Agenda Item Wording:
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Multi-family Residential Ordinance Discussion - Receive and review draft ordinance amendments for multi-family residential development to establish Objective Design standards and to increase the threshold of number of units permitted by-right in the R-M zone districts, and provide staff with direction on these changes prior to proceeding with holding a public hearing.
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Agenda Date: 11/16/2026
Prepared by:
Brandon Smith, Principal Planner, brandon.smith@visalia.gov, (559) 713-4636;
Paul Bernal, Planning and Community Preservation Director, paul.bernal@visalia.gov, (559) 713-4025
Department Recommendation:
Staff recommends that City Council receive the staff report and presentation on the draft ordinance amendments for multi-family residential development, including the proposed objective design standards (ODS), and provide staff with any input or desired changes to the amendments prior to scheduling formal public hearings for Zoning Ordinance Text Amendments in December 2026. These ordinance amendments are required actions under Housing Element Implementation Programs 1.3 and 3.2, and are identified by the Element to be completed by 2026.
Summary:
At the beginning of 2026, staff initiated the preparation of a set of Objective Development Standards (ODS) intended to apply toward construction of any new multi-family residential developments throughout the City. This work was initiated based upon the City of Visalia’s 6th Cycle Housing Element (“Housing Element”), which require the adoption of objective design standards, together with amending the Zoning Ordinance to provide a ministerial approval process for large multi-family residential developments up to 200 units, by 2026.
The effort was completed in-house, based upon staff’s recent experience of overseeing preparation of a new set of objective design standards for Single-family Residential development as a consultant-led effort. The Single-family Residential ODS was adopted by Council on April 21, 2025, through Council Resolution No. 2025-30. This experience provided staff with the experience of overseeing adoption of a new set of standards, and the familiarity of the typical contents of a new set of standards, together with the confidence that such an effort could be completed by the Housing Element’s timeframe of 2026.
The preparation of the Multi-family Residential ODS are intended to fulfill other objectives as well. The ODS assist in solidifying the City’s and staff’s long-standing desire to have a regulatory document that promotes more desirable and attractive multi-family dwelling units built in Visalia’s marketplace, as further described and directed in General Plan Land Use Policy LU-P-52. The proposed revisions are also intended to provide greater consistency and predictability for project design and review while ensuring the standards are responsive to the City’s planning goals and development patterns.
Past efforts to establish a set of expectations and preferences have included preparation of a Multiple-Family Residential Development Guidelines document by an appointed Development Standards Task Force in 2006 which was not formally adopted by the City Council. Whereas the Guidelines document provided a set of goals, expectations, and some mandates towards site and building development, the guidelines did not carry the regulatory mandate as would an adopted Ordinance or Resolution, nor were carried over into objectives and policies in a General Plan. The ODS differ in that they provide explicit objective code-like mandates towards various aspects of the development that result in quality development and design solution that respond to the context of the surrounding neighborhood, including single-family residential uses.
The updates are further needed for the City’s Zoning Ordinance in response to new and significantly increased state legislation in recent years which have made the City’s ordinances outdated in addressing emerging topics of the applicability of defined objective standards (as opposed to subjective standards) toward new residential uses, and which mandate the approval of housing developments if they are found to be in compliance with the General Plan and Zoning Ordinance.
The result will be a set of standards which City staff will utilize to review against new projects, and wherein staff can comfortably support a project based on compliance with the standards. The ODS also provides the design requirements to support increasing the threshold of units permitted ministerially in the R-M zones, from 80 up to 200 units. The threshold increase is also a required action under Housing Element Implementation Programs 1.3 and 3.2, identified by the Element to be completed by 2026.
Outreach:
Similar to the effort that was coordinated for the Single-family Residential ODS, staff conducted public outreach to stakeholders at the onset of the effort and commencing again with the completion of a Public Review Draft. Virtual and in-person interviews were conducted with local stakeholders (e.g. developers, builders, architects, and City Solid Waste staff) to gain feedback on the City’s residential development regulations and review processes, and to ensure that the standards would be practical, achievable, and reflective of real-world construction and market conditions . A total of 13 persons were interviewed through 5 meetings.
The City released a Public Review Draft of the Multi-family Residential ODS for a review period from August 27th to September 18th, 2026 (23 days total). Announcement for the public review period was conducted via an email blast to 42 stakeholders. Two public comments were received during the public review (see Attachments 5 and 6). In response to these comments, staff made minor changes to the ODS and released a Public Hearing Draft on October 16th in tandem with a public hearing before the Planning Commission on October 26, 2026. Related to the Planning Commission public hearing item held on October 26, 2026, no additional written comments were received, and no verbal comments were given at the public hearing.
New Draft Multi-family Residential Objective Design Standards - Attachment 1
The City’s Multiple-Family Residential Design Standards establish objective design standards that address a range of design topics to shape buildings and their relationship to the public realm. The standards are intended to apply to different projects, sites, and contexts, while balancing predictability and flexibility in design. The Multiple-Family Residential ODS are measurable and verifiable, and are intended to provide the public, building and design professionals, and decision makers with objective criteria for development. The Multiple-Family Residential ODS serve as minimum requirements that apply to multi-family residential and mixed-use development projects that include multi-family residential, and which are eligible for ministerial review.
The proposed Multiple-Family Residential ODS standards will work in tandem with other existing objective standards that address residential development standards (i.e. setbacks, building height, etc.) in the review of eligible development applications. Such development standards for multi-family residential lots, found in Chapter 17.16, will remain in place, with some limited corresponding changes addressed in the Text Amendment section of this agenda item below.
The Multiple-Family Residential ODS assist with expediting a development’s ministerial review process. This is done by providing more narrowly defined expectations up-front to ensure that new multi-family residential development is compatible with Visalia’s existing community character while complying with both state and local regulations. Builders will have access to these regulations through the City’s Municipal Code and City website and can apply the regulations to development prior to any preliminary or formal review process conducted by the City.
Applicability
The ODS will apply to any new multi-family development project that is submitted for application following the effective date of the ordinance. The new standards will not apply to previously approved projects (i.e. projects having received Conditional Use Permit approval) or projects have been submitted and are in process of being deemed for completeness or are being prepared for public hearing.
The ODS will not apply to the following types of development:
1. Attached dwelling units located in a Single-family Residential (R-S) zone district and permitted through Senate Bill 9, effective 2021.
2. Accessory dwelling units (ADUs) associated with a multi-family residence.
3. Sites listed on the City’s Local Register of Historic Structures.
4. Structures being constructed to replace those destroyed by fire or other disaster, provided that the original units were lawfully constructed prior to the effective date of the ODS, and that the number of dwelling units being constructed will not be an increase from the number of units that were destroyed.
Outline
The proposed ODS are provided in the attached Attachment 1. The outline and section headings of the proposed ODS are provided below.
1. Purpose and Applicability.
A. Purpose.
B. Applicability.
C. Definitions.
D. Exception Powers of the Planning Commission.
2. Site Planning.
A. Site Development.
(Building Setbacks; Rear Setback Reduction; Parking Setbacks; Height. Parking; Solid Waste)
B. Parking Area Placement.
C. R-S Transition Standards.
(Height; Setbacks; Upper Floor Stepbacks; Landscape; Screening Fence)
D. Pedestrian Access.
E. Pedestrian Connectivity and Block Size.
3. Structure Design Standards.
A. Articulation.
(Outward Facing Massing; Outward Facing Wall Modulation; Vertical Articulation on All Elevations; Window and Door Placement)
B. Window and Door Design.
C. Building Materials and Finishes.
(Materials; Colors)
D. Unit Entryways for Exterior Entrances.
E. Unit Entryways for Interior Entrances.
F. External Stairs, Corridors, and Hallways.
4. Utility and Service Areas.
5. Landscaping.
A. Plantings and Materials.
B. Landscaping in Parking Areas.
6. Fences, Walls, and Hedges.
A. Height.
B. Materials.
C. Requirement When Adjacent to Residential Uses.
7. Exterior Lighting.
8. Open Space and Common Areas.
A. Calculation of Open Space.
B. Common Open Space.
C. Recreational Amenities.
D. Private Open Space.
E. Minimum Open Space Reduction.
Attachment 2 highlights the differences between the existing Zoning Ordinance Chapter 17.16 (Multi-family Residential) standards and the proposed ODS standards to facilitate comparison. Please note that the table in this attachment is not a comprehensive summary of all proposed revisions.
Recommended Revisions to Title 17 (Zoning Ordinance)
ODS Implementing Language
Staff anticipates that, similar to the Council’s adoption of the Single-family Residential ODS in 2025, adoption of the proposed Multi-family Residential ODS would also be by City Council resolution, for ease of future revisions if necessary. As a result, the approved ODS would only be specified in a City Council resolution without corresponding municipal code section numbers. An Amendment to the Zoning Ordinance text would therefore be necessary to include reference in the Zoning Ordinance to the applicability of the Multi-family Residential ODS requirement to all new multi-family residential developments.
The addition of the following text to Chapter 17.16 (Multi-family Residential) would complete the necessary revision to the Zoning Ordinance for the administrative enforcement of the ODS.
DRAFT 17.16.210 Objective Design Standards.
Project proponents of multi-family residential developments that are subject to approval by the Site Plan Review Staff or the Planning Commission are required to adhere to the Objective Design Standards as specified by Resolution of the Visalia City Council, and may be subsequently amended by resolution. The purpose of the standards are to provide proponents with a clear understanding of the City’s expectations for all residential project design and streamline the construction of housing units by reducing subjectivity in the entitlement process. Before the issuance of a building permit for each primary dwelling unit, the project proponent shall demonstrate the development’s compliance with the Objective Design Standards, utilizing any forms approved by the City for determining compliance.
Revisions to Existing MFR Standards in Zoning Ordinance to Align With ODS
The Multi-family Residential ODS would work in tandem with the Zoning Ordinance’s existing language that already enforces certain “objective” standard, such as setbacks, building height, fencing regulations, open space regulations, and parking. As a result of the proposed ODS, certain objective standards within the Zoning Ordinance would need to be revised if the Multi-family Residential ODS are adopted. The following explains the recommended revisions to sections in Chapters 17.16 (Multi-family Residential) and 17.34 (Off-Street Parking and Loading Facilities).
Rear Yards
• The ODS recommends, as part of the Site Development Standards, a “Rear Yard Reduction” option for reducing a new development’s rear yard setback if an equal amount of open space is placed elsewhere on-site. New text that explains this option is recommended to be added to the existing Municipal Code section:
Section 17.16.090 Rear yard
D. The construction of any new multi-family residential developments and units is eligible for a reduction to the rear yard setback when meeting the “Rear Yard Reduction” conditions contained in the Objective Design Standards as specified by Resolution of the Visalia City Council.
Height
• The existing Municipal Code specifies height limits in terms of number of stories ( 3 stories in the R-M-2 zone and 4 stories in the R-M-3 zone) without a maximum height requirement in terms of feet. Therefore, it is recommended that the Multi-family Residential ODS and the corresponding Zone Text Amendment add a height limit in terms of feet. The proposed height limits are 40 feet in the R-M-2 zone for up to 3-story development, and 50 feet in the R-M-3 zone for up to 4-story development.
Screening Requirement for Single-family Residences
• The proposed Multi-family Residential ODS revises and expands the number of requirements when multi-family residential uses share a property line with residences located in the Single-family Residential (R-S) Zone. The recommended ODS contains the following new requirements when an R-M site shares a property line with a R-S site:
o height,
o setbacks,
o upper floor stepbacks,
o landscape, and
o a screening fence.
Based on the inclusion of these enhanced standards, the existing code to limit visibility from the upper stories of multi-family structures is recommended to be removed and solely rely on the ODS Transition Standards.
* Please note that comments were made by the Planning Commission at the public hearing held on October 26, 2026, wherein the screening requirement should be retained and incorporated into the proposed ODS. See separate section below for additional information.
The revised Municipal Code section incorporating height and screening changes is:
17.16.100 Height of structures.
The maximum height of structures shall be thirty-five (35) feet or three (3) stories whichever is taller and no taller than forty (40) feet in the R-M-2 zone. The maximum height shall be four (4) stories and no taller than fifty (50) feet in the R-M-3 zone. Where an R-M-2 or R-M-3 site adjoins an R-S site, the second and subsequent stories shall be designed to limit visibility from the second and third story to the R-S site. Structures specified under Section 17.16.090(B) shall be exempt.
Calculation of Open Space
• The existing Municipal Code specifies an open space requirement of at least five (5) percent of the total site area. The ODS revises and expands the detail of requirements for open space and common areas. Specifically, the amount of required open space is replaced with square feet per unit and based on zoning. The ZTA also eliminates the subjective criteria of the specific size, location, and type of areas to be approved as part of a conditional use permit requirement. The revised Municipal Code section is:
17.16.150 Open space and recreational areas.
Any multiple family project approved under a conditional use permit or site plan review permit shall dedicate at least five (5) percent of the site to open, common, usable space and/or recreational facilities for use by tenants as a part of that plan. The calculated space shall not include setback areas adjacent to a street. Shared open space could include parks, playgrounds, sports courts, swimming pools, gardens, and covered patios or gazebos open on at least three (3) sides. Further, the calculated space shall not include enclosed meeting or community rooms. The specific size, location and use shall be approved as a part of the conditional use permit. All multi-family residential developments are required to adhere to the objective design standards for open space and common areas, which include recreational amenities when applicable, as specified by resolution of the Visalia City Council.
Parking Area Screening
• The existing Municipal Code requires screening subject to the requirements of the Site Plan Review staff. To provide more clarity and to specifically direct the public to the screening requirements found in the Multi-family Residential ODS, this section would be revised as noted below.
17.16.160 Screening.
All parking areas adjacent to public streets and R-S sites shall be screened from view subject to the requirements and procedures of Chapter 17.28 the Objective Design Standards as specified by Resolution of the Visalia City Council.
Screening Fence
• The ODS recommends, as part of the set of R-S Zone Transition Standards, that the height of a mandatory screening fence between single-family and multi-family residential uses be increased from six feet to seven feet in height.
17.16.170 Screening Fence.
Where a multiple family site adjoins an R-S site, a screening block wall or wood fence made of solid material and not less than six seven feet in height, measured from highest adjacent grade, shall be located along the property line; except in a required front yard, or the street side of a corner lot, and suitably maintained.
Off-street Guest Parking Requirements
• The existing Municipal Code specifies the numbers of parking space requirements, and delegates the Planning Commission or the Site Plan Review Staff, when applicable, the authority to require additional guest parking spaces. The ODS and the recommended ZTA make guest parking mandatory for all developments at the same rate of one additional parking space for every four (4) dwelling units.
17.34.020 Schedule of off-street parking space requirements.
A. Residential.
2. Multi-family dwelling: 1.5 parking spaces per dwelling unit for all multi-family developments with the following exceptions:
a. One parking space per dwelling unit for senior citizen housing developments. Senior citizen means a person of fifty-five (55) years of age or older. Senior citizen housing development shall be defined as a multi-family project wherein the units are made available solely to senior citizens,
b. Planning Commission shall have the authority to require an additional .25 parking spaces per dwelling unit for guest parking spaces under the following circumstances:
i. Should on-street parking not be available to provide a minimum of .25 spaces per unit;
ii. Within developments that include more than fifty (50) percent of the units as three or four bedroom units.
iii. The multi-family unit is not deemed as affordable housing and is not a single-room occupancy, studio, or one-bedroom units.
Guest parking spaces associated with development shall be provided at a rate of one additional parking space for every four (4) dwelling units.
c. In cases where multi-family developments do not require planning commission review, the site plan review staff shall have similar authority as described above. If the calculation of required parking spaces results in the requirement of a fractional space, such fraction, if the fraction is less than one-half, it shall result in no additional spaces; if one-half or greater, it shall be considered one additional space.
d. One (1) parking space per dwelling unit for multi-family developments deemed as affordable housing and multi-family units which are single-room occupancy, studio, or one-bedroom units.
Planning Commission Recommendation on Screening Requirement
The Planning Commission held a public hearing on October 26, 2026, on the two Zoning Text Amendments related to the ODS and the unit count threshold increase. The Planning Commission approved the staff recommendation to recommend approval of the ODS and the unit count threshold increase. Notwithstanding the Planning Commission’s recommendation, multiple commissioners expressed a desire to incorporate additional ODS language that includes a screening requirement between R-M and R-S Zone Districts.
Specifically, the Commission desired a screening requirement incorporating practices that developers have used in past multi-family projects to comply with the Zoning Ordinance language in Section 17.16.110: “Where an R-M-2 or R-M-3 site adjoins an R-S site, the second and subsequent stories shall be designed to limit visibility from the second and third story to the R-S site.” Examples of practices have included requiring that any windows facing single-family residential uses be placed six feet (6’) or more above floor level or incorporate opaque glazing or treatment.
The proposed ODS currently relies on other “transition standards” between the R-M and R-S zones; the standards address height, setbacks, stepbacks, planting of trees, and a solid 7-foot tall screening fence.
If Council concurs with the comments made by Planning Commission, then Council can direct staff to add the additional screening requirement into the proposed ODS, utilizing language that spells out when an applicant must provide screening (e.g. buildings within 75 feet of a R-S property line) and types of screening allowed (e.g. windows placed above eye level, opaque window treatment, garage structures placed within transition area).
Recommended Increase to Unit Count Threshold for R-M Zones
Housing Element Implementation Programs 1.3 and 3.2 also commit the City to increase the number of multi-family dwellings per site allowed as a use permitted by-right on properties in the R-M-2 and R-M-3 zone districts. Specifically, the Housing Element programs state to amend the Zoning Ordinance to “increase the maximum unit threshold for by-right processing from 80 units to 200 units”.
The proposed ZTA represents one specific change for the purpose of removing constraints to a variety of housing types and ensuring compliance with State law. This change is accomplished by revising Sections 17.16.020 and 17.16.040 in Zoning Ordinance Chapter 17.16, wherein these sections define uses permitted by-right and uses permitted with a conditional use permit.
• Under Section 17.16.020 Permitted uses, the number of multi-family dwellings allowed per site would change from 80 to 200 units.
• Under Section 17.16.040 Conditional uses, the number would increase from “More than 80 units per site” to “More than 200 units per site”.
To assist with the transition from increasing the unit threshold from 80 to 200 units, the Housing Element commits the City to establish the ODS for multifamily residential uses at the same time. These standards would provide explicit objective code-like mandates towards various aspects of the development that result in quality development and design solution that respond to the context of the surrounding neighborhood, including single-family residential uses.
Background
As part of the Housing Element Update, the City held stakeholder interviews and met with key constituent representatives appointed to serve on a Housing Technical Advisory Committee, which included representation from the building industry and from nonprofit builders. Among the comments received was that limiting by-right processing to projects with a maximum of 80 units is a constraint to large site development, and that this standard should be increased or removed. In response, Program 1.3 was written to increase the maximum unit threshold for by-right processing from 80 units to 200 units. Additionally, ministerial review is identified as one of the incentives appropriate to encourage affordable multi-family housing development (Program 3.2), lot splits (Program 3.17), and reasonable accommodation (Program 5.8).
Prior Housing Elements have also contained programs to increase the threshold for number of units allowed by-right, to address what has been seen as a constraint to the development of some projects. Thus, addressing the constraint to development through the increase of unit count has, over time, been an established practice and has not been viewed as resulting in incompatible projects.
• The 2005 (3rd Cycle) Update amended the unit threshold from 11 to 40 units.
• The 2010 (4th Cycle) Update amended the unit threshold from 40 to 60 units.
• The 2015 (5th Cycle) Update amended the unit threshold from 60 to 80 units
Given the progression of increases to the unit threshold in increments ranging from 20 to 29 units, it may be reasonable to follow that the current Housing Element programs would recommend an increase to a 100 or 120 unit threshold. However, the Housing Element’s discussion on Conditional Use Permits recalled the Visalia Planning Commission’s approval of a conditional use permit for a 17.5-acre 200-unit apartment complex in the R-M-2 zone district in 2017, pertaining to the now-built Tuscany Villas complex at the northeast corner of Shirk Street & Doe Avenue. This CUP included conditions of approval that are typical requirements of multi-family residential developments as already enforced through the Site Plan Review process and the Zoning Ordinance, including:
• Conformance to site plan, floor plans, and elevation plans as provided, including adhering to design and setback standards proposed by developer that may exceed the City’s standards,
• Requirement of landscape and irrigation plans with submittal of building permits, including placement of street trees,
• Construction of solid masonry perimeter walls adjacent to single-family residential uses,
• Wrought iron fence around street frontages,
• Placement of evergreen trees in line with access drives to reduce potential headlight glare into adjacent single-family residences,
• Noise attenuation screening of ground mounted AC units.
• Acceptance of the City’s Good Neighbor Policies for ongoing management of the project.
The case of this previously approved 200-unit apartment complex that adhered to City standards and resulted in a reputable and well-designed residential complex was likely taken into consideration towards recommending an increased threshold.
Trend of Unit Counts of MFR Developments
Attachment 3 provides the unit counts of multi-family residential developments that have been approved by Conditional Use Permits, dating back to 2002. This chart only pertains to developments which are in the R-M-2 and/or R-M-3 zone district only. The chart does not illustrate multi-family residential developments located in non-residential zones, which would require a Conditional Use Permit for any unit count.
The chart illustrates that since 2020, the City has processed, on average, between one (1) and two (2) CUPs annually for multi-family development in the R-M-2 and/or R-M-3 zone districts based on unit count. Beginning in 2020, the City began receiving requests for developments exceeding 200 units, many of which have consisted of three-story units. The Conditional Use Permit with the largest unit count to date is for the 442-unit Pinnacle development, approved in 2026 at the northeast corner of Riggin Avenue and Roeben Street, which consisted of three separate communities within one 29-acre R-M-3 zoned site.
Since 2015, when the current threshold of eighty (80) unit was established, four (4) of the ten (10) CUPs processed have been in the range of 81 to 200 units. These four developments are summarized Attachment 4. This attachment also lists four other constructed projects in the range of 81 to 200 units approved prior to 2015, to give context on the types of projects that could be built with a threshold increase of up to 200 units.
Analysis regarding an Intermediate Unit Threshold
Staff believes that the increase of the permitted by-right threshold from 80 to 200 units can be supported based in part upon the concurrent adoption of ODS applicable to all new multi-family residential development. However, if the City Council has concerns that recommending a 200-unit threshold may be too strong of an increase, then staff would recommend that the threshold still be increased but to a lower amount. Adoption of a lower amount would not explicitly fulfill the Housing Element Program action, though it would still be in keeping with the spirit of the Program to increase the maximum unit threshold for by-right processing, up to 200 units. It should be noted that the City’s history of multi-family residential projects (see Attachment 4) has only seen one project proposed in the range of 81 to 160 units since 2005, and three projects proposed in the range of 161 to 200 units, meaning that a lower threshold may not result in a significant impact toward reducing constraints on a large number of potential projects.
Fiscal impact including annual maintenance and operating costs:
No fiscal impact.
Prior Council Action:
None.
Alternatives:
The City Council may, in lieu of the recommended motion to continue proceeding with the Zoning Ordinance Text Amendments, direct staff to incorporate one or more of the following revisions:
• To the Multi-family Residential Objective Design Standards, add additional screening requirements between development in the R-M and R-S Zone districts.
• To the permitted by-right unit threshold, recommend a specific threshold unit threshold that is above 80 units and less than 200 units (i.e. 100, 120, or 160 units).
Recommended Motion (and alternative motions if expected):
recommendation
I move to direct staff to proceed with scheduling formal City Council public hearings for Zoning Ordinance Text Amendments regarding Multi-family Residential Objective Design Standards and increase of the permitted by-right threshold, in December 2026
Environmental Assessment Status:
No environmental assessment required at this time associated with the work session item. The adoption of any ordinance changes will require environmental documentation pursuant to the California Environmental Quality Act (CEQA) to be completed by staff.
California Environmental Quality Act (CEQA) Review:
The requested action is not a “project” under CEQA.
Deadline for Action: 11/16/2026
Attachments:
Attachment 1: Public Hearing Draft of ODS presented to Planning Commission
Attachment 2: Table Summarizing Differences between Existing and Proposed Multi-family Residential Standards
Attachment 3: Chart Illustrating Unit Counts of MFR Developments Approved by CUPs
Attachment 4: List of MFR Developments Approved by CUP, Ranging from 81-200 Units
Attachment 5: Comment Letter #1 on Public Review Draft of ODS
Attachment 6: Comment Letter #2 on Public Review Draft of ODS
Strategic Goal: Indicates which City Strategic Goal(s) this item supports. Select all that apply.
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