the ground floors and upper
floors of buildings. The zoning districts within the Downtown Specific Plan area where
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 46
multifamily residential uses are permitted are HMU (Howard Mixed Use), CAR (California Auto
Row), MMU (Myrtle Mixed Use), BMU (Bayswater Mixed Use) as well as the R-3 and R-4 zoned
properties within the Downtown Area. The adopted zoning for the downtown area includes
parking reductions for sites within the downtown area based on the fact that they are within
walking distance to the transit centers. There are no density limits within the mixed use districts
of the Downtown Specific Plan. The R-3 and R-4 areas of downtown conform to the density
limits of the respective districts.
Zoning Ordinance
The City of Burlingame’s Zoning Ordinance, which was comprehensively updated in 2021, sets
forth requirements that can affect the type, appearance and cost of housing built in Burlingame.
The zoning ordinance sets the standards for lot size, use, lot coverage, floor area ratio, setbacks,
height, open space and parking. In Burlingame, there are four residential zoning districts and
ten mixed use districts that allow residential uses. All of the mixed use zoning districts are close
to the city’s major transportation nodes and corridors, encouraging residential development in
these locations. Projects under the current zoning are feasible, as evidenced by two recently
approved large multifamily residential projects in the NBMU and RRMU mixed use zoning
districts. The projects at 1766 El Camino Real and 1855-1881 Rollins Road provide 311 units and
420 units, respectively, and required no requests for exceptions (waivers and concessions to
some development standards were granted under the City’s density bonus ordinance).
The minimum residential lot size in Burlingame is 5,000 square feet. There are some areas in the
city, mostly hillside areas, where the minimum lot size is 7,000 and 10,000 square feet. There are
also some nonconforming 3,000 and 4,000 square foot parcels in the city’s older subdivisions.
These standards have not posed a constraint to the production of housing. In addition, all R-1
zoned properties are eligible to be split for multifamily development under the Two-Unit
Residential Overlay (R-1-2), with a minimum lot size requirement of 1,200 square feet, which
provides an opportunity for a greater number of housing units to be built.
The lot coverage allowed for single-family development is 40%, and 50% coverage is allowed
for multifamily development. Lot coverage on corner lots in R3 and R-4 zoning districts is 60%.
Side setback requirements are based upon lot width, range from 4 to 7 feet, and are required
for all residential developments. The minimum front and rear setback requirement is 15 feet.
Private and shared open space are required only for multifamily developments. These
requirements are on a per unit basis, with 175 square feet of open space required per unit in
either private or shared open spaces. Floor area ratio pertains only to single-family projects and
depends on the lot size, location and placement of the house. These standards are typical in
many Bay Area cities and in Burlingame have not historically been considered overly restrictive
to the production of housing, evidenced by the fact that there have been no requests for
variances to these standards.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 47
The lot coverage allowed for mixed-use development ranges from 60% in the RRMU district to
80% in the NMBU district. There are no lot coverage restrictions in the Downtown Specific Plan
districts, except for 75% in the BMU district. Private and shared open space on a per unit basis,
with 100 square feet of private open space required per unit in either private or common open
spaces. The lot coverage allowed for mixed-unit developments in the NMBU district,
Downtown Specific Plan districts, and BMU district are significantly higher and therefore remove
potential constraints on the production of housing by allowing more of the site for construction
of residential units.
The density limits in the Zoning Ordinance correspond to the respective land use districts in the
General Plan. Densities range from 8 units per acre in the R-1 zoning district to 140 units per
acre in the NBMU zoning district. In multifamily development maximum densities can be
exceeded through the utilization of State Density Bonus provisions.
In practice, the number of parking spaces that can be accommodated on a site is the ultimate
determination of the maximum number of units on a multifamily zoned lot. The parking
requirement in Burlingame is based upon the number of bedrooms, per unit. One space is
required for each studio unit, one and one-half spaces are required for each one-bedroom unit;
and two parking spaces required for two bedroom or larger units. One guest parking space is
required for every four units for projects greater than 10 units. Within the Downtown Burlingame
area, Broadway Mixed Use, Rollins Road Mixed Use, and North Burlingame Mixed Use areas,
and the R-4 district, the parking requirement for multifamily districts is reduced based on the
proximity to the Caltrain and BART stations and regional bus routes. In these areas one space is
required for each studio or one bedroom unit; one and one-half spaces for each two bedroom
unit; and two spaces for units with three bedrooms or more. Guest parking is not required for
projects within these areas. The parking requirement for micro-units is 0.75 spaces per unit in all
districts. Historically, multifamily residential projects have been able to provide the required
parking without requesting a variance and therefore Burlingame’s parking requirement has not
been a constraint to housing production. Reductions in parking standards may also be granted
as an incentive or concession under the City’s density bonus ordinance.
The City requires that each single-unit dwelling shall provide off-street parking spaces for at
least two vehicles, one of which must be covered by a garage or carport.
The height limit for residential structures in the R-1 and R-2 zoning districts is two and one-half
stories or 30 feet, and can be increased to 36 feet to accommodate design features of certain
architectural styles. The R-3 zoning district has a height limit of 55 feet and the R-4 zoning
district is 75 feet in height. In the Downtown Specific Plan area, heights up to 55 feet are
allowed by right in the HMU and R-4 Incentive areas; within the MMU and BMU zoned areas,
heights up to 35 feet are allowed by right and up to 45 feet (MMU) or 55 feet (BMU) are allowed
with a Special Permit. At the north end of the city heights up to 80 feet area allowed in the
RRMU district, and 100 feet in the NBMU district. However in the most northern portions of the
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 48
city near the airport height limits are also imposed by the FAA and SFO Airport. The maximum
height in the portions of this area affected by the flight paths is limited based on the Height
Restrictions specified in the San Mateo County Comprehensive Airport Land Use Plan.
Burlingame provides zoning and development information in a clear format to the public.
Government Code Section 65940.1 (a)(1) requires jurisdictions to post all zoning, development
standards, and fees on their website. Burlingame’s up-to-date zoning and development
standards can be accessed on the City’s website at www.burlingame.org/zoning. See Fees and
Exactions for information regarding fees.
Comprehensive Airport Land Use Compatibility Plan
The City/County Association of Governments of San Mateo County (C/CAG) is in the process of
reviewing the Burlingame 2023-2031 Housing Element is consistent with the policies established
in the Comprehensive Airport Land Use Compatibility Plan. Policies that govern the safety of
critical airways from obstructions beneath the calculated ascent and descent profiles are found
under section 4.5.4 (Airspace Protection Policies) in the Plan. Proposed projects in Burlingame
must be compliant with policies as established in the Plan, including: 1) notification and filing
requirements (4.5.4, AP-1); 2) design recommendations from findings in FAA aeronautical
studies (4.5.4, AP-2); 3) height restriction and filing requirements (4.5.4, AP-3); and 4) C/CAG
review and project consistency with FAA regulations for land uses that may cause flight hazards
(4.5.4, AP-4).
Federal Aviation Administration
All future housing development within the North Rollins Road Mixed-Use Zoning District or
North Burlingame Mixed-Use Zoning District will require formal FAA review, per the FAA Form
7460-1 review process. The project sponsor is responsible for this requirement, at or before the
time of project submittal to the City. The City considers the FAA's evaluation and
recommendation(s), as part of its review of the proposed project.
In areas where there are airport height restrictions, the FAA requires that an applicant obtain a
“Determination of No Hazard to Air Navigation.” In the North Burlingame area, the airport
height restrictions generally extend higher than the height limits in the NBMU and RRMU zone
districts. However, since it is a sloped surface, there is the potential for the project to be
affected. The applicant submits the proposed project plans to the FAA, the FAA staff reviews
the height proposed by the project and compares it to the obstruction standards of the FAA
regulations. This process is an administrative process, and generally takes about 30 days for a
determination. Of the projects reviewed by the FAA within the NBMU and RRMU areas, none
have exceeded the FAA’s obstruction standards.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 49
Special Permits and Tiered Development Standards
Special permits are established for the purpose of allowing structures and development
approaches to a development that are not permitted as a matter of right, but which may be
considered compatible and appropriate if such uses or features are designed or arranged on a
site or in a structure in a particular manner and in accordance with conditions imposed by the
Planning Commission. In its review of a special permit application, the Commission may impose
such requirements and conditions with respect to location, construction, architectural features,
architectural consistency within the structure, site planning, and time limits for the special
permit as it deems necessary for the protection of adjacent properties, the streetscape, the
neighborhood, and the public interest. Such deviations may apply to, but not be limited to,
building height, variety of roofline on a structure, daylight plane angle, façade articulation, and
exterior finish materials.
The R-3, R-4, NMBU, and RRMU zoning districts utilize a “tiered” development structure, where
the Planning Commission may grant increased density and height in return for provision of
specific community benefits that would not otherwise be created. Increased density and height
are structured in tiers, where each tier allows greater development in exchange for additional
community benefits. Community benefits may include increased open space, community
facilities, enhanced streetscapes, public art, net zero energy or water use, historic preservation,
or unique site-specific benefits agreed upon by the developer and Planning Commission. The
R-3 and R-4 districts have two tiers of development standards, and the NBMU and RRMU
districts have three tiers. For Tier 2 and 3 projects, the Planning Commission makes findings that
the project proposes public benefits in excess of the City’s normal requirements that improve
the quality of life of employees, residents, and/or visitors, or assists the City in implementing an
important plan or policy.
Accessory Dwelling Units (ADUs)
The zoning code has been amended to allow ADUs and junior accessory dwelling units (JADUs)
in compliance with California Government Code Sections 65852.2 and 65852.22 and the
Housing Element. ADUs may be converted from existing structures or built new. There is no
minimum lot size, and there is no on-site owner requirement. New units may be up to 850
square feet, or 1,000 square feet for units with two or more bedrooms. The first 850 square feet
is exempt from R-1 Floor Area Ratio (FAR) limitations. One off-street parking space is required
except for the following circumstances:
When a garage, carport, or covered parking structure is demolished in conjunction with
construction of an ADU;
When a garage, carport, or covered parking structure is converted into an ADU;
ADU is located within ½ mile walking distance of public transit (bus stop or train station,
where the public may access buses, trains, subways, and other forms of transportation that
charge set fares, run on fixed routes, and are available to the public);
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 50
ADU is located within an architecturally and historically significant historic district;
When on-street parking permits are required but not offered to the occupant of the ADU;
and/or
When there is an established car share vehicle stop located within one block of the ADU.
ADUs are reviewed ministerially. Prior to applying for a building permit, approval of an ADU
Permit is required from the Planning Division. This allows Planning Division staff to check the
design of the proposed ADU to ensure compliance with zoning regulations prior to the
applicant developing detailed building permit construction documents.
Residential Design Review
Design review is required for second story additions, new construction and first floor additions
which involve substantial construction in the residential zoning districts. Design review is
administered by the Planning Commission and is required for both single family and multifamily
projects.
Review of multifamily projects is subject to the Housing Accountability Act (HAA), codified in
State of California Government Code Section 65589.5, which limits the ability of municipalities
to deny a multifamily residential project that complies with applicable, objective general plan,
zoning, and subdivision standards and criteria, including design review standards, in effect at
the time that the application is determined to be complete. "Objective standards" are those
that can be independently measured, such as height, density, and lot coverage.
Concurrent Processing
When a project requires more than one type of application (such as Design Review and a
Special Permit), the applications are processed concurrently, which reduces the overall timeline
for processing.
Factory-Built and Manufactured Homes
Factory built housing or manufactured homes are considered similar in use as a single-family
use. The Zoning Code defines a single-unit dwelling as “A dwelling unit designed for
occupancy by one household which is not attached to or located on a lot with commercial uses
or other dwelling units, other than an accessory dwelling unit. This definition also includes
individual manufactured housing units installed on a foundation system pursuant to Health and
Safety Code Section 18551.” These homes are permitted by right in all residential zoning
districts pursuant to Government Code Section 65852.3. As a new structure, it would require
Design Review consistent with any proposed new single-family home. Approval of a factory built
or manufactured home would not require additional regulatory requirements over and above
similar uses in the same zoning district.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 51
Housing for Employees
The Employee Housing Act requires that any employee housing accommodations for six or fewer
employees shall be considered a single-family structure within a residential land use and may not
require a conditional use permit, variance, or other zoning clearance that is not required of a
family dwelling of the same type in the same zone (Health & Safety Code Sections 17021.5). The
Zoning Code defines “Household” as “One or more persons living together in a single dwelling
unit, with common access to, and common use of, all living and eating areas and all areas and
facilities of the preparation and storage of food; who share living expenses, including rent or
mortgage payments, food costs and utilities; and who maintain a single mortgage, lease, or rental
agreement for all members of the household.” Therefore, six or fewer persons occupying a
single-family structure is considered a residential use, which is allowed by right and is not subject
to any additional regulations or permitting.
Furthermore, Health and Safety Code Section 17021.6 requires employee housing consisting of
no more than 12 units or 36 beds to be permitted in the same manner as other agricultural uses
in the same zone. As previously noted, there are no farms in or near Burlingame, and the 2020
American Community Survey 5-year Estimates reported 0 Burlingame residents working in
Agriculture and Natural Resources Jobs. This low percentage, combined with the lack of farms or
farm labor housing in or near Burlingame, indicates that the number of actual farm workers in
Burlingame is very small. While the Zoning Code permits urban agricultural uses in all zoning
districts as a primary or accessory use (Urban Agriculture defined as “Cultivation on the premises
of fruits, vegetables, plants, flowers, herbs, and/or ornamental plants intended to produce food,
fibers, or other plant products for personal use or for on- or off-site sale.”), Burlingame does not
have land zoned exclusively for agriculture. Given the lack of vacant lant in Burlingame and land
zoned exclusively for agriculture, it does not anticipate any farming facilities to operate in
Burlingame. Therefore, Burlingame does not need special housing for agricultural workers.
However, the City is committed to increasing the supply of affordable housing for extremely low,
very low, and low-income households as noted in Chapter 6.
Shelters for Persons Experiencing Homelessness
The zoning ordinance provides the opportunity for shelters for persons experiencing
homelessness in the R-3, R-4, BMU, CMU, RRMU, NBMU, I-I zoning districts with approval of a
conditional use permit. These districts allow temporary homeless shelters in conjunction with a
church or nonprofit institution on those properties located along a transportation corridor. Most
of the properties along El Camino Real are zoned R-3, and many of the community's churches
are located along this corridor. Conditional use permits have been granted at several local
churches along the El Camino Real corridor for the Interfaith Hospital Network program which
provides shelter at the churches to homeless families on a rotating basis.
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In 2021, the City Council adopted updated zoning regulations, consistent with Government
Code Section 65583(a)(4)(a), which allow homeless shelters by right (without discretionary
review) in the North Rollins Road Mixed Use (RRMU) and Innovation Industrial (I-I) areas. The
purpose of the RRMU district is to allow for an eclectic mix of residential, live/work, commercial,
and light industrial development, and the I-I district is immediately adjacent to the south.
Therefore, these districts are suitable for residential uses. Homeless shelters and multifamily
residential uses are allowed as permitted uses by right in the RRMU district, consistent with
Government Code section 65583, subdivision (a)(4)(A), (AB 2339). A building permit would be
required for improvements to an existing building or for construction of a new building. In
addition to being near transit, these areas are appropriate for this type of facility because they
are located near support services. The Star Vista First Chance shelter is located in the I-I district
and was allowed by right.
Emergency shelters are required to comply with all property development standards in the
RRMU and I-I districts, except as modified by the following performance standards:
1. Smoking Areas. Shelters shall have designated smoking areas that are not visible from
the street and that comply with all other laws and regulations.
2. Outdoor Areas. There shall be no space for outdoor congregating in front of the
building and no outdoor public telephones.
3. Refuse Area. There shall be a refuse area screened from view.
4. Maximum Number of Persons/Beds. The emergency shelter shall contain no more than
24 beds.
5. Exterior and Interior On-site Waiting and Client Intake Areas. Shelters shall provide a
minimum of 100 square feet of interior waiting and client intake space. In addition, there
shall be two office areas provided for shelter staff. Waiting and intake areas may be used
for other purposes as needed during operations of the shelter.
6. On-Site Management. On-site management and on-site security shall be provided
during hours when the emergency shelter is in operation. The shelter shall be operated
by a responsible agency or organization with experience in managing or providing social
services.
7. Distance to Similar Facilities. The shelter shall not be located within one-half mile from
any other emergency shelter.
8. Length of Stay. No individual resident shall be permitted to reside in the shelter for
more than 60 consecutive days and a total of 120 days within a calendar year. Extensions
up to a total stay of 180 days in a calendar year may be provided if no alternative
housing is available.
9. Management Plan. A management plan shall be required to address how the immediate
sheltering needs of individuals who may be turned away from the shelter will be
handled.
10. Parking. Parking shall be provided as set forth in Chapter 25.40 (Parking Regulations).
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The parking requirement for emergency shelters is 2 parking spaces for staff members plus 1
parking space for each 6 occupants (or 0.16 per bed), which is less than 1 space per unit
required for studio and one-bedroom units in multifamily developments. Assuming a typical
existing building size of 10,000 square feet, the parking requirement for retail commercial would
be 25 spaces (1:400 SF ratio) and for warehousing would be 10 spaces (1:1,000 SF). Assuming
there is an emergency shelter with a maximum of 24 beds, the total parking requirement would
be 6 parking spaces, and therefore less than the required parking for residential or commercial
uses in the zoning districts.
Government Code Section 655853, subdivision (a)(4)(B) limits the City from requiring emergency
shelters to be more than 300 feet apart. Current zoning standards require that emergency
shelters be located at least one-half mile from another shelter. In addition, performance
standards 1 through 3 are not objective standards that can be imposed based on Government
Code Section 655856(a)(4)(B). Burlingame recognizes that it is not in compliance with the
performance standards and therefore has added Program D-5 to be in compliance.
There are about 70 properties in the RRMU and I-I zoned area with the zoning areas allowing
permanent emergency shelters subject to performance criteria. These properties range in size
from 0.35 acres to 13.63 acres. It is anticipated that a smaller emergency shelter could be
accommodated on a site between 0.5 and 1.0 acres, and a larger shelter would fit on a parcel
between 1.0 and 2.0 acres in size. Within the RRMU district, there are 12 properties in this area
between 0.5 and 1.0 acre in size, and there are 16 properties between 1.0 and 2.00 acres, which
is sufficient to provide a year-round emergency shelter. Within the I-I district, there are 8
properties in this area between 0.5 and 1.0 acre in size, and there are 6 properties between 1.0
and 2.00 acres, which provides for additional capacity. Most of these properties are now
developed with older light industrial or warehouse buildings which may be suitable for
conversion, or could be replaced with a new building. Some sites and existing buildings may
not be fit for human habitation and or be free of hazards in their current state due to a previous
use, lack of maintenance/repair, or the building was designed for a lower occupancy.
Therefore, converting an existing building to an emergency shelter would require that
necessary improvements be made to the building as required by the California Health and
Safety Code to protect the health and safety of the occupants.
Low barrier navigation centers are allowed as a permitted use in the CMU, BRMU, RRMU,
NBMU, BMU, CAR, HMU, MMU, and C-1 zoning districts. As with the zones allowing emergency
shelters, these areas are near transit and support services.
The identified areas can accommodate a shelter large enough to have capacity for the City’s
unmet homeless need. The 2019 San Mateo County One-Day Homeless County identified 25
unsheltered persons in Burlingame. Depending on the size of site required, and other amenities
provided in a homeless shelter, an adequately sized facility could be accommodated in this
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 54
zone. While the majority of the sites are less than one half acre, there are opportunities for site
consolidation, as well as sites that are one acre or more.
Transitional and Supportive Housing
This type of facility is longer term than a temporary shelter and generally provides housing for
people with specific needs for six months or longer to allow them time to rehabilitate, save
money, and search for permanent housing and jobs. These types of facilities are often located
in converted apartment buildings.
In 2021, the City Council adopted updated zoning which includes clear definitions for
transitional and supportive housing pursuant to Government Code Section 65583 (a)(5), and
provides that these uses are allowed by right in all zones which allow residential uses, only
subject to those restrictions that apply to other residential uses of the same type in the same
zone. There is no limit on the length of stay under the definition of supportive housing.
LifeMoves, a non-profit organization which operates programs providing both emergency
shelter and transitional housing throughout San Mateo County and Silicon Valley, now operates
seven transitional housing facilities for families and eleven facilities for single adults. Other
programs also provide support for persons facing homelessness, such as the Housing First
Program, which provides financial assistance for permanent housing to persons who are
homeless but have reliable incomes, and the Bridges Program, which provides transitional
housing while formerly homeless individuals enroll in schools to obtain job skills. The City of
Burlingame contributes financial support to LifeMoves in its annual budget as well as other
programs to increase housing options such as HIP Housing, Samaritan House and Samaritan
House Safe Harbor – Winter Shelter.
As noted above, pursuant to Senate Bill 2, the City of Burlingame has amended its zoning code
to require that an application for supportive and transitional housing will be treated equal to
any other multifamily residential project application in process and review (see Housing Element
Program D-5). State law prohibits the City from requiring any minimum parking requirement for
units occupied by supportive housing residents if the development is located within one-half
mile of a public transit stop. AB 2162 also requires cities to streamline the approval of
supportive housing development that meets specified criteria by providing a ministerial
approval process, removing the requirement for CEQA analysis, and removing the requirement
for discretionary permits. As indicated in Housing Element Program D-2, the City will review
and revise the Zoning Code for consistency with AB 2162.
Single-Room Occupancy (SRO) Units
SRO Units would be considered similar in use to a multifamily development, permitted in
multifamily residential zones in a new development, subject to Environmental Review. In 2021
the City Council adopted updated zoning regulations that classify SRO units as “Micro Units,”
defined as small, self-contained, single-occupancy apartments that include space for sleeping
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 55
(provided as part of the primary living area or as no more than one bedroom), sitting, a
kitchenette, and a bathroom, ranging in size up to 450 square feet. Any new building or
multifamily residential use requires these same entitlements, with the exception that micro units
have a reduced parking requirement; therefore approval of SRO housing or micro units would
not require additional regulatory requirements over and above similar uses in the same zone.
Burlingame Fair Property Rights Ordinance (“Measure T”) and Inclusionary Housing
In 1987, the voters of Burlingame passed an Ordinance called the Burlingame Fair Property
Rights Ordinance (“Measure T”). This ordinance contains the provision that an owner of real
property has the right to establish the price for which that property may be sold, leased, rented,
transferred or exchanged. The ordinance further states that the City of Burlingame shall enact
no law which imposes restrictions on the price for which real property may be sold, leased,
rented, transferred or exchanged.
Some aspects of Measure T are preempted by Assembly Bill (AB) 1482, which limits annual rent
increases, since the state-level legislation preempts local legislation such as Measure T. In order
to implement a program that includes local rent control or rent stabilization that would be more
stringent than SB 1482, the matter would need to be brought to the voters of the City of
Burlingame to repeal the provisions of this ordinance that might be in conflict with the
anticipated rent control program.
However, because of Measure T, the City cannot enact inclusionary affordable housing
regulations that would require that new developments provide a percentage of units at below
market rents. Because units would be priced below market, this would represent the City
imposing restrictions on the price for which real property may be sold, leased, rented,
transferred or exchanged. Although the City adopted inclusionary regulations in 2003, the
requirements were repealed in 2015 in the face of a legal challenge.
Because of the restrictions of Measure T, the City cannot require below market units as a
development regulation, but may offer an option to provide below market units in lieu of
residential impact fees. In 2019 the City adopted residential impact fees for new residential
development, but projects also have an in-lieu option where the developer can choose to
provide an affordable unit or units on site in lieu of submitting the impact fee (see discussion in
“Residential Impact Fees” section). To date, all multifamily residential projects approved since
the adoption of residential impact fees have chosen to include affordable units on site rather
than pay the fees, particularly because the affordable units qualify for density bonus under State
Density Bonus Law.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 56
Building Codes and Enforcement
The City of Burlingame applies the 2022 California Building Code (CBC) and California Fire
Code (CFC) to review minimum health and safety standards for residential and commercial
construction projects. There are local amendments that require more restrictive standards for
certain items. The local amendments that apply to housing include a requirement for the
installation of automatic fire sprinkler systems in all residential developments larger than 2,000
square feet in area and for structures taller than two stories. For all structures, residential
included, all storm water roof drainage must be collected and conveyed to the public storm
water system. There are seismic standards applied, and extra engineering may be required for
structures in the hillside areas. Although initially these standards may increase housing
production costs, they will help prevent future repair costs by reducing the risk of a house fire or
land sliding/shifting due to improper water drainage. Because Building and Fire Code
standards are established for life safety reasons, it is not reasonable to consider not complying
with the Code in order to reduce housing costs.
However, Building Division staff work with applicants to identify options for code compliance
that reduce burdens, and therefore constraints. The Building Division also has a process for
applicants to request Alternative Materials/Methods of Construction in order to reduce
constraints. Requests are made through a standardized form available on the Building Division
website.
Furthermore, in order to reduce costs and time associated with designing a project, the City
offers a pre-application review process at no cost to the owner/developer. Staff from the
Planning, Building, Fire, Public Works, Stormwater and Parks Divisions are available to review
proposed projects and offer plan review comments on the proposed project.
Burlingame enforces energy conservation standards enacted by the State. The standards may
increase initial construction costs, but will reduce household costs over the long term by
reducing energy costs. In addition, for residential remodels and new construction, applicants
follow the Reach Code which encourages all electric construction and discourages use of
natural gas.
Burlingame code enforcement is distributed among Planning, Building, Public Works, and City
Attorney personnel. In each case, the most applicable department leads enforcement based on
the nature of the nature of the issue. Most of the code enforcement in Burlingame is complaint
driven, but there is some active enforcement initiated by staff based upon observation. It is
unlikely that the code enforcement in Burlingame would have a negative impact on the long
term affordability of the city’s housing stock.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 57
Water/Sewer Capacity
As part of the Housing Element, jurisdictions must provide information regarding water and
sewer capacity to accommodate future development. In addition, jurisdictions must include
narratives about how they will comply with two specific pieces of legislation, SB 1087 and
SB 244.
SB 1087 – Housing Elements – Requires a city to immediately forward its adopted
Housing Element to its water providers so they can grant priority for service allocations
to proposed housing developments that include units affordable to lower-income
households.
SB 244 – Land Use and General Plans – Requires cities and counties, prior to adoption
of a housing element, to address the infrastructure needs of disadvantaged
unincorporated communities outside the city’s limits but within the city’s planning area.
Because the city’s planning area does not contain any unincorporated areas, no such
conditions exist.
Water Supply
The City of Burlingame provides water service to properties within its boundaries as well as to
the unincorporated Burlingame Hills area adjacent to the west. The Burlingame Hills area is a
residential subdivision of 420 dwelling units which is entirely built out.
Burlingame is a member of Bay Area Water Supply and Conservation Agency (BAWSCA) and
purchases all of its potable water from the San Francisco Public Utilities Commission Regional
Water System (SFPUC RWS). Water distribution, wastewater collection, water conservation, and
maintenance of water quality are Burlingame’s main water resource functions, as treated water
purchased from the SFPUC RWS does not require further treatment.
The City’s Individual Supply Guarantee (ISG) from the SFPUC is approximately 5.23 million
gallons per day (mgd), or approximately 1,909 million gallons per year (mgy). The City’s current
and projected demand quantities are approximately equal to 1,193 million gallons (mg) in 2022
and 1,697 mg in 2045, respectively. The City’s projected quantities are shown as within their ISG
of 1,909 mgy. The RWS has historically met demand in its service area in all year types. Available
water supplies from the RWS is constrained by hydrology, physical facilities, and the institutional
parameters that allocate the water supply of the Tuolumne River. In addition, statewide
regulations and other factors can impact the system reliability. For example, the adoption of the
Bay-Delta Plan Amendment is anticipated to impact the reliability of the RWS supplies in the
future. The adopted Bay-Delta Plan Amendment was developed with the stated goal of
increasing salmonid populations in three San Joaquin River tributaries (the Stanislaus, Merced,
and Tuolumne Rivers) and the Bay-Delta. The Bay-Delta Plan Amendment requires the release
of 30-50 percent of the “unimpaired flow”12 on the three tributaries from February through
June in every year type. If the current Bay-Delta Plan Amendment (July 2018) is implemented,
the proposed unimpaired flow volumes would significantly reduce water supply available
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 58
through the RWS during future drought conditions. The City would be required to reduce their
water use by as much as 53 percent during multi-year droughts if no new additional imported or
local supplies are developed.
During normal hydrologic years, the City is expected to meet all projected demands through
2045 with or without implementation of the Bay-Delta Plan Amendment. The City also is
expected to meet all projected demands through 2045 during single-dry year scenarios without
implementation of the Bay-Delta Plan Amendment. Without implementation of the Bay-Delta
Plan Amendment, the City is expected to meet nearly all projected demands through 2045
during multiple-dry year scenarios save for the fourth and fifth years of a 2045 multiple-dry year
scenario. In this scenario, the City would experience an approximately 14 percent shortfall in
water supply.
With implementation of the Bay-Delta Plan Amendment, the City would experience water
supply shortfalls during all single-dry and multiple-dry year scenarios. The City would
experience a shortfall of approximately 45 percent during a single-dry year scenario in 2045 and
a shortfall of approximately 53 percent in fourth and fifth years of a 2045 multiple-dry year
scenario. Shortfalls would be lesser for earlier years. The lowest estimated shortfall amount
would be approximately 34 percent in 2025 during single-dry and the first year of a multiple-dry
year scenario.
In response to anticipated future dry-year shortfalls, the City has developed a Water Shortage
Contingency Plan (WSCP) that systematically identifies ways in which the City can reduce water
demands during dry years. The overall reduction goals in the WSCP are established for six
drought stages ranging from 10 percent to greater than 50 percent shortfalls. In addition,
BAWSCA and SFPUC are pursuing the development of additional water supplies to improve the
RWS and local supply reliability.
Wastewater Collection and Treatment
The City maintains the sewer system within the City boundaries. With few exceptions, the sewer
system is gravity fed to lift stations located in the industrial sections of town, then to the
Burlingame Wastewater Treatment Plant (WWTP) at 1103 Airport Boulevard. The WWTP
provides treatment of domestic and commercial wastewater originating from the City of
Burlingame, Town of Hillsborough, and the Burlingame Hills Sewer Maintenance District. The
WWTP has an average dry weather flow of three million gallons per day (mgd) and a total
capacity of 5.5 mgd, leaving approximately 2.5 mgd of excess capacity.
The WWTP is part of the North Bayside System Unit (NBSU), a joint powers authority that
includes the cities of Burlingame, Millbrae, South San Francisco and San Bruno, as well as the
San Francisco International Airport. Based on the joint use agreement, the WWTP discharges
treated and disinfected effluent through the NBSU force main to the South San Francisco, and
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 59
San Bruno Water Quality Control Plant, where the effluent is dechlorinated before being
discharged into the Lower San Francisco Bay.
NPDES (National Pollutant Discharge Elimination System) Requirements
Burlingame is located at the foot and along the east side of the coastal ridge between the
Pacific Ocean and San Francisco Bay. Seven creeks drain the area directly into San Francisco
Bay. For these reasons, runoff and water quality are important considerations in development
and construction. The Clean Water Act of 1972 prohibits the discharge of stormwater into
United States waters unless the discharge is in compliance with a National Pollutant Discharge
Elimination System (NPDES). To meet its mandate from the State, the City of Burlingame has
joined with the other cities in San Mateo County, to obtain a regional discharge permit from the
State Water Quality Control Board (SWQCB) for stormwater water discharge. In order to reduce
non-point pollution sources, each construction project is required to implement “best
management practices” on job sites to minimize erosion, stop contaminated run-off and control
construction site pollution. NPDES requirements also encourage site planning including swales,
detention ponds and other design elements that can be incorporated into project design to
reduce storm water run-off and contamination. The City of Burlingame requires stormwater run-
off to be collected and channeled into a public storm water system. Current regulations focus
on solutions that encourage on-site retention and recharge of stormwater, so that all drainage
does not have to enter the storm drain system. This can result in a more affordable solution for
accommodating storm water runoff.
The impact of the current requirements will require additional site planning, post construction
controls and maintenance that will likely result in additional time and expense to developers.
Dry Utilities
Dry utilities, including cable, electricity, and telephone service, are available to all areas within
the city, including all sites identified in the Sites Inventory. There is sufficient capacity to meet
the current need and any future need. Service providers are as follows:
• Cable: Comcast and Astound
• Electricity: Pacific Gas and Electric and Peninsula Clean Energy
• Mobile Coverage: AT&T Wireless, T-Mobile, and Verizon Wireless
• Internet Service: Xfinity, AT&T, and Astound
On and Off-Site Improvements
On and off-site improvements also add to the cost of development projects, and are usually
required before a building permit can be signed off for occupancy of a structure. Residential
developments in the city of Burlingame are required to meet City standards for curb cuts, which
is a width not exceeding 25% of the lot dimension or 16 feet for a two-car garage. As stated
above, all storm water roof drainage must be collected and conveyed to the public storm water
system. Sewer laterals are required to be tested upon sale and replaced all the way from the
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 60
house to the city clean out for all new residential buildings. For single family residential and
duplex projects, the City’s urban reforestation ordinance requires that one landscape tree be
planted on-site for each 1,000 square feet of floor area. For multifamily residential projects, one
tree is required for each 2000 square feet of floor area. These trees can be 15 gallon up to 24"
box size when planted. For properties along El Camino Real (State Route 82), sidewalk and curb
cut changes require Caltrans approval.
Communal amenities are also considered on-site improvements within a new housing
development. While amenities such as swimming pools, club houses, on-site laundry facilities,
etc. are not required, they are encouraged. If a new project proposes such an amenity, this
would be seen as a positive aspect to the project which could attract potential tenants.
Environmental Requirements
Burlingame is mandated to follow the procedures set forth in the California Environmental
Quality Act (CEQA). Since two square miles of the city is under San Francisco Bay water, the city
has a substantial bay edge. Four creeks drain the coastal range to the bay through the city. Sites
that have unusual topography and/or sensitive habitat may require in-depth review and special
studies to evaluate the environmental impacts of a proposed project. This can add additional
costs to a project. Residential properties containing a creek that are proposing significant
alterations or culverting of a creek are also required to obtain approval from the California
Department of Fish and Game and the U.S. Army Corp of Engineers.
Potential development sites with sensitive habits, endangered species, wildfire risk, or
significant environment problems are generally not recommended sites for affordable housing.
These sites are located in the hillside areas of Burlingame. These areas have been fully
developed with low density residential housing, and are neither zoned for nor would not be
suitable for multifamily development. However, these areas could accommodate Accessory
Dwelling Units (ADUs) or duplex units. Some sites in the hillside areas may have limited capacity
to add ADUs or redevelop with duplexes depending on the nature of the topography and
habitats. Sites designated for multifamily residential development are typically flat, have been
previously developed, and lack sensitive habitat.
Some sites suitable for multifamily residential development may have issues with noise from
either highways, the rail line, and/or the airport. However, noise has not been a constraint to
development of multifamily projects, as there are projects already built or under construction
located next to highways and rail lines, or within proximity to the airport. The Building Code
requires that noise mitigation be incorporated into the building construction so that interior
noise levels are below required thresholds, and in some instances have arranged building
massing so that outdoor areas are below required thresholds. Figure HE-4 on the next page
indicates the location of areas with potential noise impacts.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 61
Figure HE-4: Noise Contours
Source: Burlingame 2040 General Plan
Some areas suitable for multifamily have risk from flooding, sea level rise, and/or liquefaction.
Figures HE-5 and HE-6 on the following page indicate areas subject to these impacts. New
buildings in floor plain areas and/or subject to sea level rise are required to be elevated above
base flood elevations determined by the Federal Emergency Management Agency (FEMA).
Liquefaction is addressed through Building Code requirements, with new buildings typically
being built on foundations supported by piles. Chapter 8 of the 2040 General Plan includes
numerous goals, policies, and programs to address environmental matters beyond Building
Code and FEMA requirements.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 62
Figure HE-5: Areas Subject to Anticipated Sea Level Rise
Source: Burlingame 2040 General Plan
Figure HE-6: Areas Subject to Liquefaction
Source: Burlingame 2040 General Plan
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 63
Fees and Exactions
The costs involved with development in the city of Burlingame include planning and building
plan check and permit fees, public facilities impact fees, residential impact fees, utility service
fees, school fees and a recycling fee. The City does not have park dedication fees or bedroom
tax, as do many cities. The City has no exactions on residential developers to provide public art
or sound walls.
Although the fees established for the Planning permit process have been increased in the past
few years to recover as much as possible of the costs to process the applications, Burlingame’s
planning processing fees are below the average for communities in San Mateo County, and
therefore have not been a constraint on the production of housing.
Planning Fees
Burlingame’s Planning Division is only partially funded by fees, with the remaining costs covered
by the general fund. The cost of planning is partially subsidized in Burlingame, with the fees
collected for projects not entirely covering the cost of staff time to process such projects.
Government Code Section 65940.1 (a)(1) requires jurisdictions to make available all fees on their
website. Burlingame’s up-to-date fee schedule can be accessed on the City’s website at
https://www.burlingame.org/departments/planning/forms_applications_and_fees.php.
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The Planning Division fees required for residential development include the following (not all
fees are applicable – determination made by staff based on specifics of project):
Table HE-10: Burlingame Planning Fees
Source: Burlingame Community Development Department, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 65
Table HE-11 provides an example of fees for a single family and multifamily project.
Table HE-11: Example of Single Family and Multifamily Project Fees
Fees/Costs Single Family* Multifamily**
Entitlement Fees
Design Review 1,373 2,209
Multifamily Review - 3,816
Engineering Plan Review 1,045 2,087
Parks Review 270 270
Noticing 1,013 1,515
CEQA Categorical Exemption 134 -
GP Amendment/Rezoning - -
Environmental Review
(estimate) *** - 75,000-
-
Environmental Posting Fee - 945
County EIR Fish & Game Fee - 3,539
Condominium Map - 7,559
Subtotal 3,835 96,940
Per Unit 10-unit bldg
Construction Fees
Building Permit 20,360 13,000 130,000
Fire Sprinkler Permit 550 123 1,225
Utility Connection 17,000 10,000 100,000
Alarm Permit - 90 900
Subtotal 37,910 23,123 232,125
Fees/Costs Single Family* Multifamily**
Impact Fees Public Facilities Impact Fees 9,162 16,360
School Fees Elementary & High School 14,370 69,695
Total 65,277 415,120
* Single family home is assumed to be a new home on an empty lot in an existing neighborhood, with
no complicating factors.
** Multifamily development is assumed to be a 10-unit development, 14,550 square foot construction
requiring a tentative map. Costs shown are per unit, other than entitlement costs, which would
remain the same regardless of project size.
*** Assumes CEQA exemption applies; costs could be greater if an MND/EIR is needed.
Source: Burlingame Community Development Department, 2022
Building Fees
Building permit fees are charged in accordance with the fee tables set in the current City of
Burlingame Master Fee Schedule plus the plan check fees. The total estimated construction
valuation of a project is checked against the values set in the current Master Fee Schedule
tables. The basic building plan check fee is 65% of the building permit fee. The Planning plan
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 66
check fee is 25% of the building permit fee, the Public Works/Engineering plan check fee is 25%
of the building permit fee, Central County Fire Department’s plan check fee is 12%’s of the
building permit fees and (when applicable), the energy plan check fee is an additional 25% of
the building permit fee. The basic fee for electrical, plumbing and mechanical permits is $47
dollars, with additional fees charged on a line-item basis.
Parking In-Lieu Fee
The Downtown Specific Plan allows that in instances where uses proposed are not exempt from
providing parking, parking in-lieu fees may be paid to satisfy in whole, or in part, off-street
parking requirements where there is expansion, intensification, or construction of new buildings.
The parking in-lieu fee is $61,764 per space.
Assembly Bill 2097 prohibits cities from imposing a minimum parking requirement on residential
development projects located within a half-mile radius of a major transit stop. Two major transit
stops are located in Burlingame (Burlingame and Broadway Train Stations), and a third major
transit stop is located near the city limit in Millbrae (Caltrain and Bay Area Rapid Transit (BART)
at the Millbrae Intermodal Station). Several zoning districts, in part or in whole, allowing
residential uses fall within a half-mile of these three major transit stops, including R-3, R-4,
BRMU, CMU, RRMU, NBMU, BMU, CAR, DAC, HMU and MMU. In addition, reduced parking
requirements may also be achieved through the State Density Bonus Law.
Based on these laws, it is unlikely that multifamily development projects will be required to pay
parking in-lieu fees.
Public Facilities Impact Fees
Ordinance No. 1830 was adopted in 2008 by the Burlingame City Council in order offset the
impacts of new development projects on City facilities. In establishing the fees, the City had a
study conducted that provided information on the nexus between development projects and
impacts on City facilities and set out a formula of fees that would serve to offset some of those
impacts. The fees do not have an escalator and have not been updated since adopted. Public
Impact Fees applicable to new residential development are shown on the following page on
Table HE-12.
The Municipal Code Chapter related to Public Facilities Impact fees allows a developer of a
project to apply to the Community Development Director for a reduction or waiver of any one
of the fees (may apply for a reduction or waiver of one or several fees), based upon the absence
of any reasonable relationship or nexus between the impacts of the development and either the
amount of the fee charged or the type of facilities to be financed. The fee waiver request will be
considered by the Planning Commission at the time that the development application is
considered, or by the Community Development Director if the development application does
not require Planning Commission review/approval.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 67
Table HE-12: Burlingame Public Facilities Impact Fees
Service Area Single Family
Fee per Dwelling Unit
Multifamily
Fee per Dwelling Unit
General Facilities and Equipment $2,756 $1,636
Libraries $2,383 $1,415
Police $437 $259
Parks and Recreation $590 $350
Streets and Traffic $1,573 $1,105
Fire $642 $381
Storm Drainage $781 $391
Source: Burlingame Community Development Department, 2022
Due to the physical constraints of a largely, built-out environment, the City does not have a
Quimby Act fee for adding parkland. There are limited opportunities to acquire land for parks
and any acquisitions would be costly. To pursue improvements to parks and other public
recreational facilities, the City’s Parks and Recreation Public Facility Impact Fee has been a
source of funding for these types of projects.
If a project proposes to include open space/recreational amenities on site, the project applicant
can request a waiver of the Public Facilities Impact fee related to Parks and Recreation as noted
above. The findings for such a waiver would be based on the provision of open
space/recreational amenities to be available for the use of the residents, therefore, the project
would not create an impact to the existing parks in the community.
In 2019 the City Council adopted zoning standards in the NBMU and RRMU districts that require
residential projects to include community benefits in exchange for allowing greater densities
and building heights. In 2021 these standards were extended to R-3 and R-4 districts. Projects
may include an open space amenity as a community benefit, provided the open space is
accessible to the public. In these instances, the developer may dedicate the open space to the
City as a park, or may retain ownership and maintenance of the open space and provide a
public access easement. The City is amendable to either approach.
Residential Impact Fees
Affordable housing impact fees are used to support and build new homes for lower-income
residents. The fees can be charged to developers of new commercial and residential projects
and used for land purchase, construction costs, or site rehabilitation related to providing
workforce housing.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 68
In 2017 the City Council adopted an ordinance establishing commercial linkage fees for new
commercial development in Burlingame, and in 2019 it adopted residential impact fees for new
residential development in Burlingame. Over time, these fees will provide a dedicated source of
funding for programs supporting workforce housing in Burlingame.
For new residential development, the adopted residential impact fees vary from $14.00 to
$35.00 per square foot, depending on residential density (units per acre), whether a project is
rental or for sale/ownership, and whether prevailing/area wages are utilized (see Table HE-13
below).
Residential projects also have an “in-lieu” option where the developer can choose to provide
an affordable unit or units on site in lieu of submitting the impact fee:
For Rental Multifamily projects, the project must provide at least ten percent (10%) of the
units on site to be affordable to moderate income households (in this instance 80% - 120%
AMI) for a period of 55 years in order to waive the residential impact fee.
For Sale Multifamily (Townhome/Condominium) projects, the project must provide ten percent
(10%) of the units on site to be affordable to above-moderate income households (in this
instance 120% - 150% AMI, with the price set at the 135% AMI level) for a period of 55 years in
order to waive the residential impact fee.
Table HE-13: Residential Impact Fees
Impact Fee – Per Square Foot
Base With Prevailing /
Area Wage
Rental Multifamily – 11 units and above*
Up to 50 du/ac $17.00 / sq ft $14.00 / sq ft
51-70 du/ac $20.00 / sq ft $17.00 / sq ft
71 du/ac and above $30.00 / sq ft $25.00 / sq ft
For Sale Multifamily (Condominiums) – 7 units and above*
$35.00 / sq ft $30.00 / sq ft
* Rental Multifamily with total of 10 units or fewer are exempt; For Sale Multifamily (Condominiums) with
total of 6 units or fewer are exempt. Rental projects that convert to condominiums within 10 years of
completion of construction would be subject to the fee differential as a condition of conversion. The
fee differential shall be based on the fee structure in place at the time of conversion to condominiums,
minus the fees originally submitted at the time of construction.
Source: Burlingame Community Development Department, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 69
Recycling Fees
Ordinance No. 1645 was adopted in 2000 by the Burlingame City Council in order to meet the
goals of the California Integrated Waste Management Act of 1989, which requires all California
cities and counties to divert 50% of waste they generate away from landfills. The City’s recycling
ordinance requires that 60% (by weight) of all waste generated from demolition and new
construction be reused and/or recycled, and that a minimum of 25% of structural material
(excluding concrete, asphalt and dirt) must be recycled.
Prior to permitting, applicants must complete a Recycling and Waste Reduction Form, then a
City employee reviews the completed form to verify the estimated waste anticipated to be
generated by the project. There are three types of deposits which are based on the type of
project: additions/remodels, new structure, and demolition of an entire structure. Most projects
consist of additions/remodels, in which case the applicant pays a deposit based on 1.5% of the
valuation of the permit. For example, if a project is estimated to generate 10 tons of debris and
has a valuation of $100,000, the deposit would be $1,500 (1.5% x $100,000), and 5 tons would be
required to be recycled. All recycling, reuse and disposal must be documented by receipts,
weight tags or other records. If the recycling goal is met, the full deposit is refunded, however if
the recycling goal is not met only a proportionate amount of the deposit will be returned. Some
waste materials can be sold by the developer to offset his/her additional cost of removal caused
by recycling. Historically, most projects have met the recycling goal and the full deposit has
been refunded.
Public Works
Public Works fees associated with housing development typically include sewer and water
capacity fees, as shown on Table HE-14 below:
Table HE-14: Sewer and Water Capacity Fees
Sewer Capacity Fees
Type Capacity Charges
Single-Unit $10,219 per dwelling unit
Multi-Unit
a) Studio and one bedroom $4,804 per dwelling unit
b) Two or more bedrooms $7,075 per dwelling unit
c) Detached Accessory Dwelling Unit
> 150 SF
$4.26 per SF
Table HE-14 continued on next page.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 70
Table HE-14: Sewer and Water Capacity Fees
Water Capacity Fees
Type Capacity Charges
Single-Unit $6,699 per dwelling unit
Multi-Unit
a) Studio and one bedroom $2,715 per dwelling unit
b) Two or more bedrooms $4,164 per dwelling unit
c) Detached Accessory Dwelling Unit
> 150 SF
$2.80 per SF
Source: Burlingame Community Development Department, 2022
Sidewalk and special encroachment fees are range from $262 to $629. Fees for street frontage
improvements commonly associated with housing development, including sidewalk, curb,
gutter, and curb drain modifications, are $453 plus $10.00 for each square foot over 200.
School Fees
Two school districts serve Burlingame: the Burlingame Elementary School District and the San
Mateo Union High School District. School fees are collected to offset costs of rehabilitation and
maintenance of school buildings, with 60% of the fees collected going to the elementary school
district and 40% to the high school district. Fees are collected on all new construction projects
and residential remodels in Burlingame that add 500 square feet or more. Residential school
development fees for 500 square feet or more of development are $4.79 per square foot, and
commercial and industrial projects are charged $0.78 per square foot. Mini-storage buildings
are also charged a fee of $0.07 per square foot.
Comparison with Other Jurisdictions
The following series of tables compares fees assessed by the City of Burlingame with those of
other jurisdictions in San Mateo County.
Tables HE-15 and HE-16 on the next page summarize total fees per unit (including entitlement,
building permits, and impact fees) for each jurisdiction in San Mateo County. Fees for new
single family homes in Burlingame are slightly higher than the median for the 21 jurisdictions in
San Mateo County. Fees for small multifamily developments are slightly below the county
median, and are exactly the median for large multifamily developments.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 71
Table HE-15: Total Fees (includes entitlement, building permits, and impact fees) per Unit
Single Family Small Multifamily Large Multifamily
Atherton $15,941 No Data No Data
Brisbane $24,940 $11,678 No Data
Burlingame $69,425 $30,345 $23,229
Colma $6,760 $36,590 $17,030
Daly City $24,202 $32,558 $12,271
East Palo Alto $104,241 No Data $28,699
Foster City $67,886 $47,179 $11,288
Half Moon Bay $52,569 $16,974 No Data
Hillsborough $71,092 No Data No Data
Millbrae $97,756 $6,824 $55,186
Pacifica $33,725 $40,151 No Data
Portola Valley $52,923 No Data No Data
Redwood City $20,795 $18,537 $17,913
San Bruno $58,209 $72,148 $39,412
San Mateo $99,003 $69,549 $44,907
South San Francisco $81,366 $76,156 $32,471
Unincorporated San
Mateo $36,429 $15,088 $3,344
Woodside $70,957 $82,764 No Data
Source: 21 Elements, 2022
Table HE-16: Total Fees per Unit – Distribution of Fees Charged by San Mateo County
Jurisdictions
Single Family Small Multifamily Large Multifamily
Quartile 1 $27,136 $17,365 $14,651
Median $55,566 $34,574 $23,229
Quartile 3 $71,058 $63,957 $35,942
Interquartile Range $71,057 $63,956 $35,941
Total Range $97,481 $75,941 $51,843
Source: 21 Elements, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 72
Table HE-17 summarizes the total fees as a percentage of total development costs. The fees as
a percentage of development cost for single family homes in Burlingame are slightly higher
than the median for the 21 jurisdictions in San Mateo County. For small multi-unit
developments, they are slightly below the county median, and are exactly the median for large
multifamily developments.
Table HE-17: Total Fees as a Percentage of Total Development Costs*
Single Family Small Multifamily Large Multifamily
Atherton 0% No Data No Data
Brisbane 1% 1% No Data
Burlingame 3% 4% 3%
Colma 0% 4% 2%
Daly City 1% 4% 2%
East Palo Alto 4% No Data 4%
Foster City 3% 6% 2%
Half Moon Bay 2% 2% No Data
Hillsborough 3% No Data No Data
Millbrae 2% 8% 7%
Pacifica 1% 5% No Data
Portola Valley 1% No Data No Data
Redwood City 1% 2% 2%
San Bruno 2% 8% 5%
San Mateo 4% 8% 6%
South San Francisco 3% 9% 4%
Unincorporated San
Mateo 1% 2% 0%
Woodside 2% 9% No Data
Median 2% 5% 3%
* The above table is calculated using average soft costs (including an average of jurisdiction charged
fees) and average land costs for the county. A more precise determination of fees as a percentage of
total development costs can be calculated using jurisdiction specific land costs and fees.
Source: 21 Elements, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 73
Process and Permitting Procedures
Planning Process: Single Family Construction
Burlingame has single family residential design review guidelines for new single family
construction, second story additions, and first floor additions involving substantial construction
in the R-1 zoning district. The intent of the guidelines is to preserve the original and unique
patterns of distinct neighborhoods through consistency of character in individual homes to
allow protection of each homeowner’s investment when future projects are initiated. Projects
are reviewed for compliance with the Residential Design Guidebook, which offers guidance on
appropriate design based on the style of the existing home and the character of the
surrounding neighborhood. The process requires that all qualifying projects go before the
Planning Commission in a design review study meeting, with notice to all neighbors within 300
feet. The project is either referred to a design review consultant or the project is moved forward
on the Planning Commission calendar for action. The Planning Commission action is appealable
to City Council. The average processing time for a project that is not referred to a design review
consultant is 75 days. These average processing times include “out of court” time in which the
applicant is revising drawings. The design review process has been extended to include all
types of residential and commercial development. The design review guidelines and review
process historically have not created a constraint on the housing supply given that the Planning
Commission can consider a variety of exterior design materials and design styles in their review
of projects and that projects have not been denied by the Commission; all projects have been
approved as proposed or with adjustments to the design. Design review applications may be
approved if all of the following findings can be made:
The project is consistent with the General Plan and is in compliance with all applicable
provisions of the zoning code, all applicable design guidelines, all other City ordinances
and regulations.
The project will be constructed on a parcel that is adequate in shape, size, topography,
and other circumstances to accommodate the proposed development; and
The project is designed and arranged to provide adequate consideration to ensure the
public health, safety, and general welfare, and to prevent adverse effects on
neighboring property.
In addition to design review, applicants may request exceptions to development standards in
the zoning code in the form of variances and special permits. Requests for variances can be
made for measurable standards such as lot coverage, floor area ratio, parking space
dimensions, or front setback dimensions. Requests for special permits can be made for
measurable standards such as exceeding building height limits, structures extended beyond the
declining height envelope (daylight plane), and exceeding the maximum allowed plate height
dimension. These applications also require Planning Commission review and action, which are
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 74
also appealable to City Council. If the project is subject to design review, these applications are
reviewed concurrently with the design review project.
Variances may be approved if all of the following findings can be made:
There are exceptional or extraordinary circumstances or conditions applicable to the
property involved that do not apply generally to property in the same zoning district;
The granting of the application is necessary for the preservation and enjoyment of a
substantial property right of the applicant, and to prevent unreasonable property loss or
unnecessary hardship;
The granting of the application will not be detrimental or injurious to property or
improvements in the vicinity and will not be detrimental to the public health, safety,
general welfare or convenience; and
That the use of the property will be compatible with the aesthetics, mass, bulk, and
character of existing and potential uses of properties in the general vicinity.
Special permits may be approved if all of the following findings can be made:
The blend of mass, scale, and dominant structural characteristics of the new construction
or addition are consistent with the existing structure’s design and with the well-defined
character of the street and neighborhood;
The variety of roof line, façade, exterior finish materials, and elevations of the proposed
new structure or addition are consistent with the existing structure, street, and
neighborhood;
The proposed project is consistent with the residential design guidelines adopted by
the City; and
Removal of any trees located within the footprint of any new structure or addition is
necessary and is consistent with the City’s reforestation requirements, and that the
mitigation for the removal that is proposed is consistent with established City policies
and practices.
The average processing times for these types of applications is about 8 to 10 weeks (processing
time includes the design review application and any other variance/special permit reviewed
concurrently with the application). This timeline is generally driven by legal noticing
requirements and Planning Commission hearing availability. The Burlingame Planning
Commission meets the second and fourth Monday of each month. All applications require two
meetings before the Commission; one for design review study and one for action. Three weeks
is added to the review time if a decision is appealed to the City Council because of the
requirements to comply with the Ralph M. Brown Act provisions.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 75
There are two administrative processes in Burlingame: minor modifications and hillside area
construction permits. Minor modifications are similar to variances, but are for minor
encroachments beyond the established development regulations. For example, a property
owner may seek a minor modification rather than a variance for a 1 foot extension into the
required side yard. In the hillside areas of the city, any construction requires a hillside area
construction permit. The intent of this process is to allow opportunity to review construction for
its effect on existing distant views from inside structures on nearby properties. Administrative
permits are noticed to immediate neighbors (within 100 feet). If there are no appeals within 7
days, the permit is issued administratively. If a neighbor wishes to appeal the project it moves
on to full review with a public hearing before the Planning Commission. An administrative
permit review which is not appealed takes about 16 days.
Planning Process: Two-Unit/Duplex Construction
In 2021 the City Council adopted zoning standards for two-unit residential development in
compliance with California Government Code Sections 66452.6, 65852.21 and 66411.7 to allow
two detached or attached housing units on one parcel, and ancillary uses and structures. A
proposed two-unit housing development is considered ministerially (by right), meaning that
approval is at the staff level with no public hearings if the proposed housing development
meets all of the development standards. The two-unit residential standards apply to any
property in the R-1 zoning district. The average processing times for a ministerial review by staff
is about 8 to 12 weeks.
Planning Process: Multifamily Construction
Apartment Development
Apartments are allowed by right in the R-3, R-4, CMU, BRMU, RRMU, NBMU, BMU, CAR, DAC,
HMU, and MMU zoning districts, assuming all development standards of the district are met.
However, these projects are subject to the design review process. The average processing
times for a design review permit can range from 12 to 16 weeks for a smaller project, to an
average of 52 weeks for a larger project. Most applications may be approved by the Planning
Commission and are not subject to City Council review unless appealed; an appeal to the City
Council typically adds 4 to 6 weeks beyond the Planning Commission timeline. The findings for
the design review process are noted above.
The Zoning Code provides objective standards for multifamily residential development. This
significantly improves development certainty, as applicants are assured that if the project meets
the objective standards, it will be approved. The certainty serves to mitigate cost impacts, as it
reduces the number of public hearings and reduces the need for design revisions, thereby
reducing the expense incurred through amount of time in review. The objective standards also
provide assurance to applicants that the number of units proposed in a project will be approved
provided it is consistent with the zoning density.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 76
The California Environmental Quality Act allows categorical exemptions for projects involving
four or less units, and for larger infill projects which meet certain criteria. For those larger
developments which do not meet the infill criteria, the environmental review process would add
time to development projects.
Residential Condominium Permits
All proposals for condominiums, residential or commercial, require a condominium permit. The
Planning Commission and City Council must approve the project based on the following
criteria: conformity with zoning regulations and General Plan densities, its effect on surrounding
community, impact on schools, parks, public utilities, streets, traffic, and submittal of legal
tentative parcel map approved by the City Engineer. Condominium projects must also meet
certain development criteria such as common and private open space, as well as greater
setbacks than is required for apartments. Condominium permits are reviewed concurrently with
other entitlements, so there is no additional review time beyond that of an apartment
application. The required findings for a condominium permit are based on conditional use
permit findings as noted above.
SB 35 Projects
Senate Bill (SB) 35 went into effect on January 1, 2018 and changed the local review process for
certain development projects. SB 35 applies to California Cities and Counties where production
of new housing has not met the state-mandated Regional Housing Need Allocation income
targets, including Burlingame. These Cities and Counties must use a streamlined, ministerial
review process for qualifying multifamily residential projects. At this time, qualified housing
proposals with at least 10% affordable units may be eligible for the SB 35 streamlined process in
Burlingame.
Housing projects qualify for SB 35 if they satisfy a number of criteria, including:
• Provide the specified number of affordable housing units;
• Comply with objective planning standards;
• Are in an urban area with 75% of the perimeter developed;
• Are on sites zoned or planned to allow residential use;
• Are not located in the coastal zone, agricultural land, wetlands, or fire hazard areas; and
• Pay prevailing wages (only for projects with 10 or more units).
The City must review applications for qualifying housing developments within a statutory time
frame. The City must determine if the project is eligible for streamlined approval within 60 days
of application submittal for projects of 150 or fewer units, or within 90 days for larger projects. If
the application is eligible for review under SB 35, the City must review the project within 90 days
after application submittal for projects of 150 or fewer units, or within 180 days for larger
projects.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 77
Ministerial review is based on compliance with set, objective standards 4 and cannot involve
subjective judgment. Qualifying projects are also not subject to environmental review under the
California Environmental Quality Act.
Approval Timelines
The average entitlement processing times for a project requiring design review can range from
12 to 16 weeks for a smaller project, to an average of 52 weeks for a larger project. Of the six
most recent large residential projects, the shortest approval was 36 weeks for a 265-unit
development at 1 Adrian Court, and the longest approval was 92 weeks for a 10-unit
development at 1491-93 Oak Grove Avenue. These timelines include “out of court” time where
the development team is preparing revisions.
100% affordable projects have a shorter review time for entitlements since the review is
ministerial with no public hearings. To date, the City has received one SB 35 application, for a
69-unit 100% affordable development at 1875 California Drive. The approval of entitlements for
that application was 24 weeks.
The average processing time for a building permit is 30 weeks for a smaller project, and 45
weeks for a larger project. Of the six most recent large residential projects, the shortest
approval for a building permit was 28 weeks for the 1491-93 Oak Grove Avenue project, and 58
days for a 269-unit development at 1008-1028 Carolan Avenue.
The amount of time between receiving approval of the entitlements and submittal of the
building permit application is primarily a function of the applicant. The City cannot compel an
applicant to submit a building permit application until the applicant is ready. However, the
Building Division will make provisions to allow submittals to be submitted and reviewed in an
expedited manner. For example, the Building Division accepted an early submittal of a building
permit for a project at 1095 Rollins Road prior to the project receiving Planning approval. This
was at the applicant’s risk, but the Building Division was amendable, and the building permit
application was submitted 26 days prior to the approval of planning entitlements. In other
instances, the Building Division offers pre-submittal meetings with applicants to ensure that
building permit applications are complete and can be reviewed expeditiously. Of the six most
recent large non-SB 35 residential projects, the average time between approval of planning
entitlements and submittal of application for building permits was 41 weeks.
4 “Objective zoning standards” and “objective design review standards” involve no personal or subjective judgment
by a public official and are uniformly verifiable by reference to an external and uniform benchmark or criterion
available and knowable by both the development applicant or proponent and the public official prior to submittal.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 78
For the SB 35 project at 1875 California Drive, the applicant submitted the building permit
application 10 weeks after receiving approval of the entitlements. That application has had a
fast timeline due to the need for the developer to meet tax credit financing timelines. Multiple
departments have been collaborating to ensure the project can meet its timelines for building
permits and legal agreements.
Environmental Review
Before any development permit is granted, each project undergoes an environmental
assessment, as required by the California Environmental Quality Act (CEQA), to assess the
project’s impact and to establish whether public service and facility systems are adequate to
accommodate any increased demand generated by the proposed project. Staff makes a
determination early in the process as to whether the project is exempt from CEQA or requires
preparation of a Negative Declaration (ND), Mitigated Negative Declaration (MND), or
Environmental Impact Report (EIR). CEQA determinations are made concurrently with initial
processing once an application is deemed complete so they can be reviewed by the approval
authority concurrently with the entitlements. All CEQA determinations and required noticing is
done within the timelines required by State law an in a manner consistent with the Permit
Streamlining Act.
Many projects are categorically exempt from CEQA (e.g., Class 32 Infill Exemption). CEQA also
allows a streamlined environmental review for projects that are consistent with the densities
established by existing zoning, community plan, or general plan policies for which an EIR was
certified (e.g., CEQA Guidelines Section 15183). Mitigated Negative Declarations (MNDs) and
Environmental Impact Reports (EIRs) are most commonly associated with projects on sites that
require rezoning or General Plan Amendments, or that are located on hillside sites, wetland or
riparian areas, or near important historic and/or archaeological resources. CEQA mitigation
requirements, such as special requirements for construction to avoid impacts to special species
status, are typically required to reduce the projects’ impacts on the environment.
Table HE-18 on the following page shows the type of environmental review under CEQA
prepared for large multifamily family residential projects that were approved since the General
Plan Update in 2019. CEQA determinations for these projects have ranged from Categorical
Exemptions to EIRs.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 79
Table HE-18: Type of Environmental Review Under CEQA
Project Number of Units CEQA Review
1 Adrian Ct 265 Class 32 Infill Exemption
1875 California Dr 69 SB 35 Application
1766 El Camino Real 311 Class 32 Infill Exemption
1870 El Camino Real 169 Streamlined environmental review per
CEQA Guidelines Section 15183
30 Ingold Rd 298 Class 32 Infill Exemption
1814-1820 Ogden Dr 90 Streamlined environmental review per
CEQA Guidelines Section 15183
1868 Ogden Dr
120
EIR – existing building found to be
significant under California Register of
Historic Resources
1095 Rollins Rd 150 MND – required rezoning and General
Plan Amendment
1855-1881 Rollins Rd 420 Class 32 Infill Exemption
Source: Burlingame Community Development Department, 2022
Permit Streamlining Act
State regulations require environmental review of discretionary project proposals (e.g., use
permits, variances, subdivision maps, etc.). The timeframes associated with environmental
review are regulated by CEQA. When an application is submitted to the Planning Division, City
Staff reviews the proposed project using a checklist to determine whether a complete
application was provided. If the application is determined to be incomplete, plan review
comments are provided to the applicant in writing within 30 days of submittal. If deemed
complete and in compliance with the Permit Streamlining Act, City staff ensures that non-
legislative proposals are heard at the Planning Commission within 60 days of receipt of an
application.
Within the last several years, Staff has diligently explored ways to streamline the review process
for all applications received. In the past, Staff assumed preparation of a Mitigated Negative
Declaration or Environmental Impact Report for multi-unit and mixed-use residential projects,
adding approximately nine months to a year or more of processing time, which posed a
constraint to the production of housing. However, Staff now first considers using a Class 32 Infill
Exemption or Section 15183 streamlined review exemption which has reduced the processing
time to approximately six months, a considerable reduction in the processing time.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 80
The Housing Accountability Act requires cities to review housing development projects
objectively; these projects cannot be denied, nor the density reduced, if the project complies
with the City’s objective standards. The Planning Commission are advised regularly of this
requirement and limits their review to objective design and development standards for any
housing development project to provide predictability in the development review process and
to confirm that any subjective findings are not a constraint to housing development projects.
Through this effort, the City has streamlined the approval of several large housing projects
throughout Burlingame.
Plan Check
The City of Burlingame offers a parallel plan check process which allows applicants by their
choice to submit construction plans to the Building Division while they are simultaneously going
through the zoning review process. The intent of providing this option is to expedite the review
process and shorten the timeframe between approval of planning entitlements and
construction. However, there is a risk involved with this process in that construction documents
and engineering and structural calculations may be required to be revised should there be
changes to the project during review by the Planning Commission. Additional plan check fees
are charged for revised plans. There is a 20-day performance standard for Planning Division
review of building permit applications.
Comparison with Other Jurisdictions
Table HE-19 on the following page summarizes the permit processing times for various
categories of housing. As shown in the table, Burlingame permit processing times are
comparable to other San Mateo County jurisdictions in all categories.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 81
Table HE-19: Permit Processing Times (in months)
ADU
Process
Ministerial
By-Right
Discretionary
By-Right
Discretionary
(Hearing
Officer if
Applicable)
Discretionary
(Planning
Commission)
Discretionary
(City
Council)
Atherton 1 to 2 1 to 3 2 to 4 N/A 2 to 4 2 to 6
Brisbane 1 to 2 2 to 6 N/A N/A 4 to 12 6 to 14
Burlingame 1 to 2 2 to 3 2 to 3 N/A 3-4 standard
project; 12
major project
13 months
Colma 1 to 2 1 to 2 1 to 3 2 to 4 N/A 4 to 8
Daly City 1 to 2 2 to 4 N/A N/A 4 to 8 8 to 12
East Palo Alto 1 to 3 8 to 12 6 to 14 20 to 40 20 to 40 20 to 40
Foster City 1 to 2 1 to 2 1 to 2
3 to 6 6 to 12
Half Moon
Bay
1 to 2 2 to 4 3 to 6 4 to 12 6 to 15
Hillsborough - - - - - -
Millbrae 0 to 2 3 to 6 1 to 3 3 to 8 3 to 8 4 to 9
Pacifica 1 to 2 2 to 3 4 to 5 5 to 6 5 to 6 7 to 8
Redwood City 2 to 3 3 to 4 N/A 8 to 10 12 to 18 18 to 24
San Bruno 2 3 to 6 N/A 3 to 6 9 to 24 9 to 24
San Mateo 4 to 8 1 to 2 4 to 7 N/A 9 to 12 9 to 13
South San
Francisco 1 1 2 to 3 2 to 3 3 to 6 6 to 9
Unincorp. San
Mateo 1 to 3 3 to 6 4 to 9 6 to 12 6 to 18 9 to 24
Woodside 1 to 2 1 to 2 N/A N/A 2 to 6 3 to 8
Source: 21 Elements, 2022
Public Works
Since Burlingame operates its own wastewater treatment plant, and it must meet the operating
requirements of the San Francisco Region Water Quality Control Board, it is a part of the City’s
permit that a sewer lateral test be completed prior to the sale of a house that is 25 years old or
older and before renovations occur where two or more plumbing fixtures are added. Typically
these tests cost $468, in addition to any repairs or line replacement required.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 82
Coastal Zone Requirements
A portion of Burlingame is adjacent to the San Francisco Bay, which is considered part of the
State of California’s Coastal Zone. The San Francisco Bay Conservation and Development
Commission (BCDC) has authority over the portion of the Coastal Zone which is adjacent to San
Francisco Bay.
The area along Burlingame’s San Francisco Bay frontage is zoned BFC, which allows
development of hotels, offices, restaurants and commercial recreational uses but does not allow
residential uses. Therefore there is no housing allowed within the area that falls within BCDC’s
jurisdiction.
Constraints to Housing for Persons with Disabilities
Existing Regulations
Building Code
The City of Burlingame has adopted the California Building Code and Uniform Fire Code, 2022
Editions for reviewing construction plans. Burlingame has adopted amendments to the
California Building Code which relate to the appeals procedure and requirements for lighted
street addresses, roof covering, drainage, reroofing, retaining walls, slab thickness, bracing
framed walls and suspended ceiling upgrades. None of these amendments would impact
additions of accessibility features to a home or upgrades required for a group home.
Building code regulations are established to provide minimum health and safety standards for
structures. These minimum standards for occupancy and exiting must be met for any group
home occupancy in a single family residence. The Building Code and Federal ADA standards
require that certain accessibility amenities for persons with disabilities be included in new
construction and improvements to property.
Zoning Code
Per State law, the Burlingame zoning ordinance allows licensed care facilities, including group
homes with up to six residents, by right in all residential zoning districts. Since these facilities are
considered a “single housekeeping unit”, no additional parking is required for this use, the
group home only needs to meet the parking requirement for a single family home (one or two
covered and one uncovered parking space, depending on the number of bedrooms). There are
no City restrictions on the distance between two (or more) group homes. The City does not
have occupancy standards that apply to unrelated adults and are not required of families. The
maximum occupancy for a residential use is based on the safety requirements of the fire and
building codes. Currently, group homes of seven or more persons would be considered a
residential care facility, which is allowed with a conditional use permit in the R-3, R-4, CMU,
RRMU, NBMU, BMU, CAR, HMU, and MMU districts. They are not allowed in the low and
medium density districts (R-1 and R-2). In order to provide additional housing choices for
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 83
persons with disabilities, Program D-2 has been included to add specific definitions of group
homes and amend the land use provisions to allow group homes by right in all districts allowing
residential uses.
Group residential facilities for the elderly are allowed in the RRMU, NBMU, BMU, HMU, and
MMU zoning districts with a conditional use permit. Parking for group residential facilities is
required at the rate of one parking space per 3.5 beds.
Communal Housing (including Rooming and Boarding Houses) are also allowed as a permitted
use in the R-3, R-4, CMU, BRMU, RRMU, NBMU districts, and as a conditional use in the BMU,
CAR, HMU, and MMU districts; they have a parking requirement of one space Per 1.5
occupants, or 1.5 spaces per bedroom, whichever is greater.
All residential zoning districts require building setbacks from property lines and are limited in
the area of the lot that can be covered by structures. Generally, all structures over 30 inches
high, including the portions of such ramps which are over 30 inches above grade, are subject to
setback and lot coverage requirements. At least a portion of ramps and landings installed to
provide access for the disabled are over 30 inches high and would be required to meet the lot
coverage and setback requirements.
Pursuant to Government Code Section 65583 (a)(5), the zoning code has provisions which allow
supportive and transitional housing by-right as a residential use, and only subject to those
restrictions that apply to other residential uses of the same type in the same zoning district.
Supportive housing is defined as housing occupied by a target population, with no limit on
length of stay, that is linked to on-site or off-site services that assist the supportive housing
resident(s) in retaining the housing, improving their health status, and maximizing their ability to
live and, when possible, work in the community. A target population means persons with low
incomes having one or more disabilities, including mental illness, HIV or AIDS, substance abuse,
or other chronic health conditions, or individuals eligible for services provided under the
Lanterman Developmental Disabilities Services Act (Welfare and Institutions [W&I] Code Section
4500) and may include—among other populations—adults, emancipated youth, families,
families with children, elderly persons, young adults aging out of the foster care system,
individuals exiting from institutional settings, veterans, and homeless people. Supportive
housing may be designed as a residential group living facility or as a regular residential use and
includes both facilities that provide on-site and off-site services.
Opportunities to Remove Constraints to Housing for Persons with Disabilities
To improve the options for housing for persons with disabilities, Burlingame has adopted a
Reasonable Accommodation for Accessibility procedure as a part of the zoning code. This
allows a person with a disability to request modifications to zoning standards in order to install
physical improvements to a residence to accommodate the person’s disability. These
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 84
improvements would include such improvements as ramps, walls, handrails, as well as elevators
or lifts. This is an administrative procedure, subject to meeting the criteria outlined in the
zoning code chapter.
Non-Governmental Constraints
Environmental
Geotechnical/Noise
The topography in Burlingame goes from the waters of San Francisco Bay to the coastal range
foothills. Four creeks drain from the coastal range, through the city, to the bay. In Burlingame
the face of the coastal range is divided into large-lot single-family dwellings. Due to the steep
slopes and shallow underground streams, some areas are vulnerable to landslides during the
wet weather. The hillside area is divided into larger lots (10,000 SF minimum). Developments on
these lots require additional seismic and structural engineering features. The flat land areas in
Burlingame are subject to a high water table and, in some areas to short term flooding. These
constraints increase the cost of building housing in some areas.
Certain areas of the city are also subject to high noise levels. These areas include sites close to
US 101, the Caltrain rail line, and areas subject to over flight from planes departing San
Francisco International Airport. A larger area of the flat land and upward sloping area at the
north end of the city are also subject to back blasts (low frequency) noise from departing
airplanes. Housing development in these areas will require noise mitigation, which also adds to
increased housing costs. It should be noted that due to advance technology in airplane design,
noise impacts from the airport have decreased.
Land and Construction Costs
Housing and land costs within San Mateo County have dramatically increased in recent
decades. This is due in large part to the rapid growth of high-technology and life sciences
businesses in the Bay Area region, particularly on the San Francisco Peninsula. The increase in
the employment and housing demand has been more dramatic than any time in the past twenty
years, with housing costs rising much faster than household income levels.
In general lots are small in Burlingame with the typical lot between 5000 and 6000 SF. There are
fewer than 30 acres of vacant undeveloped land in the city, and most new development will
occur by re-use of already developed land. For single family construction, it has become
common practice to see proposals that include the demolition of an existing single family
dwelling and reconstruction of a larger single family dwelling on the lot, often with a new ADU
included. Many of these proposals are made by developers who intend to market these homes
on the high-end real estate market. For multifamily construction, larger proposals typically
involve the replacement of older commercial, office or industrial buildings with new apartments
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 85
or condominiums; smaller proposals often involve the replacement of single family homes or
small apartment buildings with larger apartment or condominium buildings.
The cost of construction for residential development has dramatically increased in recent
decades as well. Per a cost analysis prepared for 21 Elements in 2022, the hard costs for single
family construction (both a hypothetical 2,600 and 5,000 sf house) are around $420 per square
foot for the smaller prototype, and assuming higher finishes, $525 for the larger one. The hard
costs for multifamily construction are around $522 per square foot for a smaller project (10 units)
and $522 for the smaller prototype and $517 for larger projects (100 units).
Soft costs are generally assumed to be around 30% of hard costs (plus 5% contingency). In the
21 Elements analysis, single family soft costs per square foot were $133 for the smaller 2,600
square foot prototype) and $147 per square foot for the larger 5,000 square foot prototype. For
multifamily, the cost per square foot was $165 for the smaller 10-unit prototype, and $159 per
square foot for the larger 100-unit prototype.
Financing and Affordability
In San Mateo County “affordable” housing is defined as that with a contract rent or price
affordable to low and moderate income households, based upon rent not exceeding 30% of
monthly income and monthly mortgage payment not exceeding 33% of gross monthly income.
According to the San Mateo County Association of Realtors, the average sales price in 2020 for
a single family detached home in San Mateo County was $2,153,231 (compared to $934,860 in
2010). The average price in 2020 for a condominium in San Mateo County was $999,107
(compared to $449,467 in 2010). In Burlingame, the average price for a single family detached
home in Burlingame in 2020 was $2,734,651 (compared to $1,550,000 in 2010). The average sales
price in 2020 for a condominium in Burlingame was $1,240,393 (compared to $548,341 in 2010).
And where 52 percent of the housing stock is multifamily units, the average monthly rent in
Burlingame was $2,120 in 2019, up from $1,563 in 2009.
In recent years, the prevailing mortgage interest rate for a 30-year fixed loans was historically
low. While mortgage rates have increased in 2022 and 2023 to the range of 7-8 percent as a
means to control inflation, from a historical perspective rates are still low compared to 18.8
percent in 1982. However, financing may be more difficult to secure now than it was five years
ago, particularly for low- and moderate-income buyers, and higher interest rates increase
overall costs. However, assuming inflation is reduced, mortgage rates are likely to be reduced in
coming years.
As prices and mortgage rates for market-rate housing increase, the subsidies to bridge the
amount a household can afford to pay and the market price of the unit have become very high.
As a result, substantial financial subsidies, often from multiple funding sources, are required to
finance the construction of affordable housing; however, only a few affordable housing
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 86
developers can assemble multiple funding sources and have experience in complying with the
complex regulatory requirements governing the use of various funding programs.
Increases in lending rates also impacts the viability of new housing construction. Fortunately
given the strength of the housing market in Burlingame, both market rate and affordable
housing projects are continuing to proceed to construction. In 2023 projects consisting of new
800 units have broken ground in Burlingame.
Property owners pursuing improvements or rehabilitation of their properties may utilize home
equity loans, lines of credit, or mortgage refinancing as means to fund projects. Interest rates
for home equity loans and lines of credit tend to be higher than conventional mortgages, and
vary by the amount and duration of the borrowing. Refinancing a mortgage can also result in an
increased cost of borrowing if the existing mortgage was fixed at a lower interest rate than
currently available mortgages. Conversely, if mortgage rates fall, owners may be able to
refinance and lower their borrowing costs, and/or access equity at a lower expense.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 87
C hapter 6
C ommunity Resources and Opportunities
Legislative Context for the Housing Element’s Inventory of Sites
Per State law, the State of California, in conjunction with Association of Bay Area Governments
(ABAG), has projected future population figures for the nine Bay Areas counties which translates
into the need for additional housing units. Each jurisdiction is then assigned a portion of the
regional need based on factors such as growth of population and adjusted by factors including
proximity to jobs, and high resource areas that have excellent access to amenities such as good
school and employment centers. This assignment is known as the Regional Housing Needs
Allocation (RHNA). Each jurisdiction must ensure that there is enough land at appropriate
zoning densities to accommodate its RHNA in its Housing Element in four income categories
(very low-, low-, moderate- and above moderate-income). The RHNA for City of Burlingame for
the Housing Element 2023-2031 is 3,257 units, which are broken down by income category in
Table HE-20.
Table HE-20: Burlingame RHNA Targets Summary
Income
Category
Very Low
50% AMI
Low
80% AMI
Moderate
120% AMI
Above
Market Rate Total
2023-31
Allocation 863 497 529 1,368 3,257
Table Source: Housing Element Cycle 6 RHNA Allocation
A key component of the Housing Element is a projection of a jurisdiction’s housing supply.
State law requires that the element identify adequate sites for housing, including rental
housing, factory-built housing, and mobile homes, and make adequate provision for the
existing and projected needs of all economic segments of the community. This sites list is
required to include an inventory of land suitable for residential development, including vacant
sites and sites having potential for redevelopment, including analysis of the development
capacity that can realistically be achieved for each site.
The purpose of the Sites Inventory is to evaluate whether there are sufficient sites with
appropriate zoning to meet the RHNA goal. It is based on the City’s current land use
designations and zoning requirements. The analysis does not include the economic feasibility of
specific sites, nor does it take into consideration the owner’s intended use of the land now or in
the future. It does not dictate where residential development will actually occur, and the
decision whether or not to develop any particular site always remains with the owner of the
property, not the City. Based on previous Housing Elements, the City Anticipates that some of
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 88
the sites on the list will be developed with new housing, some will not, and some housing will
be built on sites not listed in the inventory.
The Sites Inventory is further outlined below, with a breakdown of the units in Table HE -24. The
complete Sites Inventory is included as Appendix D.
A number of new housing laws have significantly changed how a sites inventory is developed,
introducing changes to the following components of the site inventory:
Design and development of the site inventory (SB 6, 2019)
Requirements in the site inventory table (AB 1397, 2017 and AB 1486, 2019)
Capacity calculation (AB 1397, 2017)
Infrastructure requirements (AB 1397, 2017)
Suitability of nonvacant sites (AB 1397, 2017)
Size of site requirements (AB 1397, 2017)
Locational requirements of identified sites (AB 686, 2018)
Sites identified in previous housing elements (AB 1397, 2017)
Non-vacant site replacement unit requirements (AB 1397, 2017)
Rezone program requirements (AB 1397, 2017)
Site Inventory Methodology
City staff inventoried vacant and underutilized parcels in Burlingame to determine what land is
available for development at various levels of density. Types of sites included:
Vacant sites zoned for residential use.
Vacant sites zoned for nonresidential use that allow residential development.
Residentially zoned sites, including non-residentially zoned sites with a residential overlay,
that are capable of being developed at a higher density (non-vacant sites, including
underutilized sites).
Sites owned or leased by a city, county, or city and county.
The number of units that might be able to be developed at various affordability levels was then
estimated, e.g., available land zoned at higher densities can be counted toward the very low-
and low-income level needs, and land zoned at lower densities are counted toward the
moderate and above moderate-income housing need. The analysis was then completed using
the actual average residential densities for developments built on land with various zoning
designations over the past five years.
The City of Burlingame’s Sites Inventory for future housing includes property zoned for
multifamily use that is currently vacant as well as land that is severely underutilized. Sites that
are zoned commercial or office but allow residential uses were included. As seen in Table HE-
33, the adequate sites analysis demonstrates that there is enough land to meet the City’s
RHNA. The analysis for affordable housing units for extremely low, very low, and low-income
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 89
households is based on the assumption that land zoned at densities higher than 30 units to the
acre can facilitate affordable housing development, given the City’s affordable housing
requirements of 10%. More than 50% of the City’s below market rate housing would be
developed on lands that are underutilized. However, the city is experiencing a high volume of
residential and mixed-use development projects looking to revitalize these sites and seeking
density bonus and other incentives to achieve higher density residential development.
Site Inventory Approach
Staff conducted a site-by-site review of all potential development sites, citywide. As will be
demonstrated below, staff currently believes that the RHNA, plus a reasonable buffer, can be
accommodated within the existing zoning densities.
Zoned Versus Realistic Capacity
When establishing realistic unit capacity calculations, the jurisdiction must consider current
development trends of existing or approved residential developments at a similar affordability
level in that jurisdiction, as well as the cumulative impact of standards such as maximum lot
coverage, height, open space, parking, and floor area ratios. The capacity methodology must
be adjusted to account for any limitation as a result of availability and accessibility of sufficient
water, sewer, and dry utilities. For non-residential zoned sites (i.e., mixed-use areas or
commercial sites that allow residential development), the capacity methodology must account
for the likelihood of residential development on these sites. While a site may be zoned to
accommodate, for example, 100 units, site constraints or other development standards that may
preclude development to the full 100 units need to be considered.
Since the certification of the last Housing Element, a series of new laws have been implemented
that make it easier for developers to use the State density bonus provisions by providing a
certain percentage of units in proposed developments as affordable. As a result, many
developers are taking advantage of the additional density offered, which has resulted in
significant changes to the realistic capacity for development. The following table illustrates that
during the past Housing Element cycle, from 2015-2022, a number of residential development
projects have been proposed and/or approved at densities even above 100% of zoned density.
Although the State has specifically stated that cities cannot rely on density bonuses alone to
calculate capacity (primarily because use of the density bonus is optional), cities can use up to
100% of zoned density as the realistic capacity as long as the city can demonstrate that as-built
densities are consistently above zoned density.
The following sections provide an overview of the approved densities for key planning areas in
Burlingame, and through the analysis of the approved densities identifies the density
assumptions used in the sites inventory for each planning area. The analysis also indicates that
while some development projects were approved at densities lower than the maximum density
allowed (or in the case of Downtown, assumed density), a greater number of projects were
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 90
approved and built at densities greater than the maximum by utilizing density bonus provisions.
The denser projects more than made up for the shortfalls from the less dense projects.
Downtown Specific Plan
The Burlingame Downtown Specific Plan was adopted in 2010. Given the proximity of
Downtown to the Burlingame rail station, an objective of the Specific Plan has been to create
opportunities for carefully located, more intense development projects that take advantage of
easy transit access, and that respond to the desire of existing and prospective new residents to
live in a walkable environment with ample services. The specific plan has a strong emphasis on
developing new housing, including a “form-based” development framework that has no
maximum residential density standards. However because there are no density standards, the
sites inventory assumptions must consider the actual densities of projects that have been
approved. Table HE-21 on the next page provides an overview of the residential development
projects that have been approved in the downtown area since 2015.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 91
Table HE-21: 2015-2022 Downtown Specific Plan Project Densities
Address Acres Number of Units Units per Acre
920 Bayswater Ave 1.20 128 107
1418 Bellevue Ave 0.22 15 70
601 California Dr 0.24 25 106
619-625 California Dr 0.45 44 99
1214 Donnelly Ave 0.36 14 39
1128-32 Douglas Ave 0.36 27 76
556 El Camino Real 0.35 21 61
1433 Floribunda Ave 0.21 8 38
128 Lorton Ave 0.17 19 110
1491-93 Oak Grove Ave 0.20 10 50
21 Park Rd 0.35 7 35
150 Park Rd 0.69 132 192
Average Units per Acre 93
Source: Burlingame Community Development Department, 2022
The twelve projects approved in the downtown area comprise 450 units across a total of 4.8
acres of development area, for a density of 93.75 units per acre across the sites. To be
conservative, the sites inventory assumes a density of 90 units per acre for sites within the
Downtown Specific Plan area.
Table HE-22 on the following page evaluates a 80 units per acre assumption against the actual
densities requested and approved for the projects. While four of the projects received a density
bonus, which provided for 148 affordable units (82 affordable to Very Low Income households,
35 affordable to Low Income households, 31 affordable to Moderate Income households) there
are no density requirements in the Downtown Specific Plan Area, so this analysis is null. When
looking at twelve projects developed over the 5th cycle planning period, the average density
was 94 units per acre. Of the twelve projects approved in the downtown area, seven were
approved with densities less than 80 units per acre. However, the five approved with densities
greater than 80 units per acre, were significantly higher, at 104, 107, 112, and 191 unit per acre.
Based on this, the city assumes 80 units per acre is a conservative density to assume.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 92
Table HE-22: 2015-2022 Downtown Specific Plan Unit Yields
Address Acres
Project Built
Density
(units/acre)
Units in Project Unit Count at 80
Units per Acre
920 Bayswater Ave 1.20 107 128 96
1418 Bellevue Ave 0.22 68 15 17
601 California Dr 0.24 104 25 19
619-625 California Dr 0.45 98 44 35
1214 Donnelly Ave 0.36 39 14 28
1128-32 Douglas Ave 0.36 75 27 28
556 El Camino Real 0.35 60 21 27
1433 Floribunda Ave 0.21 38 8 16
128 Lorton Ave 0.17 112 19 13
1491-93 Oak Grove Ave 0.20 50 10 16
21 Park Rd 0.35 20 7 27
150 Park Rd 0.69 191 132 54
Totals 4.8 94 unit/acre
average 450 377
Source: Burlingame Community Development Department, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 93
North Rollins Road Mixed Use Area
The North Rollins Road area has historically been a light industrial area, but the 2019 General
Plan Update established a live/work land use for the northern portion of the corridor. The area is
within proximity of the Millbrae multimodal transit station, and the intention is to establish a
new neighborhood of medium- and high-density creative live/work and residential units. The
General Plan envisions creation of a complete new neighborhood, where residents and creative
businesses have ready access to transit, supportive commercial businesses, and public and
private open space amenities. The maximum residential density is 70 units per acre. Since the
General Plan Update, three mixed use residential projects have been approved, as shown in
Table HE-23 on the following page.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 94
Table HE-23: 2019-2022 North Rollins Road Mixed Use Project Densities
Address Acres
Number of
Units in
Project
Built Density
(Units/ Acre
Number of
units prior to
Density
Bonus
Built Density
w/out
Density
Bonus Units
(units/acre)
1 Adrian Ct 2.83 265 94 198 70
30 Ingold Rd 3.20 298 93 224 70
1855-1881 Rollins Rd 4.98 420 84 349 70
Average Units per
Acre 89 70
Source: Burlingame Community Development Department, 2022
The three projects approved in the North Rollins Road area comprise 983 units across a total of
11 acres of development area, for a density of 89 units per acre across the sites. The average is
higher than the maximum density of 70 units per acre, as a result of developers taking
advantage of the additional density allowed through density bonuses. Although the State has
specifically stated that cities cannot rely on density bonuses alone to calculate capacity
(primarily because use of the density bonus is optional), cities can use up to 100% of zoned
density as the realistic capacity as long as the city can demonstrate that as-built densities are
consistently above zoned density. Given the average density of approved projects within the
North Rollins Road area exceeds the maximum density, the sites inventory assumes the
maximum 70 units per acre for residential sites within the North Rollins Road Mixed Use area.
Table HE-24 on the next page evaluates the 70 units per acre assumption against the actual
densities requested and approved for the projects. Of the three projects approved in the North
Rollins Road Mixed Use area, all were approved with densities greater than the maximum 70
units per acre specified in the zoning, due to use of density bonus, which provided for 116 units
affordable to Low-income households. There were no applications for projects at densities
lower than the 70 unit per acre figure.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 95
Table HE-24: 2019-2022 North Rollins Road Mixed Use Unit Yields
Address Acres
Project
Built
Density
(Units/
Acre
Units in
Project
Units in
Project w/out
Density
Bonus Units
Unit Count
at 70 Units
per Acre
1 Adrian Ct 2.83 94 265 198 198
30 Ingold Rd 3.20 93 298 224 224
1855-1881 Rollins Rd 4.98 84 420 349 349
Totals 11.01 89 983 771 771
Source: Burlingame Community Development Department, 2022
North Burlingame Mixed Use Area
The North Burlingame Mixed Use Area has the highest residential densities in Burlingame given
the proximity to the Millbrae multimodal transit station. Residential densities were significantly
increased in 2019 through the updated General Plan and Zoning Ordinance, allowing a
maximum residential density of 135 units per acre. Table HE-25 on the following page provides
an overview of the residential development projects that have been approved since the General
Plan was updated in 2019.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 96
Table HE-25: 2019-2022 North Burlingame Mixed Use Project Densities
Address Acres Number
of Units Units per Acre
Units in Project
w/out Density
Bonus Units
Built Density
w/out
Density
Bonus Units
(units/acre)
1875 California Dr 0.36 69 192 50 139
1766 El Camino Real 1.70 311 183 238 140
1870 El Camino Real 1.15 169 147 161 140
1814-20 Ogden Dr 0.76 90 118 90 118
1868 Ogden Dr 0.90 120 133 120 133
Average Units per
Acre 156 135
Source: Burlingame Community Development Department, 2022
The five projects approved in the North Burlingame area comprise 759 units across a total of
4.87 acres of development area, for a density of 156 units per acre across the sites including
density bonus units. Excluding density bonus units the average density was 135 units per acre.
The average with density bonus units included is slightly higher than the maximum density of
140 units per acre, and slightly lower excluding the density bonus units. Through density bonus
this provided for 108 affordable units (91 affordable to Low and Very Low Income households,
17 affordable to Moderate Income households). While the City assumes the higher density will
most likely develop, the city has assumed the 135 units per acre to determine the units per acre
for sites in the North Burlingame area.
Table HE-26 on the next page further evaluates the 135 units per acre assumption against the
actual densities requested and approved for the projects. Of the five projects approved in the
North Burlingame Mixed Use area, only two were approved with densities less than 135 units
per acre, and three were approved with densities greater than 140 units per acre by utilizing
density bonuses. While the City believes projects in the North Burlingame Mixed Use Project
area will build at 140 units per acre or higher, to be conservative, the City has assumed 135 units
per acre when determining capacity.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 97
Table HE-26: 2019-2022 North Burlingame Mixed Use Project Unit Yields
Address Acres Units in Project
Units in Project
w/out Density
Bonus Units
Units at 135
Units per Acre
1875 California Dr 0.36 69 50 49
1766 El Camino Real 1.70 311 238 230
1870 El Camino Real 1.15 169 161 155
1814-20 Ogden Dr 0.76 90 90 103
1868 Ogden Dr 0.90 120 120 122
Totals 4.87 759 659 657
Source: Burlingame Community Development Department, 2022
Realistic Capacity of Mixed Use Sites
When establishing realistic unit capacity calculations, the calculation must also be adjusted to
reflect the realistic potential for residential development capacity on the sites in the inventory.
Specifically, when the site has the potential to be developed with nonresidential uses, requires
redevelopment, or has an overlay zone allowing the underlying zoning to be utilized for
residential units, these capacity limits must be reflected in the housing element. Factors used to
make this adjustment may include considerations such as market demand, local or regional
residential development trends in comparable mixed-use zoning districts, past production
trends, and net unit increases/yields for redeveloping sites or site intensification.
The estimate may be based on the rate at which similar parcels were developed during the
previous planning period. Table HE-27 on the next page provides an overview of all residential
projects approved during the previous housing element cycle in which either commercial,
industrial, or residential uses were allowed. Table HE-28 on page HE-99 provides an overview of
all nonresidential (commercial and industrial) projects approved during the previous housing
element cycle in which either commercial, industrial, or residential uses were allowed. (These
tables do not include development projects in residential zones in which commercial uses are
not allowed, nor development projects in commercial zones in which residential uses are not
allowed.)
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 98
Table HE-27: 2015-2023 Residential Projects in Mixed Use Districts
Address Zoning
District Site Area Number of Units
Allowed
Number of
Units Approved
1 Adrian Ct RRMU 2.83 198 265
920 Bayswater Ave MMU 1.20 no density max 128
601 California Dr C-2 0.24 no density max 25
619-625 California Dr C-2 0.45 no density max 44
1875 California Dr NBMU 0.36 50 69
1008-1028 Carolan Ave C-2 5.40 no density max 269
1214 Donnelly Ave¹ DMU 0.26 no density max 32
1766 El Camino Real NBMU 1.70 238 311
1870 El Camino Real NBMU 1.15 161 169
30 Ingold Rd RRMU 3.20 224 298
128 Lorton Ave HMU 0.17 no density max 19
1814-20 Ogden Dr NBMU 0.76 106 90
1868 Ogden Dr NBMU 0.90 126 120
21 Park Rd BMU 0.35 no density max 7
150 Park Rd HMU 0.69 no density max 132
1095 Rollins Rd C-1 1.08 no density max 150
1855-1881 Rollins Rd RRMU 4.98 349 420
Total Acreage
Residential 25.72 2,548
1 Mixed use residential/commercial project with 0.36 total site area. Residential floor area is 73% of building
area. Prorated site area = 0.36 acres * 0.73 = 0.26 acres.
Source: Burlingame Community Development Department, 2022
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Table HE-28: 2015-2023 Nonresidential Projects in Mixed Use Districts
Address Zoning
District
Site Area Floor Area
(square feet)
225 California Dr HMU 0.40 46,420
250 California Dr CAR 0.26 33,845
1214 Donnelly Ave¹ DMU 0.10 4,704
988 Howard Ave MMU 0.35 23,550
240 Lorton Ave HMU 0.16 15,176
220 Park Road HMU 1.26 152,340
Total Acreage Nonresidential 2.53 276,035
1 Mixed use residential/commercial project with 0.36 total site area. Commercial floor area is 27% of
building area. Prorated site area = 0.36 acres * 0.27 = 0.10 acres.
Source: Burlingame Community Development Department, 2022
Tables HE-27 and HE-28 indicate that between 2015 and 2022, projects totaling 28.25 acres in
site area were approved in mixed use districts which a developer could develop either
residential uses and/or nonresidential uses. Of that total, 25.72 acres (91% of the total) were
approved as residential projects, and 2.53 acres (9%) were approved as nonresidential projects.
(One project was approved that included 73% residential area and 27% nonresidential.)
For this analysis, the total acreage of development was evaluated rather than the number of
projects, so that project size is properly weighted. In total there were 23 projects located in
commercial and mixed-use zones, with 17 projects developed with residential uses and six
developed with commercial uses. The larger projects were more often developed with
residential uses, whereas all commercial projects except for one were developed on sites
smaller than 0.5 acres. Typically sites smaller than 0.5 acres are presumed to not be suitable for
lower income housing development, and for this reason the Housing Element is not relying on
lots smaller than 0.5 acres to meet the RHNA.
If the analysis is further focused to only evaluate projects greater than 0.5 acres (consistent with
the approach in the Sites Inventory), there were 11 projects developed with residential uses
(comprising a total of 23.89 acres), and one project developed with commercial uses
(comprising a total of 1.26 acres).
This data reflects the market strength of residential development in Burlingame relative to
commercial and office development, as documented in the Economics and Market Demand
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chapter of the General Plan Existing Conditions Report.5 Furthermore, while in recent years
Burlingame has been experiencing strong development demand in the high-value life sciences
sector, life science development of any significant scale is not allowed in the mixed use districts
that allow residential uses. This was a deliberate approach to situating land uses in the General
Plan, so that high-value life science development would not compete with and outbid
residential development.
This data would suggest that of the Key Vacant/Nonvacant Sites located in mixed use zones
where either residential or nonresidential uses are allowed, have a high likelihood to l develop
with residential uses. Therefore, the Sites Inventory assumes 85% of Key Vacant/Nonvacant Sites
would be developed with residential uses, which still provides a buffer and allows for modest
changes in the residential and nonresidential development markets.
Identification of Sites for Affordable Housing
Sites on the Inventory must also be classified as suitable for various income levels including very
low, low, moderate and above moderate. Several housing laws impact how sites are selected for
inclusion by income category. In general, sites less than 0.5 acres cannot be considered as
available for lower income development unless the jurisdiction demonstrates that it has a track
record of affordable developments at this size of lot.
While Burlingame has a history of approving residential projects on small lots, the City is not
relying on lots smaller than 0.5 acres to meet the RHNA.
Sites larger than 10 acres are generally considered unavailable for affordable housing, unless
the Housing Element can demonstrate a track record for developing such sites of this size, or
the city can demonstrate it is otherwise feasible to develop affordable housing. There are no
sites in the inventory larger than 10 acres, including those where lot consolidation could be
anticipated. The new requirements for Affirmatively Further Fair Housing (AFFH; AB 686) dictate
that the city avoid, to the extent possible, the location of potential affordable housing in the
inventory in a manner that would exacerbate existing concentrations of poverty, as well as
contribute to increasing the number of lower-income households in lower-income
neighborhoods. The city must also consider locating housing away from environmental
constraints such as sea level rise, and near areas of higher or highest opportunities, including
quality schools, parks, and educational opportunities.
5https://www.burlingame.org/document_center/Planning/General%20and%20Specific%20Plans/Ch%203%20Burlinga
me_ECR_Final%20Draft_ECONOMICS.pdf
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The State indicates that jurisdictions consider the following factors when determining the best
locations for affordable housing.
Proximity to transit
Access to high performing schools and jobs
Access to amenities, such as parks and services
Access to health care facilities and grocery stores
Locational scoring criteria for Low-income Housing Tax Credit (TCAC) Program funding
Proximity to available infrastructure and utilities
Sites that do not require environmental mitigation
Presence of development streamlining processes, environmental exemptions, and other
development incentives
The following section provides further analysis of the Sites Inventory as the sites relate to the
factors identified by the State to be considered when determining the best locations for
affordable housing:
Proximity to transit – All sites in the sites inventory are within ½ mile of regional rail and
bus. Sites located downtown are served by the Burlingame Caltrain station, Samtrans
Route ECR (providing service between Palo Alto and the Transbay Transit Center in San
Francisco, including express service), and Samtrans Route 292 (providing service between
San Mateo and the Transbay Transit Center). Sites located in the North Burlingame Mixed
Use and North Rollins Mixed Use areas are served by Caltrain and Bay Area Rapid Transit
(BART) at the Millbrae Intermodal Station, Samtrans Route ECR, and the Commute.org
shuttles providing free access to Bayfront employment centers.
Access to high performing schools and jobs – There is one school district (Burlingame
Elementary School District) serving all Burlingame neighborhoods for elementary and
middle schools, and one high school (Burlingame High School) serving all Burlingame high
school students. The academic performance of all Burlingame Elementary School District
schools is comparable, so students in any neighborhood have access to high performing
schools. All sites in the Sites Inventory are located within ½ mile of a neighborhood
school, with the exception of the North Rollins Road area which is located within 1 mile of
the closest neighborhood school.
Burlingame and the Peninsula offer a range of employment opportunities, including many
well-paying jobs. The high Area Median Income (AMI) of San Mateo County is attributable
to area being a center of high quality jobs. Sites in the Sites Inventory are in mixed use
areas with employment opportunities within walking distance – for example, the City’s
largest employer, Mills-Peninsula Medical Center, is within the North Burlingame Mixed
Use area. The numerous employers in the City’s Bayfront area are within close proximity,
accessible by free Commute.org shuttles.
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Access to amenities, such as parks and services – Burlingame has a well-developed park
system. All sites in the Sites Inventory have access to at least one (if not more)
neighborhood parks within ¼ mile. The newly developing North Rollins Road area
includes parks and open spaces being developed as part of new housing developments.
The sites in the Sites Inventory are located within mixed use areas which offer a range of
services. Downtown Burlingame is a regional draw for goods and services, and North
Burlingame and North Rollins Road are served by Burlingame Plaza and adjacent
commercial districts in Millbrae.
Access to health care facilities and grocery stores – The Mills-Peninsula Medical Center,
located in the North Burlingame Mixed Use area, is a 241-bed general acute care hospital
featuring 24-hour emergency care, all private patient rooms, and family sleeping
accommodations in all medical/surgical, obstetric, intensive care, and neonatal intensive
care rooms. The hospital is connected to a medical office building for physicians of the
Mills-Peninsula Physician Network.
Each site in the Sites Inventory is located within proximity of at least two grocery stores.
Sites located downtown are within ¼ - ½ mile of Safeway and Molly Stone’s grocery stores.
Sites located in the North Burlingame and North Rollins Mixed Use areas are within ¼ - ½
mile of Lunardi’s and Lucky’s grocery stores.
Locational scoring criteria for Low-income Housing Tax Credit (TCAC) Program
funding – All sites in the Sites Inventory are located in either “High Resource” or “Highest
Resource” areas, as indicated on the 2023 Tax Credit Allocation Committee (TCAC)
Opportunity Area Map.[1] This allows affordable housing developments to be highly
competitive for receiving Low-Income Tax Credits, thereby providing opportunities for
positive economic, educational, and health outcomes for low-income families.
Proximity to available infrastructure and utilities – Since the 1960s, the City of
Burlingame has been fully-developed with infrastructure and utilities available to all
properties. There is sufficient capacity to meet the current need and any future need. The
City’s Capital Improvement Plan (CIP) is aligned with the growth projections of the
General Plan.
Sites that do not require environmental mitigation – None of the sites in the Sites
Inventory have been identified on the Department of Toxic Substances Control Hazardous
Waste and Substances Sites (Cortese) List. As infills sites, the most extensive
environmental mitigation has been to remove decommissioned underground storage
tanks following established disposal protocols.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 103
Presence of development streamlining processes, environmental exemptions, and
other development incentives – The City’s design review process for multifamily
residential applications balances the obligation for public review with the need to review
applications in a timely manner per the Housing Accountability Act (HAA). Most
multifamily applications are reviewed through two public hearings, with the second
hearing to make the required environmental review findings. SB 35 applications are
reviewed ministerially, with no public hearings.
The City utilizes CEQA infill exemptions for residential projects wherever possible. The
Class 32 Categorical Exemption is the most common exemption that has been utilized for
residential projects. Projects submitted under SB 35 are exempt from environmental
review.
The Zoning Code Update adopted in 2021 established objective design and development
standards for all multifamily residential projects. Standards may be waived or modified
through use of the State Density Bonus. Additional incentives such as encouragement of
parcel consolidation will be adopted as part of the Housing Element implementation.
According to the 2023 map, Downtown and North Rollins Road Mixed Use, and North
Burlingame Mixed Use east of El Camino Real are designated “High Resource.” North
Burlingame Mixed Use west of El Camino Real is designated “Highest Resource.”6
Distribution of Units by Affordability
Consistent with State guidance, the distribution of units by income category fell into two types:
1. For sites in the pipeline, the actual proposed distribution of units by affordability was
included, with the exception of the Moderate Income category (see explanation in the
discussion of Pipeline Projects below).
2. For all other sites, the distribution of units by affordability is in the same proportion as
the RHNA allocation.
The State recommends using the proportion of units in the RHNA allocation as a guide for
allocating units among sites. This mathematical process is intended to demonstrate that there
are enough sites zoned at appropriate densities to accommodate all of the RHNA allocation,
rather than an assumption about where affordable units will actually be built. In part, this is
because the city does not determine specific sites for affordable housing, but rather reviews
and evaluates projects as they are proposed by outside developers.
6 https://belonging.berkeley.edu/2023-ctcac-hcd-opportunity-map
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 104
Table HE-29: RHNA Income Distribution
Income
Category
Very Low
50% AMI
Low
80% AMI
Moderate
120% AMI
Above
Market Rate Total
2023-31
Allocation 863 497 529 1,368 3,257
Percentage 27% 15% 16% 42% 100%
Source: Housing Element Cycle 6 RHNA Allocation
Thus, for a 1-acre site at 50 du/ac, the distribution would be as follows:
Table HE-30: Sample RHNA Income Distribution
Income
Category
Very Low
50% AMI
Low
80% AMI
Moderate
120% AMI
Above
Market Rate Total
1 acre site
50 du/ac 14 7 8 21 50
In addition, because of new rules in the Housing Accountability Act’s “No Net Loss” provisions
(SB 166 of 2017), the land inventory and site identification programs in the Housing Element
must always include sufficient sites to accommodate the unmet RHNA, in terms of the number
of housing units, as well as the level of affordability. When a site identified in the Element as
available for the development of housing to accommodate the lower‐income portion of the
RHNA is developed at a higher income level, the locality must either (1) identify and rezone, if
necessary, an adequate substitute site, or (2) demonstrate that the land inventory already
contains an adequate substitute site. By distributing units to sites according to the distribution
of the RHNA allocation – including above moderate income – it will be easier to ensure ongoing
compliance with the No Net Loss provisions.
Pipeline Projects
In addition to the sites potentially available for development or redevelopment, projects that
have been approved, permitted, or received a certificate of occupancy since the beginning of
the RHNA projected period may be credited toward meeting the RHNA allocation based on the
affordability and unit count of the development. For these projects, affordability is based on the
actual or projected sale prices, rent levels, or other mechanisms establishing affordability in the
planning period of the units within the project. These sites, summarized in Table HE-31 on the
next page and itemized in the Sites Inventory (Appendix D), will have received Certificate of
Occupancy (C of O) after June 30, 2022. If any of these projects do not continue, the
spreadsheet will be modified accordingly.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 105
Table HE-31: Summary of Pipeline Projects
Very Low
50% AMI
Low
80% AMI
Moderate
120% AMI
Above Market
Rate Total
253 234 97 2,224 2,808
Source: Burlingame Community Development Department, 2022
Accessory Dwelling Units
The State now allows jurisdictions to count projected development of accessory dwelling units
(ADUs) based on prior years’ production averages. Substantial changes in State law pertaining
to ADUs in the last several years have made it much easier for homeowners to create ADUs
throughout Burlingame. According to City records, building permits for 52 ADUs or JADUs were
issued in 2021, and permits for 21 ADUs or JADUs were issued in 2020, demonstrating increases
in their development over prior years, where an average 10 permits were issued each year. This
inventory includes a projection of 21 ADUs annually over the eight-year Housing Element
period, resulting in 168 new ADUs.
A study conducted by the Association of Bay Area Governments (ABAG) from September 2021
found that ADUs are rented at a variety of rates and often meet lower income affordability
requirements based on the incomes of the occupants and/or their rental rates. Based on these
findings, local jurisdictions are justified in using certain percentages to meet their affordable
housing allocations. Although the State has not yet officially approved the conclusions of the
study, it has agreed that jurisdictions can allocate ADUs towards a range of income levels.
The study’s recommended affordability breakdown that a Bay Area jurisdiction can use for
ADUs, which is as noted as being conservative, is 30% very low, 30% low, 30% moderate and
10% above moderate. Thus, the Sites Inventory will be using this affordability mix (30/30/30/10)
to estimate ADU affordability in Burlingame.
SB9 Small Multifamily Residential Projects
In 2021 the City Council was one of the first jurisdictions in California to fully adopt zoning
standards for two-unit residential development in compliance with Senate Bill 9 (SB-9) to allow
two detached or attached housing units on one single family parcel, together with ancillary uses
and structures. The two-unit residential standards apply to any property in the R-1 zoning
district. Per the Two-Unit Overlay in Code Section 25.20.080, a typical 6,000 square foot lot, can
accommodate one unit up to 3,020 square feet, two units up to 1,510 square feet each, or four
units up to 755 square feet each with a lot split. Variations would also allow ADUs.
The Two-Unit Overlay provides an opportunity to diversify housing opportunities in the R-1
zoning district. The development standards have been created to allow a range of unit sizes
that can accommodate a variety of households. However, given the recent adoption of the
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 106
regulations, and the lack of history of such developments, the housing projections for the
Housing Element do not include reliance on new units developed under SB9.
Publicly-Owned Sites
Two sites in the inventory are publicly-owned. 501 Primrose Road is the current site of the
Burlingame City Hall, which is an older building that has become functionally obsolete. The site
is zoned for high-density residential use. The City has contracted with an architecture firm and a
real estate consultant to prepare a plan for building a new city hall building on another city-
owned property. As part of the relocation of city hall, the existing city hall site will be made
available for residential development, consistent with its high density residential zoning
designation. Based on the City’s experience planning, designing, and building a new
community center, it is anticipated that the relocation of city hall and redevelopment of the
exiting site can be completed within the timeframe of the RHNA 6 cycle.
1500 Ralston Avenue is a city-owned parking lot. It is located across El Camino Real from
downtown, rather than in the downtown core, so has been identified as a candidate for housing
development. The sale of the property would be applied to the redevelopment of city hall, as
described above. The real estate consultant evaluating the city hall redevelopment is including
the 1500 Ralston Avenue site as a property to be leveraged. The site is zoned for medium-high
residential use, so would be required to be redeveloped with housing.
The two publicly owned sites are assumed to be redeveloped during the planning period. Each
site is subject to the Surplus Land Act, which would first make the sites available to nonprofit
housing developers, consistent with the objectives of the city to develop affordable housing. An
estimated timeline would be to formally declare the properties surplus in 2025, and if no
nonprofit housing developers submit successful bids an RFP would be issued in latter 2025.
Assuming a SB 35 project, review of entitlements and building permits would occur in 2026, and
construction would commence in 2027. Based on typical construction timelines, occupancy
would be anticipated in 2029. The City has included Program A-2 to monitor the progress of
these publicly owned sites over the planning period to ensure they are available within the
planning period.
Sites Inventory
Based on the methodology and approach outlined above, the Sites Inventory includes a range
of sites located citywide that could be developed to reach the RHNA target of 3,257 units.
To ensure that sufficient capacity exists in the housing element to accommodate the RHNA
throughout the planning period, the State recommends that the jurisdiction create a buffer in
the housing element inventory of at least 15 to 30 percent more capacity than required,
especially for capacity to accommodate the lower income RHNA. It is important to note that the
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 107
Housing Element does not assume significant housing production beyond the RHNA target of
3,257; the buffer is only to ensure that adequate sites are available should development projects
be built at lower densities than anticipated, and/or if entitled projects do not proceed to
construction.
The buffers range from 8% to 132% depending on income category. These buffers are likely
greater than what would be indicated by the track record of approvals and construction. Since
2015, the City of Burlingame has approved entitlements for 1,858 multifamily residential units,
consisting of 22 projects. Of those, 63.6% of the approved projects (14 of 22) submitted a
building permit application, representing 1,477 (93%) of the 1,858 approved residential units.
Generally the larger projects on the larger sites have been most likely to be constructed, hence
the high percentage of units relative to number of projects.
Table HE-32 provides a high-level summary of the sites listed on the Sites Inventory broken
down by income, including buffers. A map showing where each site is located within the city
and the housing opportunity areas is included in Appendix D.
Table HE-32: Sites Inventory Affordability Breakdown
Very Low Low Moderate Above Moderate Total Units
RHNA 863 497 529 1,368 3,257
Pipeline Projects 253 234 97 2,224 2,808
ADUs 50 50 50 17 167
Key Vacant /
Nonvacant Sites 775 427 497 1,099 2,798
Adjusted (85%)
Key Vacant /
Nonvacant Sites*
658 363 422 934 2,378
Total 961 647 569 3,175 5,353
Buffer 11% 30% 8% 132% 181%
* Past production trends in Burlingame indicate that for sites where either residential or nonresidential
development was allowed, 91% developed with residential uses during the previous housing element
cycle (see Tables HE-28 and HE-29). This table assumes 85% to be conservative.
Source: Housing Resources Sites Inventory
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 108
The Sites Inventory was developed to meet all applicable statutory requirements and provide a
realistic and achievable roadmap for the city to meet and potentially exceed its RHNA. The
Sites Inventory is summarized as follows:
The housing sites are primarily in three key planning areas. All sites are located in high
and highest resource areas, to meet AFFH requirements.
The housing projections utilize existing land use and zoning densities, and no rezoning
is necessary.
The city has a significant number of pipeline projects that are anticipated to be
completed by the end of this housing cycle.
1,164 housing units are currently under construction; and
1,000+ housing units are approved/entitled.
The housing projections do not have any reliance on new units developed under SB9
and a low reliance on new ADU production.
None of the nonvacant sites include existing or demolished residential units.
The analytical process that went into creating the Sites Inventory and the justification for
commercial site redevelopment are fully detailed in the Sites Inventory Approach and
Methodology sections above. The full list of sites adequate for housing development identified
by the city is included in Appendix D.
As noted in the section “Identification of Sites for Affordable Housing,” all sites in the Sites
Inventory are located in either “High Resource” or “Highest Resource” areas, as indicated on
the 2023 Tax Credit Allocation Committee (TCAC) Opportunity Area Map. This ensures that
residents have access to transit, high performing schools and jobs, amenities, services, health
care facilities and grocery stores. Table HE-33 on the following page indicates the distribution
of units by all income groups for each of the three key planning areas.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 109
Table HE-33: Sites Inventory Affordability by Neighborhood
Very Low Low Moderate Above Moderate Total Units
Downtown
Pipeline Projects 82 35 42 373 532
Adjusted Key
Vacant/Nonvacant
Sites
71 38 80 44 233
North Rollins Road
Pipeline Projects 0 116 0 867 983
Adjusted Key
Vacant/Nonvacant
Sites
344 192 204 536 1,277
North Burlingame
Pipeline Projects 171 83 40 842 1,136
Adjusted Key
Vacant/Nonvacant
Sites
227 127 135 354 843
Other Neighborhoods (R-1, R-2, R-3, R-4)
Pipeline Projects 0 0 15 142 157
ADUs 50 50 50 17 167
Key
Vacant/Nonvacant
Sites
16 7 3 0 25
Source: Burlingame Community Development Department, 2022
Housing Funding Opportunities
A critical component to implementing any of these preservation options is the availability of
adequate funding, which can be difficult to secure. In general, Low‐Income Housing Tax Credit
funding is not readily available for rehabilitation and preservation, as the grant application
process is highly competitive and prioritizes new construction. However, commercial linkage
fees and residential impact fees are a new, local funding source. Additional available funding
sources that can support affordable housing preservation include sources from the federal and
state governments, as well as local and regional funding.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 110
Federal Funding
HOME Investment Partnerships (HOME) Program
Project‐Based Vouchers (Section 8)
Section 811 Project Rental Assistance
Veterans Affairs Supportive Housing (VASH) Vouchers
State Funding
Affordable Housing and Sustainable Communities (AHSC) Program
Golden State Acquisition Fund (GSAF)
Project Homekey
Housing for a Healthy California (HHC)
Multifamily Housing Program (MHP)
National Housing Trust Fund
Predevelopment Loan Program (PDLP)
Regional, Local, and Nonprofit Funding
Burlingame Affordable Housing Fund
Because the city's population is less than 50,000, Burlingame does not receive Federal housing
assistance money (Block Grant/CDBG) directly. However, the City does have an administrative
agreement with San Mateo County, which is the recipient of the CDBG funds for the
unincorporated county and all the jurisdictions too small to receive Block Grant funds directly.
Human Investment Project for Housing (HIP) is a non-profit organization located in San Mateo
County that has programs to assist people with special needs, either from income or
circumstance, to live independent, self-sufficient lives in decent, safe, low cost housing. HIP
Housing’s Home Sharing program matches those who have space in their home with those who
need an affordable place to live, maximizing housing inventory and turning existing housing
stock into a new affordable housing option. It is the only program of its kind in San Mateo
County and provides a housing option for over 700 people each year. Over 90% of those using
the Home Sharing program are low to extremely low income.
Burlingame’s Affordable Housing Fund was established in 2017 with the adoption of linkage
fees collected from new commercial development. The first significant expenditure of funds was
to provide financial support to a 100% affordable housing development where all units will be
affordable to households at 50% AMI. The Affordable Housing Fund is projected to grow to
more than $60 million during the RHNA 6 cycle, based on approved and proposed commercial
development projects.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 111
Energy Conservation Opportunities
It is a requirement of every housing element to include a section on residential energy
conservation opportunities. Since the deregulation of energy companies in 1998, the price of
energy has increased substantially. With such an increase in prices, energy costs can be a
substantial portion of housing costs. Effective energy conservation measures built into or added
to existing housing can help residents manage their housing costs over time and keep lower
income households affordably housed. There are a number of programs offered by the City of
Burlingame, the local energy provider (PG&E) and the State of California, which provide cost-
effective energy saving programs.
Energy Programs Offered by the City of Burlingame
Primary Programs
All new residential and nonresidential construction in the city must abide by the State of
California’s residential building standards for energy efficiency (Title 24 of the California
Administrative Code). Title 24 Standards were established in 1978 to insure that all-new
construction meets a minimum level of energy efficiency standards. Burlingame requires
that new development must exceed Title 24 energy conservation requirements by
fifteen percent.
The City’s zoning ordinances do not discourage the installation of solar energy systems
and other natural heating and cooling opportunities.
Secondary Programs
The City of Burlingame enforces a tree preservation and reforestation ordinance. Part of
the ordinance requires that when additions are made or new residences are built,
property owners shall plant one (1) landscape tree for every 1,000 square feet of lot
coverage or habitable space for single family homes or duplexes; and one (1) landscape
tree for every 2,000 square feet of lot coverage for apartment houses and
condominiums. New trees planted shall be 15 gallon to 24" box size, and shall not be
fruit trees. In addition, the ordinance provides for the protection of the larger, existing
trees in the city. With the proper siting of trees to allow sun exposure in the winter and
shade in the summer, a homeowner can save up to 25% of a household’s energy
consumption for heating and cooling. Computer models devised by the U.S.
Department of Energy predict that the proper placement of only three trees will save an
average household between $100 and $250 in energy costs annually.
The City of Burlingame adopted an ordinance requiring the recycling and salvaging of
construction and demolition materials. Enforcement of this ordinance reduces the
amount of materials going to landfills and also conserve energy through the reuse and
recycling of these materials. The Steel Recycling Institute reports that steel recycling, the
number one recycled material in the U.S., saves enough energy to electrically power the
equivalent of 18 million homes for a year.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 112
Local Energy Suppliers (PG&E)
Pacific Gas & Electric (PG&E)
The Pacific Gas and Electric Company (PG&E) supplies electric and gas needs to the residents
of Burlingame. PG&E offers an assortment of programs that provide residents with the
opportunity for energy conservation. These programs are available to all residents, but there are
additional programs for households that qualify as low-income. PG&E has been the sponsor of
energy savings assistance programs which provide energy education, weatherization measures,
and energy-efficient appliances to low-income households.
Peninsula Clean Energy (PCE)
Peninsula Clean Energy (PCE) is San Mateo County’s official electricity provider. PCE was
formed by the County of San Mateo and all 20 of its cities to help jurisdictions meet local
climate action goals. PCE offers a choice of two electricity options, each with a different
percentage of sustainable energy. ECOplus is the default, with 50% of the electricity provided
to its customers being sourced renewably. With ECO100, 100% of the electricity is sourced from
renewable sources. PCE has a strategic goal of sourcing 100% California RPS eligible renewable
electricity by 2025. By 2030, the entire portfolio will be 100% GHG free, and customers will no
longer have to opt into ECO100 to realize the strides made by PCE (i.e., 100% GHG-free
electricity will be the default plan).
PCE offers a number incentive programs to assist households with energy-efficient retrofits,
such as zero-interest loans, heat pump water heater rebates, and a home upgrade program that
provides income-qualified homeowners with home repairs and energy efficiency upgrades at no
cost.
The State of California
California Energy Commission and Public Utilities Commission Rebate Programs
Open to all residents of California, independent of their income. Rebates are provided based
on current funding. Rebate opportunities are updated by the California Energy Commission.
The Public Utilities Commission offers programs to assist low income households, such as
discounts on electric and gas bills, energy upgrade assistance, and emergency assistance.
Public Outreach
The City of Burlingame website includes information for residents highlighting the available
energy conservation programs. In addition, the City of Burlingame publishes a recreation
brochure that is mailed to all residents twice a year. An advertisement is included in this
brochure to direct residents to the energy conservation programs. Information is also
distributed though the City’s email newsletter (eNews), and social media including Facebook
and Nextdoor.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 113
Chapter 7
Housing Goals, Polici es, and Action
Programs: 2023-2031
The types of programs proposed in the 2023-2031 Housing Element will build on the success
and experience of the 2015-2023 Housing Element, and add new programs to respond to new
and emerging housing needs. These include the following policies:
These policies are outlined in more detail in the following Goals, Policies and Implementation
Programs, which outlines the specific programs, eight-year objectives, funding sources,
responsible agencies and time frames for implementation. Each program is designated in the
table below as one of three priority levels:
High: Planned implementation within 1-2 years of Housing Element adoption
Medium: Planned implementation within 4 years of Housing Element adoption
Low: Ongoing/continuous implementation, or planned implementation within 8 years of
Housing Element adoption
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 114
Table HE-34: 2023-2031 Goals, Policies and Action Programs
GOAL A: ACHIEVE INCREASED AFFORDABILITY AND DIVERSITY OF HOUSING.
POLICIES:
Policy H(A-1): Encourage the development of a variety of housing types that are affordable to very low and extremely low-income
households.
Policy H(A-2): Improve balance of housing type, tenure and affordability by encouraging development of the sites and locations listed
in the Sites Inventory to serve the income levels indicated. Policy H(A-2): Encourage construction of mixed commercial-
residential projects.
Policy H(A-3): Encourage development of “missing middle” housing types such as duplexes, rowhomes, and small multiunit buildings
in all residential districts.
Policy H(A-4): Encourage conversion of existing accessory living units to legal, safe and sanitary housing units.
Policy H(A-5): Encourage non-profit housing corporations to develop affordable housing in appropriate sites in Burlingame.
Policy H(A-6): Expand the Section 8 program in Burlingame, including both Housing Choice Vouchers (HCV) and Project-Based
Vouchers (PBV).
Policy H(A-7): Encourage first-time buyer and other ownership assistance programs.
Policy H(A-8): Maintain zero-net-loss of housing units.
Policy H(A-9): Encourage use of underutilized City land (particularly surface parking lots) for housing developments for lower-income
categories.
Policy H(A-10): Encourage lot consolidation to expand housing opportunities in neighborhoods lacking large development sites.
Policy H(A-11): Provide affordable housing opportunities throughout the city.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 115
IMPLEMENTATION PROGRAMS:
Program H(A-1): Promotion of Accessory Dwelling Units
(ADUs)
Continue to promote the Accessory Dwelling Unit (ADU)
program with bi-annual informational workshops. Targeted
outreach regarding workshops will be conducted within higher-
opportunity areas, such as the city’s west side, to promote
housing mobility for lower-income households. Continue to
maintain the ADU informational webpage at
www.burlingame.org/adu as a clearinghouse for ADUs. Create a
library of “pre-reviewed” ADU plans to streamline application
review for this housing type. To promote housing mobility for
lower-income households, the City will also study the feasibility
of permitting more JADUs than is required by current State law
and will implement this code change if determined to be
feasible.
Eight Year Objective:
Process at least 21 ADU applications per year.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept., Building
Ongoing; High Priority. ADU
plan library within two years of
Housing Element Update.
JADU feasibility study within
two years of Housing Element
Update, and implementation
within six months if determined
to be feasible.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 116
IMPLEMENTATION PROGRAMS:
Program H(A-2): Prioritize the redevelopment of city-owned
surface parking lots for affordable housing
Prioritize the redevelopment of city-owned parking lots in the
Downtown and Broadway areas for housing affordable to low,
very low, and/or extremely low income households. The City is
committed to complying with the Surplus Land Act and will
coordinate with potential developers to leverage commercial
linkage fees for new developments. The City will be issuing an
RFP for the 1500 Ralston Avenue site in the Sites Inventory in
2023. The City will monitor the process on the city-owned sites
to ensure that the City maintains sufficient land to
accommodate the RHNA during the planning period. By 2028,
the city will make a determination if the sites will be available
before the end of the planning period. If not, in an effort to
maintain adequate sites, the city will reevaluate the current
capacity and identify alternative site(s) as needed.
Eight Year Objective:
150 units affordable to low, very low, and/or extremely low income
households
Funding
Source
Responsible
Agency
Time Frame & Priority
Non-profit
and public
sources
Community
Development
Dept., City
Manager, City
Council
Feasibility study completed by
December 2024, Declare
properties surplus by 2025,
issue RFP by the end of 2025
with target for construction in
2027. Determination of site
availability in 2028, rezone, as
needed, within 6 months.; High
Priority
Program H(A-3): First-time Homebuyer Program
Consider use of commercial linkage fees to assist first-time
buyers purchase a home or condominium in Burlingame.
Continue to promote HEART first-time buyer program through
financial support of HEART and through the City’s eNews
newsletter and by hosting first-time buyer workshops. Conduct
additional targeted outreach to areas of the city with higher
rates of renter cost burden, such as the Burlingame Terraces
and Easton Addition neighborhoods, to prevent displacement.
Eight Year Objective:
Obtain assistance for 15 households. Host one HEART first-time
buyer workshop per year at city hall.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds,
Housing
Fund
Community
Development
Dept., City
Manager, Council
Review uses of commercial
linkage fees annually as part of
the Housing Element Annual
Progress Report (APR); High
Priority. Conduct targeted
HEART and first-time buyer
program outreach at least
annually.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 117
IMPLEMENTATION PROGRAMS:
Program H(A-4): Zero-Net-Loss of Housing Units
Require new housing developments that replace existing units
to build equal to or more than the number of units previously on
the site, in compliance with density regulations.
Eight Year Objective:
No loss of housing stock.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
As development applications
are reviewed.; Low Priority
Program H(A-5): Missing Middle Housing Units
Expand the applicability of the duplex overlay (SB 9) to the R-2
zoning district in addition to the R-1 district. Create a library of
“pre-reviewed” duplex and small multiunit buildings to
encourage development of smaller sites with greater number of
units by streamlining permit processing for these unit types.
Adopt a density bonus program for projects that include
duplexes or rowhomes as part of a larger development. Focus
efforts on the city’s west side of town to promote mobility.
Eight Year Objective:
20 duplex units, 100 rowhome units.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
R-2 amendment and Density
Bonus program within one year
of Housing Element adoption.
Library of pre-reviewed
projects within three years of
Housing Element Update.;
Medium Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 118
IMPLEMENTATION PROGRAMS:
Program H(A-6): Zoning for Sites Identified in Last Planning
Cycle
Pursuant to Government Code Section 65583.2(c), any non-vacant
sites identified in the prior fifth Cycle or vacant sites identified two
or more consecutive planning periods, shall be provided by-right
development when at least 20 percent of the units in the proposed
development are affordable to lower-income households.
Eight Year Objective:
166 units (55 very low income units, 28 Low Income units, 54 Moderate
Income units, 29 Above-Moderate Income, per the Sites Inventory)
Funding
Source
Responsible
Agency
Time Frame & Priority
General Fund City Council,
Community
Development
Dept.
Complete necessary rezones by
January 2026.
Program H(A-7): Lot Consolidation
The City will help facilitate lot consolidations to combine small
residential lots (lots 0.5 acres or smaller) into larger developable
lots by providing information on development opportunities and
incentives for lot consolidation to accommodate affordable
housing units available on the City’s website and discussing with
interested developers. As developers/owners approach the City
interested in lot consolidation and development on small lots for
the development of affordable housing, the City will offer the
following incentives:
Allow affordable projects to exceed the maximum height
limits,
Lessen setbacks, and/or
Reduce parking requirements.
The City will also offset fees (when financially feasible) to
developers who provide affordable housing. Additional incentives
will be considered for affordable projects in higher-opportunity
areas, such as the city’s west side, and implemented where
feasible, to promote housing mobility for lower-income
households.
Eight Year Objective:
Two lot consolidations per year.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Identify incentives by December
2023, offer incentives by June
2024. Ongoing thereafter as
projects are processed through
the Planning Division. Annually
meet with local developers to
discuss development
opportunities and incentives for
lot consolidation.; Low Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 119
IMPLEMENTATION PROGRAMS:
Program H(A-8): Development Fee Evaluation
Update the application fees and Public Facilities Impact fees to
provide better parity between housing types, and provide
incentives for affordable housing developments.
Eight Year Objective:
Reduced application and impact fees for 1,360 Very Low and Low
Income units
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept., Finance
Dept.
Currently underway; adopt
within one year of Housing
Element Update.; High Priority
Program H(A-8): Replacement of Expiring Below-Market Units
Provide top priority to residents of expiring below-market units
to relocate to units comparable in size and rents in other
Burlingame projects that include below-market units. Evaluate
subsidizing an extension of the term of affordability for expiring
units.
Eight Year Objective:
Tenant relocation and/or extension of affordability term of 11
Moderate Income units. Evaluate the feasibility of extending the
affordability terms within one year of Housing Element adoption.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Relocate tenants as
affordability terms expire in
2024-2027.; Medium Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 120
IMPLEMENTATION PROGRAMS:
Program H(A-9): Pursue Department of Housing and Community
Development Prohousing Designation
Recognize the community’s commitment to housing by obtaining
the Prohousing Designation under HCD’s Prohousing Designation
Program.
Eight Year Objective:
At least 30 points per the Prohousing Designation checklist, with
greater objective to qualify for 40-50 points.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Within one year of Housing
Element Update
Program H(A-10): Parking Standards
Review and revise parking to ensure they do not constrain the
development of housing specifically for studio units and ensure
compliance with State ADU parking requirements.
Eight Year Objective:
Reduce parking requirements for at least 25 units.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Within one year of Housing Element
Update
Program H(A-11): Monitoring Permit Application Timelines
Track, review and revise permit review processes on an annual
basis to ensure that permit processing timelines are not a
constraint to development, with the following processing timeline
targets by the end of the planning period:
Ministerial/By-Right: 1 to 2 months
Discretionary (Planning Commission): 4 to 6 months
Discretionary (City Council): 6 to 8 months
Eight Year Objective:
Facilitate the development of at least 25 units of lower-income housing
through improved approval process timelines.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Track permit processing timing as
projects are submitted and report to
Council annually, revise permit
processes as needed to achieve
processing timeline targets.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 121
IMPLEMENTATION PROGRAMS:
Program H(A-12): Track Housing Productions
The City will monitor housing production throughout the
planning and ensure the Sites Inventory (Appendix D) maintains
sufficient housing capacity to meet the RHNA target by income
level. The city will not adopt reductions in allowable residential
densities for sites identified in the Appendix D through General
Plan update/amendment or rezone or approve development or
building permits for sites identified in the inventory with fewer
units or affordable to a different income category than identified
in the inventory, unless findings are made that the remaining
capacity is sufficient to accommodate remaining unmet RHNA
for each income level. Within one year of adoption of the
Housing Element, the City will expand upon and improve the
ongoing “no-net-loss” efforts to develop a procedure to track
and report on:
Pipeline projects (Table D-2) and progress towards
completion.
Projects proposed on sites identified for housing in the
sites inventory.
Unit count and income/affordability assumed on parcels
in the sites inventory.
Actual number of units permitted and constructed by
income/affordability.
Net change in capacity and summary of remaining
capacity by income level in meeting
remaining RHNA.
In accordance with No Net Loss law, if project approval results
in the remaining sites capacity becoming inadequate to
accommodate RHNA by income category, the City will identify
or rezone sufficient sites to accommodate the shortfall within
Eight Year Objective:
Reduce parking requirements for at least 25 units.
Funding
Source
Responsible
Agency
Time Frame & Priority
City funds Community
Development
Dept.
Review and revise No Net Loss
Tracking process by April 2025,
annually review Pipeline Projects
and at the mid-term evaluate
progress towards competition and
if additional actions are necessary,
complete additional actions within
one year.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 122
180 days of approval. Further, the City will track progress of
pending projects (Table D-2) towards completion and if projects
are not assumed to be completed in the planning period, the
City will evaluate whether there are sufficient sites available to
accommodate the RHNA. If sufficient sites are not available, the
City will take necessary actions (e.g., rezoning or identify
additional sites) to maintain adequate sites within one year. The
results of the tracking will be reported in the Housing Element
Annual Progress Report reported annually to the City Council
and posted online for public review.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 123
GOAL B: PROVIDE AFFIRMATIVELY FURTHERING FAIR HOUSING BY PROMOTING HOUSING OPPORTUNITIES FOR ALL
PERSONS REGARDLESS OF AGE, SEX, RACE, COLOR, MARITAL STATUS, DISABILITY, NATIONAL ORIGIN OR OTHER
BARRIERS.
POLICIES:
Policy H(B-1): Promote equal housing opportunities for all Burlingame residents and those working in Burlingame.
Policy H(B-2): Promote development of rental and ownership housing that is affordable to prospective residents.
Policy H(B-3): Work with San Mateo County to remove racially-restrictive covenants from land deeds.
Policy H(B-4): Encourage and provide affordable housing opportunities throughout the city.
IMPLEMENTATION PROGRAMS:
Program H(B-1): Implement an outreach program for persons
with disabilities.
Work with agencies such as the Golden Gate Regional Center, a
state-funded nonprofit organization serving individuals with
developmental disabilities in Marin, San Francisco and San
Mateo counties, InnVision Shelter Network, Call Primrose, and
Center for Independence of Individuals with Disabilities to
implement an outreach program that informs families in
Burlingame about housing and services available for persons
with disabilities. The program will include the development of
an informational brochure for distribution to areas identified in
the AFFH Appendix C as areas of higher concentration of
persons with disabilities, providing information on services on
the City's website and eNewsletter, and providing housing-
related training for individuals/families through workshops.
Outreach will be ongoing on at least an annual basis.
Eight Year Objective:
Provide information regarding housing to families of persons with
developmental disabilities.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development Dept.
Develop outreach
materials within two
years of Housing
Element adoption.
Annual outreach
thereafter; High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 124
IMPLEMENTATION PROGRAMS:
Program H(B-2): Provide fair housing information on City
website.
Provide summaries of fair housing contributing factors,
programs to address, and other information to affirmatively
further fair housing on City website.
Eight Year Objective:
Provide summaries of fair housing contributing factors, programs to
address, and other information to affirmatively further fair housing
on the City website. Update periodically as new legislation is
adopted or programs created.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development Dept.
Within one year of
Housing Element
adoption; High Priority
Program H(B-3): Pursue environmental justice for
underrepresented community groups most impacted by
pollution.
Develop and adopt an Environmental Justice Element to better
comply with SB 1000 and provide guidance for achieving
equitable outcomes across all sectors of the population.
Eight Year Objective:
Develop and adopt an Environmental Justice Element to better
comply with SB 1000 and provide guidance for achieving equitable
outcomes across all sectors of the population.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development
Department
RFP process is out;
within one year of
Housing Element
adoption; High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 125
IMPLEMENTATION PROGRAMS:
Program H(B-4): Commit to revise the Zoning Code and
update to allow additional streamlining and allowances for
residential development.
As part of a Zoning Code update beginning in 2023, the City
will:
1. Review the Downtown Specific Plan zoning districts that
do not currently allow residential (only Burlingame Avenue
Commercial, Chapin Avenue Commercial, and parts of
Donnelly Avenue Commercial do not allow residential by-
right at this time).
2. Review and revise lot coverage standards in the R-3 and R-
4 zoning districts.
3. Eliminate parking requirements for ADA-accessible
homes.
4. Eliminate parking requirements for development within
0.5 miles of transit as specified by AB 2097.
Eight Year Objective:
Review and revision of Zoning Code every two years, for a total of
four updates over eight years.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development
Department
As part of the Zoning
Code update
beginning in 2023 and
to be completed within
2 years; High Priority
Program H(B-5): Commit to reviewing and strengthening
tenant protections with elected officials.
During at least one public hearing, staff will review and
strengthen tenant protections where possible with elected
officials. Some examples include: increasing the time for tenant
relocation payments from 1-3 months; extending just cause
eviction protections to tenants regardless of tenure (rather than
1 or more years currently required by statute); etc.
Eight Year Objective:
Review and strengthen tenant protections with elected officials
within 2 years of Housing Element adoption.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development
Department
During at least one
public hearing within 2
years of Housing
Element adoption;
High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 126
IMPLEMENTATION PROGRAMS:
Program H(B-6): Establish Streamlining and Incentives for
Projects Proposing Affordable Units.
The City shall establish actions for streamlining and simplifying
the planning approval and building permit processes, including
the design review process. The City shall work with housing
developers and other stakeholders on to review current
processes and fees to identify ways to reduce costs and
streamline processes for development, including larger
projects.
Eight Year Objective:
100 units through a streamlined process.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development
Department
Meet with developers
and stakeholders by
the end of 2024, and
biennially thereafter.
Make modifications
within 6 months of each
meeting date.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 127
GOAL C: PROVIDE HOUSING OPPORTUNITIES FOR CITY EMPLOYEES, TEACHERS, HOSPITAL WORKERS AND OTHERS IN
THE SERVICE INDUSTRY WHO WORK IN BURLINGAME.
POLICIES:
Policy H(C-1): Inform local public sector and private sector employees about available housing assistance programs.
Policy H(C-2): Require inclusion of affordable dwelling units in multifamily residential development.
Policy H(C-3): Encourage public agency partnerships to provide housing, reduce commute time and facilitate retention of community
based groups like teachers, public employees, and hospital and service sector workers.
IMPLEMENTATION PROGRAMS:
Program H(C-1): Refer eligible employees to housing
assistance programs.
Promote newly available affordable units to staff of local
agencies and employers as units become available; refer
interested parties to the application portal; conduct regularly-
scheduled orientations so interested parties can become familiar
with opportunities and application processes.
Eight Year Objective:
Four orientation workshops per year.
Funding Source Responsible Agency Time Frame & Priority
Housing Fund Community
Development Dept.
Continuous; Medium
Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 128
IMPLEMENTATION PROGRAMS:
Program H(C-2): Provide incentives for developers to include
additional affordable units in new residential projects.
1. Amend the zoning code to allow additional affordable
units to be counted as a community benefit in the tiered
zoning structure.
2. Adopt incentives to encourage larger unit sized affordable
units suitable for families (i.e. two-bedroom and three-
bedroom units).
3. Amend the Density Bonus Ordinance and Residential
Impact Fee in-lieu option to extend the affordability time
restrictions on subsidized housing.
4. To promote housing mobility for lower-income households,
evaluate the feasibility of additional incentives for
affordable housing units in higher-opportunity areas, such
as the city’s west side, and implement those considered
feasible.
Eight Year Objective:
Provide 50 percent of total units built in the city at Low- and Very
Low- income levels, including 50 units in higher-opportunity areas.
Funding Source Responsible Agency Time Frame & Priority
Private, City Community
Development Dept.
Within one year after
adoption of the
Housing Element.
Study additional
incentives for higher-
opportunity areas
within two years of
Housing Element
adoption, and
implement feasible
additional incentives
within six months; High
Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 129
IMPLEMENTATION PROGRAMS:
Program H(C-3): Update of the commercial linkage fee.
Update the commercial linkage fee that requires developers of
employment-generating commercial and industrial
developments to contribute to the supply of low- and moderate-
income housing. Update the current fees through a nexus impact
fee study or feasibility analysis to reflect changes in the
commercial development market.
Eight Year Objective:
Update commercial linkage fee study twice during RHNA 6 cycle.
Generate in-lieu fees to contribute toward the creation of low and
moderate income housing. Reconvene Housing Opportunity,
Priorities and Education (HOPE) Community Advisory Committee
within one year of Housing Element adoption to prioritize how to
best distribute funds to produce affordable housing. Review uses
of commercial linkage fees annually as part of the Housing
Element Annual Progress Report (APR).
Funding Source Responsible Agency Time Frame & Priority
Housing Fund Community
Development Dept.
Study was last updated
in 2022. Update at least
every four years to
reflect market
conditions. Medium
priority.
Program H(C-4): Update of the residential impact fee in-lieu fee
option.
Update the residential impact fee in-lieu option to require a greater
percentage of affordable units and/or deeper levels of affordability.
Eight Year Objective:
Increase the construction of affordable units and/or generate
additional impact fees to contribute toward the creation of very low,
low and moderate income housing.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development Dept.
Study is being updated
in 2022-23. Update at
least every four years to
ensure fees reflect
changing market
conditions; High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 130
IMPLEMENTATION PROGRAMS:
Program H(C-5): Encourage public agency partnerships to
provide housing, reduce commute time, and facilitate
retention of groups like teachers, public employees, and
hospital and service sector workers.
Coordinate with public and private agencies and institutions to
encourage them to include a provision for housing in any facility
expansion plans.
Eight Year Objective:
Provide 20 new affordable housing units per year in the vicinity of
public agency workplaces and private institutions.
Funding Source Responsible Agency Time Frame & Priority
Public Agencies Community
Development Dept.
As projects are
reviewed; Low Priority
Program H(C-6): Faith-Based Development
To create housing mobility opportunities for lower-income
households, conduct outreach to religious institutions to inform
them of their development rights under SB 4 and encourage
housing proposals. If no application for housing on a religious
institution/faith-based site is received by December 2025, the
City will expand outreach efforts to be conducted annually. This
may include direct mailings to faith-based sites highlighting
successful affordable housing units on other faith-based sites, as
well as available City resources and programs to support such
projects if available. Additional outreach focus will be given to
religious institutions located on the city’s west side to promote
housing mobility in this area.
Eight Year Objective:
Provide an average of 5 new affordable housing units per year on
sites owned by religious institutions.
Funding Source Responsible Agency Time Frame & Priority
City funds Community
Development Dept.
Conduct initial
outreach within one
year of Housing
Element adoption and
additional outreach as
new legislation is
passed. If no
applications for
housing projects on
religious sites are
received by December
2025, conduct outreach
annually; Medium
Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 131
IMPLEMENTATION PROGRAMS:
Program H(C-6): Provide incentives for developers to build
space for child care facilities or services as part of new
residential, commercial and industrial developments.
This can include but is not limited to: density bonuses, increases
in floor area ratios, parking reductions, community benefits
credits, traffic impact fee exemptions, expedited entitlements, or
modifications to zoning regulations. Work with developers,
where feasible, to incorporate child care that serves families of all
incomes and children of all ages. Include child care facility space
as a priority in Request for Proposals (RFPs) for city land or
Notices of Funding Available (NOFAs) for affordable housing
developments. Support inclusion of specially designed and
located housing units in multifamily dwellings for licensed Family
Child Care Home providers.
Eight Year Objective:
Provide child care service capacity for 50 children as part of new
residential projects.
Funding Source Responsible Agency Time Frame & Priority
Private and non-
profit developer
funding sources,
Public Agencies
Community
Development Dept.
As projects are
reviewed; Medium
Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 132
GOAL D: ENCOURAGE SPECIAL PURPOSE HOUSING.
POLICIES:
Policy H(D-1): Provide adequate, affordable housing for the City's senior population.
Policy H(D-2): Encourage alterations to existing structures that improve access for physically disadvantaged, including the
developmentally disabled population.
Policy H(D-3): Encourage housing opportunities for single-parent families.
Policy H(D-4): Encourage housing opportunities for low income single persons.
Policy H(D-5): Support county-wide program for homeless persons.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 133
IMPLEMENTATION PROGRAMS:
Program H(D-1): Increase affordability for senior households.
a. Coordinate with the Age Friendly Task Force on the
development of the Age-Friendly Action Plan that will
optimize the opportunities for active aging such as age-
friendly services, settings, and structures to support age-
related needs.
b. Continue to encourage and streamline the Accessory
Dwelling Unit (ADU) program to allow creation of
accessible accessory units for seniors.
c. Continue to allow upon request curbside disabled
accessible parking spaces in single family neighborhoods.
d. Continue to provide incentives for new senior housing by
maintaining the code provision that allows reduced
parking requirements for assisted living projects and other
group residential facilities for seniors.
e. Continue City financial support to non-profit agencies
which administer housing programs for seniors (home
sharing, emergency rent assistance).
f. Refer seniors who are homeowners to the Human
Investment Project (HIP) for Housing Home Sharing
Program, to find eligible tenants to share their housing. To
promote housing mobility for lower-income households,
target additional HIP outreach to senior households in
higher-opportunity areas, such as the city’s west side.
Eight Year Objective:
Provide 100 affordable senior units by 2027, and 100 additional
affordable senior units by 2031.
Funding Source Responsible Agency Time Frame & Priority
City funds,
private funds,
volunteers
Community
Development Dept.,
City Manager, City
Council, Parks and
Recreation
Department
Ongoing. Target HIP
outreach in higher-
opportunity areas
annually; Low Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 134
IMPLEMENTATION PROGRAMS:
Program H(D-2): Improve livability of housing units for persons
with disabilities.
a. Continue to follow the adopted Reasonable
Accommodations Ordinance, which provides individuals
with disabilities reasonable accommodation in rules,
policies, practices and procedures that may be necessary
to ensure equal access to housing by providing a process
for individuals with disabilities to make requests for
reasonable accommodation in regard to relief from the
various land use, zoning, or building laws, rules, policies,
practices and/or procedures of the City. This policy offers a
process to modify certain development standards, such as
lot coverage and setback requirements for ramps and
landings added to residences and group homes in order to
provide access for the disabled. The City will review and
revise approval findings, specifically, “The requested
reasonable accommodation would not adversely impact
surrounding properties or uses” and will remove any
processing fee associated with a reasonable
accommodation request.
b. Amend the zoning code to include the definition of family
to be “One or more persons living together in a dwelling
unit, with common access to, and common use of all living,
kitchen, and eating areas within the dwelling unit”.
c. Continue to allow supportive and transitional housing in
residential and mixed use districts subject to the same
restrictions that apply to other residential districts in the
same zone.
d. Review and revise the zoning code to permit supportive
housing by-right in multifamily zones and mixed use and
nonresidential zones allowing multifamily, consistent with
Government Code 65651 (AB 2162).
Eight Year Objective:
Provide 50 new Extremely Low Income housing units that are subject to
a preference for people with developmental disabilities.
Funding Source Responsible Agency Time Frame & Priority
Private funds for
alterations;
Housing Fund;
State and Federal
funds for
assistance with
unit acquisition
Community
Development Dept.
Ongoing; Medium
Priority
Within one year after
adoption of the Housing
Element; High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 135
e. Review and revise the zoning code to allow for
modifications for required parking for units occupied by
supportive housing residents that are located within one-
half mile of a public transit stop.
f. Add specific definitions for group homes and amend land
use provisions to all group homes of seven (7) or more
persons only subject to those restrictions that apply to
residential uses of the same type in the same zone.
g. Allow the conversion of single-family homes into assisted
living facilities for the developmentally disabled.
h. Continue to allow persons with disabilities to request
disabled parking curb markings in the single family
residential areas.
i. Monitor progress towards a quantitative goal of 50 new
Extremely Low Income housing units that are subject to a
preference for people with developmental disabilities
needing the coordinated services provided by Golden
Gate Regional Center to live inclusively in affordable
housing.
j. Encourage the inclusion of people with developmental
and other disabilities in affordable housing by recognizing
their transit dependence and establishing lower parking
ratios for units targeted to people with developmental and
other disabilities than would otherwise be required for
affordable housing.
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 136
IMPLEMENTATION PROGRAMS:
Program H(D-3): Add affordable housing units for larger
households.
Continue to assign staff to carry out the following actions:
Adopt incentives to encourage larger unit sized affordable units
suitable for larger households (i.e. two-bedroom and three-
bedroom units). Work with and continue to offer financial
assistance to the Human Investment Project for Housing (HIP), a
non-profit housing corporation which administers a home-
sharing program which is available for Burlingame residents.
Maintain website and literature regarding availability of housing
programs. Consider offering additional incentives for proposed
projects in higher-opportunity areas on the city’s west side as
applications are reviewed.
Eight Year Objective:
20% of affordable units provided in new developments to have either
two or three bedrooms.
Funding
Source
Responsible Agency Time Frame & Priority
Housing Fund,
General Fund
Community
Development Dept.,
City Council
Funding confirmed each
fiscal year; inclusionary
units as applications are
reviewed.; Medium Priority
Program H(D-4): Provide affordable studio, one-bedroom, or
micro-units units for single occupants.
a. Consider allowing micro-units and group/common facilities
developments to be counted as community benefits in tiered
zoning districts.
b. Consider waiving residential impact fees for market-rate
micro-unit projects.
c. Amend the Accessory Dwelling Unit (ADU) Ordinance as
required to comply with changes in State Law.
d. Pursuant to California Health and Safety Code (HSC), Section
65583(c)(7), create a program incentivizing and promoting
ADUs that can be offered at affordable rents for very-low to
moderate income households. This will likely involve
allocating some portion of the Housing Funds to incentivize
permanently deed-restricted ADUs to the affordability levels
above. Target additional outreach on these incentives to
higher-opportunity areas, such as the city’s west side, to
promote housing mobility for lower-income households.
Eight Year Objective:
At least 10 percent of new residential units to be micro or studio units.
Funding
Source
Responsible Agency Time Frame & Priority
City funds for
code revisions,
private/HCD
/MTC funds for
development.
Housing Funds
may be used for
ADU incentives.
Community
Development Dept.,
City Council, private
developers
Zoning amendments to
incentivize micro units and
group housing to be
considered within 1 year of
adoption of the Housing
Element. ADU
amendments per
requirements of State Law;
High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 137
IMPLEMENTATION PROGRAMS:
Program H(D-5): Provide local share of support for county-
wide programs.
a. Continue financial contributions to agencies which provide
service to the people experiencing homelessness in San
Mateo County; continue to allow group facilities for
people experiencing homelessness in conjunction with
church facilities as a conditional use; continue to support
financially and work with local and non-profit providers in
San Mateo
b. Maintain the zoning code provisions that allow emergency
shelters and low-barrier navigation centers by right in
multiple zoning districts.
c. Amend the performance standards, specifically spacing
requirements for emergency shelters in the Zoning
Ordinance so that they are consistent with Government
Code Section 65583(a)(4)(B).
d. Update the definition of emergency shelter to ensure it
includes other interim interventions, including but not
limited to, navigation centers, bridge housing, and respite
or recuperative care.
e. Review parking standards to ensure standards
accommodate all staff working in the emergency shelter,
provided that the standards do not require more parking
for emergency shelters than other residential or
commercial uses within the same zone.
f. Maintain the zoning code provisions that allow transitional
and supportive housing by right in all zone districts which
allow residential uses only subject to those restrictions that
apply to other residential uses of the same type in the
same zone.
Eight Year Objective:
Continue financial support of County-wide programs.
Staff to continue to facilitate process necessary to provide such
services in the city.
Funding
Source
Responsible Agency Time Frame & Priority
General Fund City Council,
Community
Development Dept.
Programs have been
completed but will require
to be maintained and
amended.; Low Priority
Amendments to the Zoning
Ordinance to address
requirements in
Government Code Section
65583(a)(4) will be
completed within one year
of adoption of the Housing
Element; High Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 138
GOAL E: PRESERVE THE CITY'S ”NATURALLY AFFORDABLE” HOUSING STOCK.
POLICIES:
Policy H(E-1): Rehabilitate structures in poor condition or with structural defects.
Policy H(E-2): Maintain rental opportunities by discouraging large-scale conversion of affordable rental units to condominiums.
Policy H(E-3): Promote programs that protect the city's ”naturally affordable” housing stock.
Policy H(E-4): Pursue federal and State funds for the rehabilitation of lower and moderate income housing.
IMPLEMENTATION PROGRAMS:
Program H(E-1): Housing Rehabilitation.
Through regulations and/or financial assistance,
encourage owners of residential buildings with known structural
defects such as unreinforced garage openings, “soft story”
construction, unbolted foundations, and inadequate sheer walls
to take steps to remedy the problem by retrofitting buildings to
meet current life-safety engineering standards. Conduct targeted
outreach on any rehabilitation funding or programming to areas
of the city with higher rates of renter cost burden annually after
program launch to prevent displacement.
Eight Year Objective:
Retrofit five multifamily residential buildings per year. Assume 10
units per building average, for a total of 400 units.
Funding Source Responsible Agency Time Frame & Priority
Housing Fund,
CDBG funds
Community
Development Dept.
Establish program within
two years of adoption of
the Housing Element.
Ongoing thereafter.;
Medium Priority
Program H(E-2): Discourage large-scale condominium
conversions.
Maintain the existing zoning controls which prohibit conversion of
residential rental projects with fewer than 21 units to
condominiums.
Eight Year Objective:
Limit conversion of existing rental stock to condominiums to no more
than 10 units per year/80 units total.
Funding Source Responsible Agency Time Frame & Priority
N/A Community
Development Dept.
Ongoing.; Low Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 139
IMPLEMENTATION PROGRAMS:
Program H(E-3): Ensure affordability of existing units.
Encourage use of available programs and housing funds to assist
non-profit housing corporations in acquiring, rehabilitating and
managing existing apartment units for long-term affordability.
Eight Year Objective:
Utilize funds to assist 40 existing units to achieve long term
affordability.
Funding Source Responsible Agency Time Frame & Priority
Housing Fund,
County Funds
Community
Development Dept.,
City Manager, City
Council
5 units per year over 8
years; Medium Priority
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 140
Quantified Summary of Objectives
As required by Section 65583 of the California Government Code, the goals, policies, and
actions in this chapter seek to meet quantified housing objectives. Table HE-35 summarizes the
number of housing units, by income level, that can be constructed, rehabilitated, and conserved
over a five-year time period. Most of these units will be produced through new construction.
Although the City expects some homes to be improved or rehabilitated, some of these
upgrades may not meet the definition of “substantial rehabilitation” as required under Section
65583. Planning staff consulted with the Building Official and Code Enforcement Officer and
determined that no units within the city have been found to be unfit for human habitation.
Table HE-35: Quantified Summary of Objectives – First Five Years of the Housing Element
Work Program (2023-2027)
Income New Construction Rehabilitation2 Conservation /
Preservation³
Extremely Low1 177 25 5
Very Low 393 50 10
Low 346 75 10
Moderate 311 100 0
Above Moderate 855 0 0
Total 2,036 250 25
1 Based on affordable developments in Burlingame, assumes 30% of Very-Low Income units in the Sites
Inventory would be affordable to Extremely Low-Income households.
2 Assumes 10 buildings per year with an average of 10 units per building, per Program H(E-1).
3 Assumes 5 units per year of naturally occurring affordable housing is conserved/preserved per year, per
Program H(E-3).
Source: Burlingame Community Development Department, 2022
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 141
Data Sources
City of Burlingame
Community Development Department
Finance Department
Code Enforcement
Public Works Department
California Housing and Community Development
Census 2000, 2010, 2020
2014-2019 and 2015-2020 American Community Survey
California Department of Finance, 2013
21 Elements
San Mateo County Department of Housing
Zillow Real Estate
San Mateo County Association of Realtors
2019 San Mateo County One Day Homeless Count
2019 Flood Insurance Rate Maps, City of Burlingame
Demographic, economic, and housing data, prepared by 21 Elements
Projections from the Association of Bay Area Governments Projections forecasts for the San Francisco
Bay Area as part of their adopted Plan Bay Area 2050 project, in addition to ABAG’s Certified Final
2031 Regional Housing Needs Allocation (RHNA)
San Mateo Association of REALTORS Annual Reports 2010-2020.
U.S. Department of Housing and Urban Development (HUD), Comprehensive Housing Affordability
Strategy (CHAS) ACS tabulation, 2013-2017 release.
2019 San Mateo County One-Day Homeless Count
City of Burlingame, Annual Element Progress Report for Housing Element Implementation 2015-2021
California Housing Partnership Corporation Study, 2014
Root Policy Research
San Mateo County Comprehensive Airport Land Use Plan
CITY OF BURLINGAME 2023-2031 HOUSING ELEMENT HE - 142
Appendices
Appendix A: Review of RHNA Programs
Appendix B: Community Outreach Summary
Appendix C: Affirmatively Furthering Fair Housing Analysis
Appendix D: Sites Inventory