V18_Final_MUZ_code_concept_report_05-21-15_edited

Mixed Use Zones Project
Code Concepts Report
City of Portland
Bureau of Planning and Sustainability
May 2015

How to Comment …
This report describes the development and design concepts that will be used to create specific zoning
code language for the Mixed Use Zones (MUZ) Project. During the initial code development stage, the
Project Advisory Committee (PAC) will continue to meet, discuss and provide feedback to staff. The PAC
is not a decision-making body and is composed of members with disparate interests and perspectives,
which may not lead to consensus on issues. PAC meetings are open to the public, and there is a period
reserved at each meeting for the general public to comment. Staff will also continue to accept informal
comments from the public in this phase of initial code development.
Information about the Mixed Use Zones Project is posted on the project website at:
www.portlandoregon.gov/bps/mixeduse.
To comment on the MUZ Code Concepts Report …
Email: mixedusezones@portlandoregon.gov
Write: City of Portland Bureau of Planning and Sustainability
Attn: Mixed Use Zones Project
1900 SW 4th
Ave, Suite 7100, Portland, OR 97201
Call: 503-823-7700
Next Steps
Discussion Draft: Another comment period will occur after the first draft of the zoning code, called a
Discussion Draft, is released in summer 2015. Public comments to staff will be accepted on that draft for
approximately 45 days.
Proposed Draft: Based on Discussion Draft feedback, a Proposed Draft will be published in autumn 2015
for Planning and Sustainability Commission (PSC) consideration. The PSC will hold public hearings and
take formal public testimony on that draft during late 2015. They may amend the proposal and will then
vote to recommend the changes Portland City Council. This is called the Recommended Draft.
Recommended Draft: The Portland City Council will hold additional public hearings and take formal
public testimony on the Recommended Draft. The City Council may amend the Recommended Draft
before they vote to adopt the provisions. This will likely occur in early 2016.

Mixed Use Zones Project
Code Concepts Report – May 2015
Contents
1. Introduction
A. What is the Mixed Use Zones Project? 1
B. Project Process 1
C. What’s in this Report? 2
2. Mixed Use Zoning Concept
A. New Base Zones 3
B. Including Residential in Floor Area 4
C. Adding Bonus Incentives to the Base Zones 4
D. Summary of Use Allowances and Development Standards 4
E. New Performance Bonuses 8
F. Massing Models of the Zones 10
G. Special Tools for Centers 18
H. Design Standards and Concepts 22
I. Development Capacity Analysis 41
J. Current and New Zones Comparison 42
3. Implementation Approach and Next Steps
A. Develop Zoning Codes 43
B. Zoning Relationships and Locational Criteria 43
C. Apply New Zones to the Zoning Map 44
D. Map the Centers Overlay Zone 45
E. Public Review and Adoption Process 45
Appendix
A. Development of the Zoning Concept
B. Public Outreach Process and Stakeholder Feedback
C. Preliminary Zoning Concept
D. Mixed Use Building Form Prototypes and Financial Analysis
E. Project Advisory Committee Charter
F. Preliminary Concept Public Workshops Summary
G. Revised Concept Public Information Sessions Summary
H. Transportation and Parking Demand Management Options
Mixed Use Zones Project i Code Concepts Report

Acknowledgments
This report was written by Mixed Use Zones Project staff from the City of Portland Bureau of Planning
and Sustainability. Specific contributions from the project Consulting Team are included in the Appendix.
Bureau of Planning and Sustainability
Charlie Hales, Mayor, Commissioner–in-charge
Susan Anderson, Director
Joe Zehnder, Chief Planner
Project Staff
Eric Engstrom, Principal Planner
Barry Manning, Senior Planner, Project Manager
Shannon Buono, Senior Planner
Bill Cunningham, City Planner
Lora Lillard, City Planner, Urban Design
Tyler Bump, Economic Planner
Courtney Ferris, Community Service Aide
Nick Kobel, Community Service Aide
Samantha Petty, Community Service Aide
Consulting Team
Dyett & Bhatia, Urban and Regional Planners
Deca Architecture
Johnson Economics
William Tripp, Architect
Advisory Committee Members
Jason Barnstead-Long, Robert Boileau, Lori Boisen, Tim Brunner, Eric Cress, Daryl Garner, Carol Gossett,
Brendon Haggerty, Damien Hall, Michael Hayes, Heather Hoell, Duane Hunting, Sarah Iannarone, Lauren
Jones, Doug Klotz, Charlotte Larson, Susan Lindsay, James McGrath, Jason Miner, Dennis Petrequin, Cora
Potter, Curt Schneider, Vicki Skryha, Yu Te, Mike Warwick. Former members: Frank Walsh; Steven
Gilliam, Karen Ward
Advisory Committee Facilitation
Deb Meihoff, Communitas, LLC
Technical Advisory Group
Justin Douglas (PDC), Jay Higgins (TriMet), Terra Lingley (ODOT), Julie Livingston (Home Forward), Grant
Morehead (PBOT), Paul van Orden (ONI), Elizabeth Reese-Cadigan (BES), Jason Richling (BDS), Barbara
Shaw (PHB), Kelli Sheffer (PPB), Meganne Steele (Metro), Nate Takara (PF&R)
Mixed Use Zones Project ii Code Concepts Report

1. Introduction
A. What is the Mixed Use Zones Project?
The Mixed Use Zones Project is an initiative to develop new mixed use zoning designations to help
implement Portland’s new Comprehensive Plan (http://www.portlandoregon.gov/bps/57352).
Portland is expected to grow significantly over the next 20 years – in both new households and new
jobs. The development produced by this growth, if located and designed correctly, will support and
enhance the qualities that help make Portland an attractive place. As Portland’s population grows, its
households will also change. In the next two decades the size of households is expected to decrease,
and more Portlanders will live alone, and live longer. Accommodating this need, roughly 80% of new
housing built over the next 20 years is expected to be multifamily development, much of it in centers
and corridors within the mixed use zones.
The Mixed Use Zones Project will revise Portland’s “Commercial” and “Central Employment” zoning
codes (http://www.portlandoregon.gov/bps/31612) applied in centers and corridors outside of the
Central City. These zones (CN1, CN2, CO1, CO2, CM, CS, CG, CX, EX) were created over 20 years ago
when auto-oriented and low intensity commercial uses were more common. The project addresses
issues that arise with new more intensive mixed use buildings, such as: massing and design, transitions
and step-downs, and ground floor uses. It also addresses opportunities to realize Comprehensive Plan
goals and policies through new development.
B. Project Process
The Mixed Use Zones Project began in early 2014, and is being conducted in four major phases (Figure 1-
1). The project is partially funded by a Metro Construction Excise Tax (CET) grant. City project staff is
As Portland grows, development in the commercial /mixed use zones will meet
an increasing share of the city’s housing and employment needs.
Mixed Use Zones Project 1 Code Concepts Report

assisted by a consulting team led by Dyett & Bhatia Urban and Regional Planners, with William C. Tripp
Architect, Deca Architecture, and Johnson Economics.
The project includes extensive public involvement, including a Project Advisory Committee (PAC) of
representatives from neighborhoods, business groups, architecture/design interests, real estate and
development experts, and other groups. A Technical Advisors Group (TAG) composed of city and service
agency representatives also provides input and advice.
Figure 1-1: Project Process - Revised
Phase and Milestones Tasks
1 Research and Assessment
March to September 2014
• Assessment Report – October 2014
• Evaluate Portland’s current mixed use development and
design regulations to determine what is working well and
what needs improvement.
• Research best practices and zoning approaches other cities
have used to create successful, walkable urban centers.
2 Concept Development
August 2014 to April 2015
• Concept Report – May 2015
• Develop a framework for new mixed use zones that responds
to different geographic contexts and the types of places
called out in the new Comprehensive Plan.
• Analyze development feasibility and explore how incentives
can be used to achieve key goals.
3 Code Development
May 2015 - September 2015
• Discussion Draft Summer 2015
• Proposed Draft Fall 2015
• Revise zoning regulations to implement the mixed use zones
framework.
4 Public Hearings/Adoption
Fall 2015 (tentative)
•PSC Hearing Fall 2015
•Council Hearings Early 2016
• Planning and Sustainability Commission public hearings.
• Portland City Council public hearings.
C. What is in this Report?
The Mixed Use Zones Code Concepts Report includes conceptual information on the proposed approach
to creating new commercial/mixed use zones that will be applied in centers and corridors throughout
Portland. The information in the report builds on and adds detail to a Preliminary Zoning Concept
released in November 2014 (Appendix C). Additional analysis and refinement of the concepts will occur
after publication of the concept and some elements described in this report are expected to change as
part of the process. This will lead to publication of a Discussion Draft for public review that includes
more detailed and revised concepts and proposed zoning code language.

2. Mixed Use Zoning Concept
A. New Base Zones
The new framework for Commercial/Mixed Use zones reduces the nine current zones to four; these will
be applied to centers and corridors outside Portland’s Central City. The four zones include three mixed
use zones that vary by the scale of development allowed and one medium-scale zone for predominantly
commercial and employment uses not located in a center. The code for the new zones includes new
development and design standards. The following is a description of the proposed zones.
Commercial Mixed-Use 1 (CM1) This small-scale commercial mixed use zone is intended for sites
in smaller mixed use nodes within lower density residential areas, as well as on neighborhood
corridors, and at the edges of neighborhood centers, town centers and regional centers. This zone
allows a mix of commercial and residential uses. The size of commercial uses are limited in some
locations to minimize impacts on adjacent residential uses. Buildings in this zone are generally
expected to be up to three stories. Development is intended to be pedestrian-oriented and
generally compatible with the scale of surrounding residentially zoned areas.
Commercial Mixed-Use 2 (CM2) This medium-scale commercial mixed use zone is intended for
sites in a variety of centers and corridors, and in smaller mixed use areas that are well served by
frequent transit or within a larger area zoned for multi-dwelling development. The zone allows a mix
of commercial and residential uses, as well as employment uses that have limited off-site impacts.
Use regulations encourage neighborhood-scale retail and services, and employment opportunities.
Buildings in this zones are generally expected to be up to four stories, unless height and floor area
bonuses are used to provide additional community benefits. Development is intended to be
pedestrian-oriented and complement the scale of surrounding residentially zoned areas.
Commercial Mixed-Use 3 (CM3) This large-scale commercial mixed use zone is intended for sites
close to the Central City, in high-capacity transit station areas, town centers, and on Civic Corridors.
The zone allows a wide mix of commercial and residential uses, as well as other employment uses
that have limited off-site impacts. Buildings in this zone are generally expected to be up to six
stories, unless height and floor area bonuses are used to provide community benefits or plan district
provisions specify other height limits. Development is intended to be pedestrian-oriented, but
buildings may be larger than those allowed in lower intensity mixed use and residential zones.
Design review is typically required in this zone.
Commercial Employment (CE) This medium-scale commercial employment zone is intended for
sites along corridors in areas between designated centers, especially along Civic Corridors that are
also Major Truck Streets or Priority Truck Streets. The zone allows a mix of commercial uses, as well
as some light manufacturing and distribution/employment uses that have few off-site impacts. The
emphasis of this zone is on commercial and employment uses, while allowing residential uses.
Buildings in this zone are generally expected to be up to four stories. Development is intended to be
pedestrian-oriented, as well as auto accommodating, and complement the scale of surrounding
areas.

B. Including Residential in Floor Area
Today, in commercial zones, the amount of commercial
development possible on a site is limited by a maximum
floor area. The amount of residential development is
currently limited by the height and bulk limits allowed by
the zone. The new mixed use zones concept sets a new
maximum floor area for the zones that includes all uses -
non-residential and residential. The amount of
development would be limited based on the maximum
“base” floor area for all uses on site. The size and form of
the building would be limited by the maximum height limit
and other base zone development standards.
C. Adding Bonus Incentives to the Base Zones
The new mixed use zones concept includes opportunities for
additional amounts of development above “base” zoning
entitlements. These bonuses allow additional floor area,
and in some cases additional height, in return for meeting
design and other performance standards that achieve
Comprehensive Plan objectives and community goals. In the
proposed concept, bonuses are offered for provision of affordable housing, affordable commercial
space, public plazas, green features and preservation of historic resources through transfer of
development rights. The amount of bonus varies by the type and priority of public benefit provided.
Affordable housing is given the highest priority.
D. Summary of Use Allowances and Development Standards
Tables 2-1 and 2-2 below show proposed use allowances and development standards of the new mixed
use zones. The tables reflect changes to the November 2014 Preliminary Zoning Concept parameters
based on evaluation of how they might affect development outcomes and the ability to meet
Comprehensive Plan goals as well as on public comment. The evaluation included development of
building prototype designs that were assessed for impacts on urban design (building mass and form),
impacts on the likelihood of reaching desired development levels and a pro-forma based assessment of
impacts on economic feasibility. Evaluation included consideration of public comment on the proposals
and analysis.
As a result of this evaluation, the base floor area allowances in the CM1, CM2, and CE zones were raised
and the amount of bonus was adjusted in all zones. The evaluation showed that the originally proposed
base floor area allowances in the CM1 and CM2 zones were low enough that it could be difficult to reach
the desired urban form and development capacity to meet basic citywide growth management goals.
The analysis shows that the revised base floor area ratios retain sufficient citywide development
capacity to meet Metro and local growth expectations, and yielded residual land values that created
viable development.
The amounts of bonus floor area that could be reached were also adjusted to improve the practicality
and likelihood that the bonus would be used and produce the desired public benefits. For a bonus to
actually work as an incentive, it must offer enough value over costs to be worth building more than the
base allowances. Setting base FAR too low can potentially depress development rates, leading to
What is Floor Area?
Floor area is the total portion of a
building that is above ground. Floor area
is measured from the exterior faces of a
building or structure. Floor area typically
includes the area devoted to structured
parking that is above ground level.
Whether to count parking or not is being
reconsidered for the Mixed Use Zones
Project.
What is a Floor Area Ratio (FAR)?
FAR is the amount of floor area in
relation to the amount of site area,
expressed in square feet. For example, a
floor area ratio of 2 to 1 means two
square feet of floor area for every one
square foot of site area.

scarcity and rising rents. Setting base allowances too high can undermine the attractiveness of the
bonus system. The floor area ratios in Table 2-2 balance those two factors. Refer to the Mixed Use
Building form Prototypes and Financial Analysis report in the Appendix for additional information on the
prototype and economic analysis.
Table 2-1: Zoning Concept Use Allowances
Use Categories CM1 CM2 CM3 CE
Residential Categories
Household Living Y Y Y Y
Group Living L/CU L/CU L/CU L/CU
Commercial Categories
Retail Sales and Service Y/L Y Y Y
Office Y/L Y Y Y
Quick Vehicle Servicing N L L Y
Vehicle Repair N Y Y Y
Commercial Parking N Y Y Y
Self-Service Storage N N L Y
Commercial Outdoor Recreation N Y Y Y
Major Event Entertainment N CU CU CU
Industrial Categories
Manufacturing and Production L/CU L L L
Warehouse / Freight Movement N N L L
Wholesale Sales N L L L
Industrial Service N L/CU L/CU L/CU
Railroad Yards N N N N
Waste-Related N N N N
Institutional Categories
Basic Utilities Y/CU Y/CU Y/CU Y/CU
Community Service L/CU L/CU L/CU L/CU
Parks and Open Areas Y Y Y Y
Schools Y Y Y Y
Colleges Y Y Y Y
Medical Centers Y Y Y Y
Religious Institutions Y Y Y Y
Daycare Y Y Y Y
Other Categories
Agriculture L/CU L/CU L/CU L/CU
Aviation and Surface Passenger Terminals N N N CU
Detention Facilities N N CU CU
Mining N N N N
RF Transmission Facilities L/CU L/CU L/CU L/CU
Rail Lines and Utility Corridors CU CU CU CU
Y = Allowed Use; L = Allowed, but Special Limitations; CU = Conditional Use; N = No, Prohibited

Table 2-2: Zoning Concept Development Standards
CM1 CM2 CM3 CE
Base Height Limit (stories) 35’ (3) 45’ (4) 65’ (6) 45’ (4)
Base FAR 1.5:1 2.5:1 3:1 2.5:1
Maximum Height Limit with Bonus
(stories)
35’ (3) 55’ (5)* 75’ (7) 45’ (4)
Maximum FAR with Bonus 2.5:1 4:1 5:1 3:1
Maximum Height–
Transit Street ROW < 70 feet
Base height
45’ within 10’
of lot line
45’ within 10’
of lot line
Base height
Maximum Height-
Adjacent to RF-R2.5 Zone
Base height
35’ within 25’ of
R zone lot line
R zone lot line
R zone lot line
Maximum Height-
Adjacent to R2-R1 Zone
Base height
R zone lot line
R zone lot line
R zone lot line
Additional Height Allowed for
Active Ground-Floor Uses
3’ 3’ 3’ 3’
Maximum Building Coverage
% Inner/East/West
90/75/75 100/85/85 100/85/85 90/75/75
Required Landscaping
% Inner/East/West
0/15/15 0/15/15 0/15/15 0/15/15
Exterior Display Areas L L L Y
Exterior Storage Areas N N L Y
Drive Thru Facilities N L L Y
* The 55’ height limit is allowed only in areas with a Mixed Use - Urban Center Comprehensive Plan designation and in areas
with the Mixed Use - Civic Corridor Comprehensive Plan designation where the Design overlay zone is applied.
Notes on the Use Allowances and Development Standards. In general, the proposed new commercial
mixed use zones would allow the same commercial, employment, and residential uses currently allowed
in the equivalent existing zones. There are several specific use changes proposed:
• CM1 zone – commercial limitations: The CM1 zone is intended for small commercial nodes or
locations abutting or within lower density residential areas (for example, at the edge of a
Neighborhood or Town Center). As such, this zone would generally permit only smaller low
impact commercial or employment uses.
Commercial and small manufacturing uses would be limited to 5,000 square feet per use, like
the current CN1 zone, and office uses would be limited to 10,000 square feet on small lots and
in locations that are not on transit streets. Commercial uses are allowed up to 30,000 square
feet per use on transit streets on sites at least 40,000 square feet in size. Drive-thru facilities
and exterior display and storage would not be permitted, and there may be limitations on late
night outdoor seating for bars and restaurants.
• CM2 and CM3 zones – expanded neighborhood scale manufacturing and employment:
Manufacturing and production uses are currently allowed outright in the EX zone, and limited to
10,000 square feet of interior space in the CS zone and CG zone. Examples of neighborhood
businesses in this category include small apparel manufacturers, coffee roasters, bike
manufacturing, print shops, furniture makers, micro-breweries, and commercial kitchens.

In the CM2 zone, up to 15,000 square feet per use of manufacturing and production would be
allowed, if the use is inside a building. This is more than currently allowed in the CS or CG zones.
In the CM3 zone, up to 1:1 FAR of manufacturing and production would be allowed. Additional
research may result in changes to these allowances. Expanded allowances for small scale
manufacturing is consistent with the City’s economic development strategy, because local
manufacturing jobs generally offer higher wages than retail sales and services businesses.
• CE zone – employment emphasis: The CE zone is intended to replace the General Commercial
(CG) zone, but also offer expanded employment opportunities. This would be accomplished be
allowing a wider range or employment uses, akin to the current EX or EG zones.
Manufacturing and production would be allowed in this zone, along with expanded (but still
limited) allowances for warehouse and distribution uses. These uses would be limited to 40,000
square feet per use. A limited amount of exterior storage and display would also be allowed.
In addition, the CE zone would be placed along streets where there is a history of auto-
accommodating uses, such as quick vehicle servicing, vehicle repair, and self-storage. These
auto-accommodating uses would continue to be allowed in the CE zone.
A summary comparison of existing and proposed use allowances is provided section 2.J of this report.

E. New Performance Bonuses
The new Mixed Use Zoning Concept adds a set of performance bonuses that can be used on top of base
floor area allowances. Each zone has a maximum floor area ratio (FAR) allowed for buildings that
include the bonus. The maximum floor area ratios (FAR) with bonus are: CM1 Zone: 2.5:1;
CM2 Zone: 4:1; CM3 Zone: 5:1; CE Zone: 3:1.
The bonus is earned by providing a specific amount of a defined public benefit. Bonus floor area may
also include additional maximum building height as described in Table 2.2 so the additional floor area
can be used on-site. Table 2-3 summarizes the proposed bonuses; a more complete description
follows.
Table 2-3: Performance Bonuses
Bonus Element
Percent of bonus
FAR achievable
Affordable Housing 100%
Affordable Commercial Space 50%
Publicly Accessible Plaza 50%
Historic Preservation 50%
High Performance Green Features 50%
Bonus Elements. The bonus elements below are conceptual, and will be further refined and tested for
implementation feasibility during code development phase of the project.
1. Affordable Housing Units
A project can earn 100% of the allowed bonus
floor area in a given zone by dedicating 25% of the
bonus floor area to residential units with rents
affordable to households earning 60% of median
family income (MFI – see box at right). This is
equivalent to 10% of the entire building floor area.
The bonus would require reporting for compliance
and would be administered by the City, another
public agency, or a third party delegate of the City
(such as a non-profit administrator). An in-lieu fee
is also being considered, consistent with the
Central City approach. This bonus would not be
available in the CE zone.
What is Affordability?
The table below shows Household Size, Median
Family Income, and Monthly Affordable Rent
with a Housing Burden of 30%.
HH Size 100% MFI
(Affordable
Rent)
60% MFI
(Affordable
Rent)
1 $48,600
($1,214)
$29,700
($729)
2 $55,500
($1,388)
$33,400
($834)
3 $62,500
($1,561)
$37,500
($937)
4 $69,400
($1,735)
$41,600
($1,041)
Source: Portland Housing Bureau

2. Affordable Commercial Space
A project can earn up to 50% of the allowed bonus in a given zone by providing commercial space
leasable at a rate that is 25% less than prevailing market rates. This bonus would assist certain types
of commercial uses (list to be developed) that may otherwise be priced-out by rent levels associated
with new development. A project would earn two square feet of floor area for each square foot of
affordable commercial space. A long term leasing arrangement with a Non-Profit Organization
(NPO) or Community Development Corporation (CDC) may be a stipulation of the final bonus
provisions.
3. Publicly Accessible Plaza
A project can earn up to 50% of the allowed bonus in a given zone by creating a publicly accessible
plaza on site. Projects would earn five square feet of floor area for every one square foot of publicly
accessible plaza; the plaza area would be in excess of any required landscaping or open area
elements. An easement would be required to ensure public access. The plaza would be required to
meet minimum dimensional standards, improvement/design standards, and landscaping standards
to be determined during code development phase of the mixed use project.
4. Historic Preservation through Transfer of Development Rights
A project can earn up to 50% of the allowed bonus in a given zone by acquiring and transferring the
un-used development allowances from a nearby designated or inventoried historic building.
Projects would earn one square foot of floor area for every one square foot of transferred area. A
deed restriction noting the transfer of development rights would be required for both the sending
and receiving properties.
5. High Performance Green Features
A project can earn up to 50% of the allowed bonus in a given zone by using a combination of two of
the following:
a. Energy Efficiency: Meet the energy efficiency standards of either: 1) the Energy Trust’s Path to
Net Zero Incentive Program, or 2) Tier 2 requirements of the New Building Institutes Advanced
Buildings New Construction Guide, or 3) the Oregon Reach Code/Residential Reach Code
requirements. All buildings on the site must meet one of these standards.
b. Landscaping and Trees: Provide landscaping and plant trees to achieve an anticipated landscape
and tree canopy coverage equal to 15% of the site area, or 22.5% of site area in areas with 15%
required landscaping. The area is in excess of any open area requirements of the zoning code.
Landscaped areas may be designed as stormwater management facilities to meet the
requirements of the Stormwater Management Manual. The feature would be required to meet
minimum dimensional and landscaping standards to be determined during code development
phase of the mixed use project.
c. Green Roof: Incorporate an eco/green roof on at least 50% of the building roof areas on site.

F. Massing Models of the Zones
The following revised massing models show the maximum allowed building volumes in each zone using
the proposed “base” and “bonus” floor areas allowances. Models with “bonus” area also show the
additional height available in the CM2 and CM3 zones. Multiple massing variations are possible, and
height and building form will vary depending on project design, parking needs and other factors.
Figure 2-1: CM1 Zone - Maximum Base Allowances: 1.5:1 FAR; 35’ Height

Figure 2-2: CM1 Zone - Maximum Bonus Allowances: 2.5:1 FAR; 35’ Height

Figure 2-3: CM2 Zone – Maximum Base Allowances: 2.5:1 FAR; 45’ Height

Figure 2-4: CM2 Zone – Maximum Bonus Allowances: 4:1 FAR; 55’ Height

Figure 2-5: CM3 Zone – Maximum Base Allowances: 3:1 FAR; 65’ Height (55’ shown)

Figure 2-6: CM3 Zone – Maximum Bonus Allowances: 5:1 FAR; 75’ Height

Figure 2-7: CE Zone – Maximum Base Allowances: 2.5:1 FAR; 45’ Height

Figure 2-8: CE Zone – Maximum Bonus Allowances: 3:1 FAR; 45’ Height

G. Special Tools for Centers
Portland’s Comprehensive Plan creates a hierarchy of places as shown in the Urban Design Framework
(UDF) diagram (http://www.portlandoregon.gov/bps/article/497459). Outside of the Central City, the
plan focuses opportunities for growth and community amenities in centers. These areas are expected to
become key community hubs and places of focused activity, growth and development in the future.
Additional development, design, preservation and parking management tools and efforts are proposed
for centers, where there is a greater expectation for change. The tools to help guide development vary
by type of center and location. See below for details about the specific tools and their application.
1. Centers Overlay Zone
In order to foster centers as places that emphasize a high degree of activity and prioritize the needs of
pedestrians, the Mixed Use Zoning Concept includes a new overlay zone that would be applied to
properties in the commercial core of all Town Centers and Neighborhood Centers. The exact code
language and boundaries of the centers overlay will be determined and displayed in the Mixed Use
Zones Project Discussion Draft, expected in summer 2015. This overlay would include:
• Limitations on drive through developments, quick vehicle servicing uses, self-storage uses, and
other uses and development types not supportive of a pedestrian-oriented environment.
• Prohibition on driveway access from the primary transit street when access from a side street or
alley is possible.
• Requirements for active ground floor commercial uses in new development, and building spaces
designed with a minimum ceiling height (12’) and minimum depth (25’).
• Enhanced ground floor window standards: 60%
of the ground level façade on primary corridors
must be windows or doors.
• Enhanced ground floor entry standards: one
entry minimum per 100’ of street frontage.
• A minimum floor area for new development –
0.5:1 FAR.
• Limitation on single-dwelling developments
and other developments and land uses that
are not supportive of creating pedestrian-
oriented areas of activity.
2. Design Review
In Portland, design review has traditionally been required for areas where a special design character is
specified and for zones which allow intense or large scale development. The Mixed Use Zones proposal
continues this approach to provide quality design by extending the design overlay zone to areas
designated as “Mixed Use – Urban Center” on the Comprehensive Plan map. This designation includes
Town Centers and the most urban Neighborhood Centers and Corridors surrounding the Central City.
Many of the areas within the Mixed Use – Urban Center designation already have the Design overlay
applied, such the Hollywood, Hillsdale, Northwest District, and St. Johns Town Centers, and the
Mississippi, Williams, and Martin Luther King, Jr. corridors in the Albina area. The Design overlay zone is
proposed to be applied to all areas with the Mixed Use - Urban Center Comprehensive Plan designation.
The Centers overlay zone would be mapped where
higher degrees of pedestrian activity are expected.

This would extend design review to the Inner Southeast main street corridors (among the few close-in
corridors not already subject to design review) and to Town Centers that do not already have design
review (primarily Midway and West Portland, and portions of others).
Figure 2-9: Design Overlay Zone and Proposed Additions
Currently, the base Central Commercial (CX) and Central Employment (EX) zones are also linked to
required design review. The design overlay zone is always mapped with those zones, which are typically
located in the core areas of Town Centers, near high-capacity transit stations, and along corridors near
the Central City. The CM3 zone is intended as a replacement for the CX and EX zones and allows a
similarly large scale and intensity of development. Therefore, the design overlay would also be applied
to any site with the CM3 zone.
As is the case with the current system, outside of the Central City, Gateway, or designated historic
districts, projects that include housing are subject to a “two-track” system which allows use of non-
discretionary design standards as an alternative to a land use review.

3. Parking and Transportation Demand Management
The management of parking is an issue of growing importance throughout the City as growth and
development brings increased density to mixed use centers and corridors and increases the demand for
existing on-street parking. Additionally, growth also leads to the need for better transportation
amenities and a more developed system that better accommodates walking, cycling and riding transit.
The result is a competing need for limited right-of-way space.
Transportation demand management, on-street parking management, and shared parking strategies
have historically been focused on the downtown area and surrounding neighborhoods, campuses, and
the Lloyd District. A set of clear, predictable, flexible set of policies and tools are also needed for other
areas outside the Central City. The Portland Bureau of Transportation (PBOT) is considering growing
these programs to encompass high-growth Town Centers and Neighborhood Centers in other areas of
the City.
Citywide Parking Strategy. PBOT has been awarded a Transportation Growth Management grant from
the state, to study and recommend parking policy within the city. A key element of the grant is a “tool
kit” which will describe the suite of policies and programs available to manage on and off-street
parking. PBOT is reviewing and updating its parking management tools in light of more dense
development in centers and along mixed use corridors that are experiencing redevelopment. PBOT will
take a close look at parking demand in five case study areas that best represent the type and intensity of
development Portland is seeing and can expect in the future. PBOT will then recommend new policy
and code language related to parking demand management that would apply to key centers and
corridors throughout the city. The emphasis of this project is on updated on-street parking
management, but it may also result in recommendations for additional refinement of off-street parking
regulations. Goals of this project are:
• More efficient use of parking and management of curbside space
• Greater ease in implementation and operation of parking management tools as areas change
• Meet growth management and economic development goals
• Meet goals of the City’s Comprehensive Plan, including encouraging walking, cycling, transit and
carpool trips over drive-alone trips
• Reevaluation of the value of the right-of-way
Shared and Paid Parking. District shared parking facilities are currently considered “commercial
parking” and are limited or not allowed in some of the commercial/mixed use zones. New mixed use
codes will expand allowances for district shared parking arrangements, including possibly allowing
required residential parking to be provided off site, allowing required residential parking to be used for
other uses during daytime hours, and allowing commercial parking in some zones.
Shared parking arrangements and facilities can allow for more efficient use of land than when parking is
provided separately for each business or use. The idea received much community interest during
neighborhood walks as a way of helping to meet parking demand in bustling mixed use areas.
Commercial parking is a land use allowed in the existing CS zone, but not in other commercial mixed use
zones. Commercial parking may be desirable in denser mixed use centers, within limits, because this use
allows shared use of parking, and allows the private market to provide paid parking in areas where off-

street parking is more limited. Allowances for limited commercial parking would be expanded with the
new mixed use zones to include CM2, CM3, and CE. In the CM2 and CM3 zones, code standards may
limit new commercial parking to interior spaces or parking structures, and could preclude new
commercial surface parking lots, particularly in areas identified in the Centers overlay zone.
Transportation Demand Management. Transportation demand management (TDM) encompasses a
variety of strategies to encourage more efficient use of the existing transportation system and reduce
reliance on the personal automobile. This is achieved by encouraging people through education,
outreach, incentives, and pricing to choose other modes, share rides, travel outside peak times, and
telecommute, among other methods. Effective transportation demand management also incorporates
management of parking supply and demand.
As part of the Mixed Use Zones Project, PBOT will consider expanding and standardizing requirements
for an approved, performance-based TDM Plan, for new development over certain impact thresholds.
Several specific changes may occur:
• New requirements for clear and objective performance-based TDM measures for larger mixed
use apartment buildings and, perhaps, office buildings;
• Better integration of TDM and parking management; and
• Revitalized TDM program monitoring and enforcement.
Additional detail on a proposed TDM approach as it may apply to commercial/mixed use zones is in the
appendix.
4. Historic Preservation
Historic commercial buildings are an important defining
feature in many Portland neighborhoods. The Mixed Use
Zones proposal and related Comprehensive Plan follow-
up projects will strengthen protection of these resources
through the Transfer of Development Rights Performance
Bonus. As noted in the description of performance
bonuses (section 2E), projects in commercial/mixed use
zones would be eligible to transfer floor area allowances
- up to 50% of the maximum allowed bonus floor area
ratio of the zone - by acquiring the un-used development
allowances from a nearby designated or inventoried
historic building. A deed restriction noting the transfer of development rights would be required for
both the sending and receiving properties.
As a follow-up to the Comprehensive Plan adoption, the Bureau of Planning and Sustainability is seeking
funds to update historic resource inventories, with an emphasis on high growth Town Centers and
Neighborhood Centers. This could lead to identification of additional historic resources, and historic
register listings in the future. Where there is a significant concentration of historic buildings, these
inventories would lay groundwork for the creation of new historic districts, akin to existing districts like
the Kenton and Irvington Historic Districts. Such districts, where established, are protected through
discretionary Historic Resource Review and Demolition Review.
The transfer of development rights performance bonus
may facilitate preservation of important and historic
buildings in the community.

H. Design Standards and Concepts
The new mixed use base zones will include new development design standards. These proposed
standards are intended to guide the design of new development and how it contributes to the success
and character of center and corridors. The standards are designed to respond to community concerns
about the scale and design of development, while providing for the flexibility needed to respond to the
context and economic challenges of particular sites and projects. Major topics addressed by these
concepts include:
• Building massing and form. Concepts link building and street scale, support
façade and roofline variety, and facilitate quality ground-floor commercial
spaces. Concepts 1 – 3
• Transitions. Concepts guide development to transition in scale to lower-
density residential areas, and provide development flexibility for large sites
that provide space for transitions. Concepts 4- 6
• Street frontages. Concepts call for pedestrian-oriented street frontages
with ample ground-floor windows, spaces for ground-floor commercial uses,
street-oriented entrances, address the relationship of residential
development to street frontages, and provide flexibility for pocket plazas
and green features. Concepts 7 - 10
• Residential standards. Concepts call for outdoor space to be provided for
residential units and address residential access to light and air. Concepts 11
- 12
• Pattern area standards. Concept provides a regulatory framework
responsive to the differing characteristics of Portland’s neighborhood
pattern areas. Concept 13
• Other concepts address issues such as neighborhood notification and
allowances for exterior display of merchandise. Concepts 14 – 15

1. Relate Building Height to Street Scale/Transit Function
Establish the allowed heights for the front street wall of
buildings based on street width. Taller building street walls
are most appropriate along wider streets. This concept
would be implemented in part through applying zones based
on the characteristics and width of streets. Use the CM1 and
CM2 zones, which allow small to mid-size buildings typically
up to three- or four-story heights, along two-lane corridors.
Use larger-scale CM3 zoning along wide Civic Corridors close
to the Central City. Where the CM3 zoning is applied along
narrower streets, such as in central locations and close to
high-capacity transit stations, reduce maximum allowed
street wall heights to four-stories along the corridor
frontages.
Concept Details:
CM3 Zone – narrower streets:
• Street wall height: On streets with right-of-way (ROW) less than 70’-wide, limit building
height to 45’ within 10’ of the front property line along transit streets. This applies to typical
two-lane main streets (approximately 60’-wide ROW), such as N Mississippi, N Williams, and
NW 23rd
.
• Step back above street wall: Above the street wall height, facades must step back a
minimum of 10 feet from corridor front property lines (upper graphic). Beyond this step
back, upper levels could extend up to the height allowed in the zone (65’ in the CM3 zone,
75’ if development bonuses are used).
• Variability above street wall: The step back
required above only applies to 75% of the
length of front facades, allowing up to 25% of
the front façade to reach up to the full
allowed building height to provide for variety
in building forms.
CM3 Zone – wide streets:
• Street wall height: On streets with ROW 70’
or wider, no street wall step back would be
required (lower graphic), except for the 7th
floor obtainable through bonuses. Examples
of streets with wider dimensions include NE
Martin Luther King, Jr. Blvd., NE Sandy Blvd.,
and SW Barbur Blvd.
5-story building with 5th
story (barely visible)
stepped-back from façade along a 2-lane corridor.

CM2 and CE Zones:
• Street Wall height: On all widths of streets,
building street wall height would be limited
to 45’ (4 stories).
• Step back above street wall: Bonus height
above four stories (45’) would need to step
back 10’ from the front property line.
• Option for a 3-story street frontage. Step-backs above the 3rd story could be used to meet
the building articulation requirement described in Concept 3 below. This approach could be
appropriate where lower-scale existing buildings predominate.
Commentary: This concept balances policy objectives for
focusing growth in mixed use centers and corridors with
community interest in development scale appropriate to the
scale of streets.
Project staff and consultants analyzed the relationship
between street scale and building height, using a 45-degree
angle plane that approximates solar access (around noon of
the equinox in March and September) along an east-west
oriented corridor. This angle plane also serves to highlight
the relationship between building and street scale and
pedestrian views of the sky.
This sequence of graphics shows that a 4-story street
frontage height maintains solar access along narrower street
(60’ of ROW), as does a 6-story building along a wide street
(80’ of ROW). The solar access impacts are greater for a 6-
story building along a narrower street, which could be
addressed by upper-level step backs.
Many community members have expressed concern about
the contrast in scale between the 4-story buildings allowed
in many mixed use zones with lower-scale existing buildings,
which are often 1 to 2 stories along some commercial
corridors. Rather than limit building street wall height
to 3 stories in all cases, which had been discussed with
the public and the project advisory group, the concept
is to make stepping back above the 3rd
floor an option
that could be used to meet building articulation
requirements (see Concept 3).
6-story building on 80’-wide street
4-story building frontage on 60’-wide street
6-story building on 60’-wide street

2. Increase Heights for Ground-Floor Active Uses and Roofline Variety
Allow additional building height to promote ground-level commercial spaces with high ceilings, which
provide more long term flexibility for active ground floor uses. Also, provide allowances for limited
height increases to encourage architectural variety in rooflines and on prominent corners.
Concept Details:
A. Increase the maximum building height and the allowed
street wall height by 3’ for buildings that provide active
ground-floor commercial spaces with floor-to-ceiling
heights of at least 14’. When employed, it would
effectively increase any stated height limit (including
those for street wall height and step downs to residential
zones) by 3 feet.
B. Allow parapets and other minor architectural features to
exceed building height limits to provide flexibility for
varied rooflines.
C. Allow up to 10’ more corner building height at the
intersections of civic or neighborhood corridors, in
exchange for setting buildings back from these
intersections.
Commentary:
Allowances for an additional 3’ of building height would help
accommodate ground-level commercial spaces with high
ceilings, which are important for providing quality spaces for
many types of retail and community uses. This concept
responds to concerns raised by some developers and designers
that current height limits are too constraining, resulting in sub-
optimal commercial spaces. By improving the ability to
accommodate ground-floor commercial spaces, this concept
also responds to community interest in having ground-floor
commercial uses as part of development in centers and corridors.
Allowances for parapets and minor architectural features to exceed building height limits responds to
community interest (as well as input from designers and developers) in promoting a more varied
roofline along mixed-use corridors. The current regulatory approach of including such features within
the building height limits, such as the 45’ maximum building height allowed in many areas with
commercial zoning, results in many projects build up to this maximum height with little variation.
Allowing taller building height for portions of buildings located at the intersections of civic or
neighborhood corridors is an additional strategy for encouraging variety in building heights. It also
provides opportunities for design approaches that reinforce the prominence of these major crossroads,
while allowing this height in exchange for corner setbacks provides more pedestrian space at busy
intersections. Focusing this height allowance at corners also limits impacts on lower-density residential
areas. This concept could involve shifting building floor area lost to the setback into upper-level area
normally achievable by using bonuses.

3. Building Articulation/Massing
Create standards that promote building form and massing that better fits into and enhances the
character of centers and corridors. These basic standards could include requirements for façade
articulation, upper level step-backs, and limits on building length.
Concept Details:
CM1, CM2, and CE Zones – Building Articulation.
For buildings more than 35’ high or more than
100’ in width, and that have more than 3,500
square feet of street-facing wall plane:
• Require that at least 25% of each façade
within 20’ of street property lines be divided
into smaller portions off-set by at least 3’
from the rest of the façade. Stepping back
the fourth story would be one option for
meeting this standard.
• Limit building length to 150’ within 20’ of
street frontages.
CM3 Zone – Building Articulation. For buildings
more than 45’ high or more than 100’ in width,
and that have more than 4,500 square feet of
street-facing wall plane:
• Require that at least 25% of each façade
within 20’ of street property lines be divided
into smaller portions off-set by at least 3’
from the rest of the façade.
• Limit building length to 150' within 20' of
street frontages.
Commentary:
Community members are concerned that infill
development may produce large buildings with monolithic
massing that appear out of scale with the fine-grain patterns of
many neighborhood commercial areas. The proposed standards
are intended to promote buildings that fit better into the scale of
neighborhood commercial corridors, but without dictating the
architectural approach or style of new buildings.
The required articulation requirement could be recessed into or
project out from the building façade. Projections into the public
right-of-way would not count toward meeting this requirement.
Regulations will also limit building length to 150’ within 20’ of
street frontages to avoid a single building mass from extending
along a full block.

4. Height Transitions and Buffering
Apply setbacks, height transitions and buffering for mixed use zones adjacent to lower density
residential zones to foster more gradual transitions. This concept would require buildings in the
commercial/mixed-use zones to step down to the allowed heights of adjacent lower-scale residential
zones and provide building setbacks.
Concept Details:
A. Sites adjacent to single-dwelling
zones (RF – R2.5): Limit building
height to 35’ within 25’ of abutting
properties with single-dwelling
zoning and provide a minimum 10’
building setback.
B. Sites adjacent to medium-
density multi-dwelling zones (R2
and R1): Limit building height to
45’ within 25’ of abutting
properties with R1 or R2 zoning
and provide a minimum 10’
building setback.
C. Sites adjacent to higher-density
multi-dwelling zones (RH and RX):
No height step down, but provide
a minimum 10’ building setback.

D. Exemption for single-story
development. No setback to
abutting residential zones required
for single-story buildings with height
under 18’.
E. Setback averaging option: Setbacks to abutting residential zones could be reduced to as little as 0’
within 50’ of front property lines, in exchange for adding an equivalent area to setbacks toward the
rear of properties. The intent of this option is to allow transfer of setback area to mid-block areas
where the additional setback can be most useful, while contributing to a strong street edge along
the mixed-use corridor. Allowing transfer of setback area toward the rear of sites provides the
benefit of additional separation and transition to abutting residential properties, while providing
open space for the residents or other users of the new building in locations sheltered from the
public street frontage.
Commentary:
This concept responds to community interest in
providing transitions in scale between higher-density
mixed use areas and lower-density residential areas. The
concept uses an approach used in some plan district and
Zoning Code overlay areas, which use various
combinations of building height step-downs to the
allowed height of lower-scale residential zoning and
landscaped buffers. The concept calls for applying this
approach whenever commercial/mixed-use zones
directly abut residential zones.

5. Full-Block Zoning Transitions
Apply building height transitions and landscaping standards for
mixed-use areas that are located off of corridors and have street
frontage adjacent to residential zones. Encourage residential
development as part of this interface.
Concept Details:
Where commercial/mixed use zoning (CM2, CM3, CE) is located
across the street from lower-scale residential zoning (often the
“backsides” of full-block mixed zoning, where the primary
commercial frontage is on a transit street) the following apply:
A. Within the first 15’ from property lines along intervening streets
adjacent to single-dwelling zoning (RF through R2.5), building
height is limited to 35’ and a 5’-deep landscaped setback is
required.
B. Within the first 15’ from property lines along intervening streets
adjacent to medium-density multi-dwelling zoning (R2 and R1),
building height is limited to 45’ and a 5’-deep landscaped setback is
required.
C. In both of the above situations, only residential uses are allowed within
the first 15’ from property lines along the intervening streets. For a full
block project that does not include residential uses, there will be a 15’
setback along the streets facing lower density residential zoning.
D. Property frontages on or within 100’ of a transit street would be
exempt from the above provisions.
Commentary:
This concept provides a transition in scale and street frontage characteristics for situations in which
commercial/mixed use zoning is across a street from lower-scale residential zoning, particularly in
locations that are not on primary corridor frontages. The concept limits development within 15’ of
these secondary street frontages to residential uses as a component of this transition. This approach is
based on residential buffer requirements that are part of Community Design Standards (Chapter 33.218)
that apply within the Design Overlay zone. The CM1 zone would be exempted from these requirements
due to its small scale and often dispersed locations within residential areas.

6. Large Site Flexibility and Community Benefits Agreements
Allow for larger scale development than normally allowed on large sites (over 2 acres) in locations with
frequent-service transit, in conjunction with discretionary design review and requirements for
community benefits agreements and transitions to lower density areas.
A. In the CM2 zone, projects using this
provision could be built up to 75’
height and 4:1 FAR, subject to
obtaining a community benefits
agreement and master plan/design
review approval.
B. In the CM3 zone, projects using this
provision could be built up to 120’ and
5:1 FAR, subject to obtaining a
community benefit agreement and
master plan/design review approval.
C. Community benefits agreements would be legally binding contracts with recognized organizations,
including the recognized neighborhood association, the business district association, or
organizations affiliated with the diversity and civic leadership program. Agreements would commit
the developer to outcomes such as:
• Jobs—living wage requirements, contracting or tenant selection preferences for minority and
women-owned or emerging small businesses (MWESB), local hiring or tenant selection
preferences, job training requirements, responsible contractor requirements.
• Housing—affordable housing requirements, land bank contributions, or replacement of
affordable housing lost with the development.
• Programmatic assistance to communities impacted by or vulnerable to displacement from
gentrification.
• Environmental cleanup and/or mitigation.
• Provision of public amenities and facilities—green space, recreation facilities, parks, child care
centers, health clinics.
• Use of additional green building standards in construction.
Commentary:
This concept responds to community input received during neighborhood walks and other Mixed Use
Zones Project events. Many community members were open to allowing development on large sites to
be larger in scale than the four-story scale usually allowed in most areas with commercial/mixed use
zoning, especially if there was enough space for a transition in scale to lower-density areas and
proposals were subject to design review. It also responds to requests for community benefits
agreements from organizations concerned about impacts of new development on lower-income
communities. These organizations have requested linking the provision of additional development
potential to community benefits agreements, to help ensure that changes benefit all members of the
local community, especially community members who may be at risk of displacement by new
development and increasing housing costs.

7. Street Frontages – Ground Floor Windows
Strengthen design-related standards that address the relationship of buildings to public street frontages
by requiring more ground floor window coverage, especially in the core commercial areas of centers.
Concept Details:
A. Require 60% ground-floor window
coverage in the core commercial areas
of centers (current requirement is 25%).
This requirement would apply to at least
one street frontage, with priority given
to transit street frontages.
B. Require 40% ground-floor window
coverage along corridors and other
locations. This requirement would apply to at least one street frontage, with priority given to
transit street frontages. In the CM3 zone, 40% ground-floor window coverage would be required on
all street frontages not required to meet the 60% window coverage requirement. Alternative
options would be provided for residential development (see Concept 8).
Commentary:
Ground floor window requirements have been an important
design-related regulatory standard in Portland’s commercial
zones, continuing traditions of storefront commercial
development and contributing to an engaging, pedestrian-
oriented street environment. The current minimum ground-floor
window coverage requirement of 25%, however, sometimes
results in sub-optimal window coverage, and includes exemptions
for residences and parking garages.
The increased ground-floor window coverage requirements of
this concept (and related concepts for entrances) respond to
interest from a wide-range of community members in focusing
on improving the design of the ground-level frontages of
buildings. This is where buildings are most directly experienced
by pedestrians and can be important for maintaining the
continuity of business districts. The highest level of window
coverage (60%) is applied to the core commercial areas of centers
to reinforce the roles of these locations as a focus of commercial
and community activity.
This concept would require ground-floor windows on at least one
street frontage, and would eliminate current exemptions for
parking garages and residences (see Concept 8). Glazing on
pedestrian entrances and roll-up doors would count toward
meeting this requirement. Public art and vegetated “green walls” may be considered as alternative
approaches for meeting a portion of the window coverage requirements (through a regulatory
adjustments procedure).
Top: traditional storefront with ample ground-
level windows.
Bottom: recent development meeting current
requirements (25% coverage).

8. Ground Floor Commercial Uses and Residential Development
Maintain flexibility for residential uses in the commercial/mixed use zones, while supporting cohesive
commercial areas, ensuring appropriate urban density, and addressing the interface between ground-
level residences and public streets. As noted in the Centers Overlay description, ground level
commercial uses will be required in the core commercial areas of centers.
Concept Details:
A. Ground-floor commercial in centers. In core areas of centers, require ground-floor commerical
uses, with 60% ground-level window coverage on at least one street frontage, prioritizing primary
frontages on transit streets. In these locations, require the ground levels of buildings to meet
commerical occupancy standards, and require minimum ceiling heights of 12’ for interior spaces and
barrier-free entrances.
B. Options for residential development in other locations. Along transit streets in other locations,
proposals for residential development in commercial/mixed use zones would be provided three
options in locations subject to ground floor window requirements:
1) Active ground floor windows – with requirements for 40% window coverge and interior space
designed to accommodate commercial uses (no setback required);
2) Front setback – ground-level residential uses would need to be setback at least 8 feet from front
property lines and have 25% window coverage; or
3) Raised ground level – ground-level residential uses could be adjacent to the front property line,
but would need to be raised above sidewalk level (with floors at least 2’ above sidewalk level)
and have 25% window coverage.
C. Minimum residential density. Where residential units are created through a land division, require a
minimum residential density of at least 1 dwelling unit per 2,000 square feet of site area. This would
not require commerical development to include residential development, but would require that
any residential be at least built to a transit-supportive density. This implements regional 2040

Growth Concept minimum density standards, and prevents lower density development that could
preclude realization of the centers and corridors growth strategy.
D. Single dwelling development. Limit new detached single dwelling development on transit streets in
the CE, CM2 and CM3 zones.
E. Limitations on front garages. Limit front garages of detached and attached houses to 50% of the
length of street-facing façades, as is currently required in the single-dwelling zones. This would
encourage pedestrian oriented street frontages in the commercial/mixed use zones.
Commentary:
Design for active ground-floor uses in centers.
This concept originates from interest among
community members in cultivating the core areas
of centers as places of focused commercial and
community activity. A concern about ground-
level residential in these locations is that such
uses can create gaps in the continuity of
commercial areas and not contribute to the
street-level activity that contributes to vibrant
urban places. Residential development is
intended to be an important part of mixed-use
centers, but policies also call for maintaining and
enhancing the role of centers as places that serve
as anchors to complete communities by
providing access to commercial and community services.
Options for residential develoment in other locations. This concept responds to concerns about
residential development in commercial corridors built at ground level close to sidewalks. Besides loss of
commercial opportunities, this creates privacy issues for residents, especially along primary frontages on
transit streets. This concept proposes a series of options that projects with ground-floor residences
could choose to follow, one option of which is for designing the spaces to be adaptable to commercial
uses with 40% window coverage; and the other two options of which are for more residentially-oriented
design, with units either setback from the street or raised above grade. These options would apply to
frontages that normally would be subject to ground-floor window requirements (one frontage per site
for most zones, but also other frontages for buildings in the CM3 zone). Besides a 25% ground-floor
window coverage requirement, residential development in the commercial/mixed use zones would
need to meet existing requirements for 15% overall window coverage for street-facing facades.
Residential development in a commercial zone - currently exempt
from ground-floor window coverage requirements.

9. Street Frontages – Entrances.
Strengthen design-related standards that address the relationship of buildings to public street frontages
by establishing requirements for a minimum frequency of front entrances.
Concept Details:
A. In centers, require one entrance for every 100’ of
building street frontage. This would apply to at least one
transit street frontage, or to other building frontages
subject to the ground-floor window requirements of
concepts 7 and 8. This would require at least two
entrances on a building occupying a block 200’ in length.
B. In corridors and other locations, require one entrance
for every 200’ of building street frontage. This would
apply to at least one transit street frontage, or to other
building frontages subject to the ground-floor window
requirements of concepts 7 and 8. This would require at
least one entrance on a building occupying a block 200’ in
length.
Commentary:
This concept expands on existing regulations that apply along
transit streets, which require at least one main entrance for
each non-residential tenant space located close to the public
street frontage. For building frontages with multiple
commercial tenants, this existing requirement contributes to a
strong relationship between building activities and the
pedestrian environment of transit streets, helping to activate the street environment. For a single
tenant building, however, only a single main entrance is currently required along a block frontage which
may be 200’ or more in length. This concept would continue the street entrances requirement for multi-
tenant buildings, but within the core commercial areas of centers (to be mapped) would require that all
buildings provide at least one entrance per 100 linear feet of building frontage along a transit street.
This would result in at least two entrances along a typical inner neighborhood block (200’ in length).
This concept responds to community interest in having multiple entrances along primary frontages to
create an engaging pedestrian environment and avoid situations in which large buildings may have long
stretches of building frontage with no connections to the public street. These standards would also
apply to residential buildings (which are not currently subject to transit street entrance requirements).
Outside of the core areas of centers, one entrance for every 200’ of building frontage would be
required. While more frequent entrances would provide more active street frontages (and is required
of multi-tenant buildings close to sidewalks), this standard is intended to accommodate the very broad
range of development types built in the commercial/mixed-use zones. Some development types which
can be important contributions to mixed-use corridors do not lend themselves to multiple entrances.
These include supermarkets and other large format retail, as well as office buildings and other
employment-related development. The one entrance per 200’ requirement would be more than is
currently required and would be particularly impactful along the lengthy blocks common along corridors
in Eastern and Western parts of Portland and in some inner neighborhoods.
MULTIPLE TENANTS

10. Front/Street Setbacks and Parking Location
Simplify maximum setback regulations and offer more flexibility for providing outdoor spaces and
landscaping. Relax requirements that require 100 percent of street-facing façades to be located within
required maximum setbacks. While providing flexibility in street frontage characteristics, prevent
parking areas from being located between buildings and streets to foster a pedestrian-friendly sidewalk
environment.
Concept Details:
A. Require the majority building frontages to be located close to sidewalks, within a 10’ maximum
building setback from a street property line (this maximum setback may vary by neighborhood
pattern area – see Concept 13). For sites with two or more street frontages, at least two building
frontages must meet this standard.
B. Provide flexibility for street frontages to include plazas
and landscaped areas by applying the 10’ maximum
building setback requirement to 50% of the building
frontage, allowing additional setback along the
remainder the building frontage (this is the current
approach for the Commercial Storefront [CS] zone).
Consider requiring a higher percentage of building
frontage (60 – 70%) to be within the maximum setback
in the core commercial areas of centers.
C. Disallow parking between buildings and street frontage
sidewalks (surface parking could be to the side or rear
of buildings). This would apply to two frontages for
sites with multiple street frontages.
Commentary:
This concept’s components provide flexibility for a variety of
desirable street frontage characteristics, while cultivating a
street environment that is inviting to pedestrians.
Community members have expressed interest in
encouraging buildings with ground-floor windows and
entrances close to sidewalks, while also providing
opportunities for elements such as plazas, landscaping and
other green elements along portions of street frontage. In
some situations, current commercial zone regulations
require 100% of building frontages to be within 10’ of a
front property line. This concept would provide a more flexible approach for maximum building
setbacks. Reflecting Proposed Comprehensive Plan policies that call for fostering centers and corridors
as pedestrian-oriented places, this concept would limit parking from being located between buildings
and streets. This approach is currently applied to the CS zone (intended to continue pedestrian-oriented
characteristics of traditional main streets), but would now be applied to all the commercial/mixed use
zones. Accommodation may need to be made for large sites with multiple buildings and for the
Commercial Employment zone.
Above and Below: Examples of where setback
flexibility allows for creation of plaza spaces.

11. Outdoor Space
Require private or shared outdoor space for residents to be provided in conjunction with mixed use or
residential development.
Concept Details:
• Require 48 square feet of outdoor or recreational
space per residential unit. This space could be in the
form of private outdoor space such as balconies or
patios, shared outdoor space such as courtyards or
rooftop decks, or in the form of indoor
recreation/community space.
Commentary:
Currently, no outdoor space is required for residential
development in the commercial/mixed use zones. This
concept would use the same 48 square feet per unit
requirement that applies in multi-dwelling residential
zones (R3, R2, and R1 zones). This concept responds to the
fact that residential development has become a
predominant type of development in the
commercial/mixed use zones and would implement
Comprehensive Plan policy direction on fostering housing
that promotes healthy, active living and provides access to
outdoor space.
Above and Below: Examples of ways the outdoor
space requirement can be met in development –
private balconies (top) or shared space (bottom).

12. Residential Window Setbacks
Ensure that residential windows have separation from interior
property lines, providing access to light and air.
Concept Details:
• When residential windows face non-street property lines,
require a minimum 5-foot setback from property lines. This
setback would need to extend for a minimum width of 12 feet
along portions of the building walls where windows are located.
Commentary:
This concept responds to the fact that the commercial/mixed use
zones allow development to be built up to the property lines of
adjoining properties with similar zoning. This is not a problem when
buildings are built shoulder-to-shoulder, with windows facing the
street or to mid-block open areas. It can be more of a problem for
the livability of residential units if their primary windows are
located close to interior property lines, up to which future
neighboring buildings can be built. The building code allows
window openings as close as 3 feet from property lines, which,
since future buildings can be built up to these property lines,
means that residential units can end up having only a 3 foot gap as their primary access to natural light
and air. This concept would require that a minimum 5-foot setback be provided adjacent to interior
property lines in order to provide better access to light and air. It would not apply to the walls of corner
residential units that have windows along street frontages or that face rear setbacks or other dedicated
open space.
Development with residential windows close to the
side property line, up to which future development
on the adjoining property can be built.
Wall Planes with Residential Windows

13. Pattern Area Standards
Create design-related standards specific to the three
major neighborhood pattern areas (Inner, Eastern
and Western neighborhoods), such as variations on
building setbacks and landscaping.
Concept Details:
A. Inner Neighborhood Building Coverage. Allow a
high degree of lot coverage in Inner
Neighborhoods, in acknowledgement of the
area’s frequently small sites and main street
patterns of continuous frontages of storefront
buildings. Maximum building coverage would
range from 90% in the CM1 and CE zones to
100% in the CM2 and CM3 zones (the latter
continues existing CS, CM, CX and EX zone standards that
apply in Inner Neighborhood mixed use areas).
B. Eastern and Western Neighborhood Building Coverage
and Landscaping. Require landscaping (15% of site area)
and limit building coverage in commercial/mixed use
zones in Eastern and Western Neighborhood areas,
responding to their more vegetated characteristics and
opportunities provided by relatively large sites. In these
areas, building coverage would be limited to 75% in the
CM1 and CE zones, and to 85% in the CM2 and CM3
zones. These landscaping and building coverage
requirements would be a continuation of some of the
standards that apply to existing zones prevalent in these
areas (such as the CG zone).
C. Eastern and Western Neighborhood Civic Corridor
Setbacks. Along wide Civic Corridors in the Eastern and
Western Neighborhoods, require minimum front
setbacks of 10’. This would provide opportunities for
landscaping and extensions of the pedestrian space of
sidewalks, helping to provide a buffer between buildings
and the heavy traffic of these corridors. These Civic
Corridors include streets such as 82nd
Avenue, outer SE
Division, and SW Barbur. See also next page.
Commentary:
The elements of this concept respond to Comprehensive Plan policy direction and community interest in
guiding development to respond to the distinctive characteristics of Portland’s primary neighborhood
pattern areas. This very limited set of pattern area standards would be supplemented by existing area-
specific design review guidelines (in areas with design review), plan district provisions, and potentially
other design-related standards developed with community input as part of future area planning efforts.
Top: Inner Neighborhood main street.
Middle: Western - daylighted creek near SW Barbur.
Below: Eastern – NE Halsey frontage (Fairview).

Eastern and Western Neighborhood Civic Corridor Setbacks
Examples of building frontages with setbacks along
SE 82nd
Avenue and SE Division, providing
opportunities for additional pedestrian space, trees,
and landscaping. This concept would require a
portion of the setback area to be improved as
pedestrian space to maintain a strong relationship
between buildings and public sidewalks. The
setback requirement is a refinement of special street
setbacks that currently apply along urban highways
such as SE 82nd
, SW Barbur, and SW Macadam.

14. Neighborhood Contact Requirements
Expand requirements for neighborhood notification of new development in mixed use zones and
encourage dialogue between developers and the community.
Concept Details:
• Require that notification be provided to neighborhood and business associations of proposed
development in the commercial/mixed use zones. Also consider requiring posting notice of the
proposed development at the development site. The purpose of neighborhood notification is to
inform the public of proposed development and to provide opportunities for dialogue between
developers and the community.
Commentary:
Neighborhood contact is currently required in the multi-dwelling zones for projects with 5 or more units
(and in some other situations), but is not generally required in the commercial/mixed use zones, even
for large projects. Developers of projects subject to neighborhood contact requirements are required to
offer to meet with neighborhood associations prior to submitting a request for building permits. The
neighborhood contact requirement provides an opportunity for community input on the design of
projects by providing a setting for the applicant and community members to discuss a proposal in an
informal manner. Community input received is non-binding, but can help with identifying issues and
with the refinement of development plans.
15. Exterior Display
Allow more flexibility for exterior display of merchandise.
Concept Details:
• Allow for exterior display of merchandise in
the commercial/mixed use zones, providing
flexibility for vendor stalls, kiosks, and
various other exterior merchandising
arrangements.
Commentary:
Exterior display of merchandise is currently
limited in most commercial/mixed used zones.
Most zones allow only display of plants and
produce, while the CG allows exterior display of
goods only if set behind landscaping. Flexibility
for exterior display of merchandise can help contribute to vibrant pedestrian environments and support
the vitality of businesses. Exterior merchandising such as vendor stalls and kiosks can also provide low-
cost business opportunities, which can be particularly helpful for enabling lower-income people to
establish retail businesses (much as food carts have reduced barriers for establishing food-related
businesses). This concept primarily concerns exterior display on private property and any exterior
display would need to preserve required clear areas on sidewalks for pedestrian passage.
Hollywood District, 1934

I. Development Capacity Analysis
A key factor in the Portland Comprehensive Plan update is to ensure sufficient land capacity to
accommodate expected population and job growth over the 20-year planning horizon. To determine
that, a Buildable Lands Inventory (BLI) model with development/redevelopment assumptions was
developed by the City of Portland to determine whether the city will have sufficient capacity to
accommodate the expected growth of approximately 122,000 new households and 140,000 new jobs.
In addition, the BLI resulted in a likely location allocation of housing units based on vacant and
underutilized land characteristics, housing types, and the availability and capacity of zoning. This
process resulted in the assumption/forecast that roughly 30% of all new residential units would be
developed in Portland’s Central City; 20% of new units would be developed in Portland’s residential
neighborhood areas; and the remaining 50% of new residential units would be accommodated in
“Centers and Corridors” outside the Central City. These center and corridor areas are generally zoned
for commercial/mixed use development, or multifamily development; therefore establishing zoning
tools that maintain or enhance the ability to accommodate forecasted housing growth is critical for the
Mixed Use Zones Project.
BPS staff modeled a series of development floor area assumptions to test the ability of the
Commercial/Mixed Use Zones to provide capacity to accommodate forecasted growth. The modeling
results are included in Table 2-4, below. Scenario testing started with the floor area ratio (FAR)
assumptions set forth for modeling in the Preliminary Zoning Concept (Alternative 1), as well as other
FAR scenarios that were developed in the refinement process. The modeling tested housing capacity by
using base floor area assumption, as these are the basic entitlements of the zones. Alternative 4 and
Alternative 5 were developed after additional economic FAR testing, and were modeled on base floor
area assumptions as well as an assumption of a 10% utilization of bonuses.
Approximately 35,000 new housing units are expected in the proposed new mixed use zones over the
next 20 years, excluding the Central City and Gateway. This is about 30% of the anticipated citywide
residential growth. For purposes of fulfilling the citywide growth management strategy, it is important
to maintain capacity for this level of housing development in these zones. Modeling results indicate that
the floor area ratios of the proposed mixed use zones (Alternative 5) allow for roughly 98,000 housing
units, without utilizing bonuses. This capacity exceeds the existing Comprehensive Plan, and is well
above the expected 20 year growth forecast.
Table 2-4: Capacity Impact of Mixed Use Zone FAR Alternatives
Scenario
FAR Assumptions: CM1; CM2; CM3; CE
MFR Units
Total Units
(SFR + MFR)
Jobs
Existing Comprehensive Plan/Zoning
MUZ Total
City Total
89,747
187,850
90,168
217,817
63,110
316,096
Alt 1 – Preliminary Concept
Base FAR: 1.0; 2.0; 3.0; 2.0
MUZ Total
City Total
72,925
156,077
73,017
185,054
52,762
374,113
Alt 4 – Alternative Concept
Base FAR: 1.5; 2.25; 3.0; 2.25
MUZ Total
City Total
85,758
168,910
85,850
197,897
58,970
380,322
Alt 4
Base FAR + 10% Bonus Utilization
MUZ Total
City Total
92,124
175,276
92,215
204,253
51,779
373,130
Alt 5 – Proposed Concept
Base FAR: 1.5; 2.5; 3.0; 2.5
MUZ Total
City Total
98,571
181,723
98,663
210,700
61,792
383,143
Alt 5
Base FAR + 10% Bonus Utilization
MUZ Total
City Total
104,934
188,086
105,026
217,063
58,260
379,611

J. Current and New Zones Comparison
Tables 2-5, 2-6, and 2-7 compare key land use and development parameters for exiting zones and for
conceptual new mixed use zones.
Table 2-5: Comparison of small-scale zones
CM1 CN1 CN2 CO1
Commercial
Retail Sales And Service Y/L L Y N
Office Y/L L Y Y
Quick Vehicle Servicing N N L N
Vehicle Repair N N N N
Commercial Parking N N N N
Self-Service Storage N N N N
Residential Y Y Y Y
Industrial L L L N
Height - Base (feet) 35’* 30’ 30’ 30’
Height - Bonus 35’* n/a n/a n/a
FAR – Base 1.5:1 .75:1+ .75:1+ .75:1+
FAR - Bonus 2.5:1 n/a n/a n/a
Table 2-6: Comparison of medium-scale zones
CM2 CE CO2 CM CS CG
Commercial
Retail Sales And Service Y Y L L Y Y
Office Y Y Y L Y Y
Quick Vehicle Servicing L Y N N N Y
Vehicle Repair Y Y N N Y Y
Commercial Parking Y Y N N Y CU
Self-Service Storage N Y N N N L
Residential Y Y Y Y Y Y
Industrial L L N L L L
Height - Base (feet) 45’* 45’* 45’ 45’ 45’ 45’
Height - Bonus 55’* 45’* n/a n/a n/a n/a
FAR – Base 2.5:1 2.5:1 2:1+ 1:1+ 3:1+ 3:1+
FAR - Bonus 4:1 3:1 n/a n/a n/a n/a
Table 2-7: Comparison of large-scale zones
CM3 EX CX
Commercial
Retail Sales And Service Y Y Y
Office Y Y Y
Quick Vehicle Servicing L N L
Vehicle Repair Y Y L
Commercial Parking Y CU CU
Self-Service Storage L L L
Residential Y Y Y
Industrial L Y L
Height - Base (feet) 65’* 65’ 75’
Height - Bonus 75’* n/a n/a
FAR - Base 3:1 3:1 4:1+
FAR - Bonus 5:1 n/a n/a
Table Notes:
Y = Yes, allowed; N = No, not allowed;
L = Limited; CU = Conditional Use
* An additional 3’ of height is allowed
for buildings with high ground floor
ceilings – see Section 2.G.2
+ Residential floor area is not regulated
by FAR, and is allowed to height and
setback limits of the zone.

3. Implementation Approach and Next Steps
The Mixed Use Zones Project is an implementation project of the Portland Comprehensive Plan. It will fit
together with Comprehensive Plan adoption and include a public process that includes meetings,
workshops and public hearings with the Portland Planning and Sustainability Commission and Portland
City Council. Key process steps are outlined in this section.
A. Develop Zoning Codes
Based on the zoning concepts, new zoning codes will be fully developed, including more detailed use
allowances, development/design standards and other components. Plan district and overlay zone
amendments will also be identified as appropriate to reduce code redundancies and conflicting
regulations. However, most components of plan districts and overlays are expected to remain
substantially unchanged. Code development will also include criteria and a process for evaluation of
zone changes in conformance with a Comprehensive Plan designation, when more than one zone may
be applied (see below). The new codes will be released for public comment as a Discussion Draft in
summer 2015. A Proposed Draft is expected to be released in fall 2015.
B. Zoning Relationships and Locational Criteria
The new Comprehensive Plan establishes four mixed use map designations based on a hierarchy of place
types, each of which could be implemented by one or more zones. This differs from the current plan-to-
zoning relationship, in which one or two very similar zones implement a single Comprehensive Plan
designation. The table below shows the relationship between Comprehensive Plan Map designations,
existing implementing zones, and the conceptual new implementing zones.
Figure 3-1: Comprehensive Plan and Zoning Relationships
New Comp Plan Designation Future Implementing Zones Existing Implementing Zones
Mixed-Use Dispersed CM1, CE CN1, CN2, CO1, CO2, CM, CS, EX
Mixed-Use Neighborhood CM1, CM2, CE CN2, CO2, CM, CS, EX
Mixed-Use Civic Corridor CM1, CM2, CM3, CE CN2, CO2, CM, CS, CG, CX, EX
Mixed-Use Urban Center CM1, CM2, CM3, CE CN1, CO1, CM, CS, CG, CX, EX
Because the each new Commercial/Mixed Use Comprehensive Plan designation will allow more than
one implementing zone, locational criteria must be established to provide guidance for the application
of zones in legislative planning projects. Similar locational criteria may be adapted and employed as a
component of the approval criteria used in quasi-judicial zone change requests. The following are the
basic criteria being considered for application of the zones. These criteria reference different kinds of
place types that are defined in the Comprehensive Plan and Urban Design Direction
(http://www.portlandoregon.gov/bps/65430).

Figure 3-2: Location Criteria for Zones
Zone Locational criteria
CM3
• In Regional and Town Centers.
• Within ¼ mile of high-capacity transit stations and along Portland streetcar corridors.
• Civic Corridors, especially those close to the Central City.
• Large multi-acre sites served by frequent-service transit.
• Where community plans call for intense mixed-use development.
CM2
• Citywide in multiple types of centers and corridors.
• Locations with good/frequent transit service.
CM1 • Edges of centers as a transition to lower-density residential areas.
• Locations with less frequent transit.
• Small, dispersed commercial areas or streets not identified as corridors.
CE
• On corridors in locations in between centers;
• Places with commercial or employment emphasis; auto-oriented configurations.
• Locations adjacent to the Industrial Sanctuary designation.
C. Apply New Zones to the Zoning Map
The new zones will initially be applied to properties based on a combination of factors, including the
Comprehensive plan Urban Design Framework (UDF) diagram, Comprehensive Plan designations and the
current zone. The Mixed Use Zones Project will propose a conversion system that recommends mapping
and application of new zones. As shown in the Zone Conversion Table below, in most cases the new
recommended zone for a particular parcel will be the most similar to the current zone, in terms of scale
and general use allowances. In some cases more than one option for a new zone exists.
Figure 3-3: Zone Conversion Table
Current Zone
Comp Plan Designation CN1/2 CO1/2 CM CS CG EX CX
Mixed Use Dispersed CM1 CM1 CM1 CM1
CM1#
CE# CM1 n/a
Mixed Use Neighborhood CM1
CM1+
CM2+ CM2 CM2
CM2#
CE# CM2 n/a
Mixed Use Civic Corridor CM1
CM1+
CM2+ CM2 CM2
CM2#
CE# CM3 CM3
Mixed Use Urban Center CM1
CM1+
CM2+ CM2 CM2
CM2#
CE# CM3 CM3
+ CM1 proposed for CO1 zones; CM2 proposed for CO2 zones
# CM zones proposed for Centers; CE zones proposed for Corridors.
City staff from the Mixed Use Zones Project will work together with Portland District Liaison planners to
refine the zoning map based on the output/recommendations of the conversion table and an
understanding of local conditions. This process will help fine tune the mapping/application of new
zones where specific circumstances may warrant application of a different zone than recommended
through the conversion table. Examples of these circumstances could include areas: of unique

topography or natural resource impacts; with significant historic resources; where transition to a
different development pattern may be desired (e.g., less auto oriented or more employment focused).
D. Map the Centers Overlay Zone
Based on the Urban Design Direction Report (http://www.portlandoregon.gov/bps/65430), and the 20-
Minute Neighborhood Analysis1
and the Urban Form Background Report2
(http://www.portlandonline.com/portlandplan/?c=51427), core commercial areas will be mapped to
develop an initial draft of the centers overlay zone, for public review. Core commercial areas are areas
where there is a concentration of commercial buildings with direct street frontage, and a continuous
concentration of retail sales and services extending for several blocks. In general, there would be at
least one core area mapped with the overlay within each identified center.
E. Public Review and Adoption Process
The Portland Planning and Sustainability Commission (PSC) will hold public hearings on the new zoning
codes, proposed conversion approach, and proposed map in fall of 2015. The Commission may request
amendments to the zoning codes and map based on public testimony. The PSC will make a final
recommendation that will be forwarded to Portland City Council for final public hearings and adoption in
late 2015.
1 See the Services and Amenities maps within the June 2012 20-Minute Neighborhood Analysis Report, which identify core
concentrations of services. Detailed commercial statistics are also available in this report.
2 See page 69 of the July 2011 Urban Form Background Report, Clusters of Direct Street Frontage.

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