Oktoobar 28, 2026 · Ordinance · 2026-343
Amend the Portland Zoning Code, Portland Comprehensive Plan Map and zoning maps to facilitate housing production and post-pandemic economic recovery and revitalization in the Central City (amend Title 33, Portland Comprehensive Plan Map, official zoning maps)
Soo koobid af fudud
Council delays vote on Central City zoning changes for housing and business
This would change zoning rules in Portland's Central City to make it easier to build housing and help businesses recover after the pandemic. It would rezone some industrial land to allow homes, shops and offices, raise building height limits and allow unlimited height in some areas. It would also ease rules for food carts citywide, allow more uses in Waterfront Park, and allow temporary surface parking lots during redevelopment.
Decision: Rescheduled to October 29, 2026, at 2:30 pm. Public testimony, spoken and written, is closed.
Who it affects: Property owners, developers, businesses, food cart operators and residents in the Central City, plus food cart operators citywide.
Next: Council will take it up October 29, 2026, at 2:30 pm. If passed, the changes would take effect March 1, 2027.
Official record
Waxaa qoray AI iyadoo ka duulaysa diiwaanka rasmiga ah, si toos ah ayaana loo hubiyay. Oktoobar 14, 2026
Soo koobid af fudud
Council weighs zoning changes to add housing and businesses downtown
This plan changes zoning rules in the Central City, which covers downtown and nearby areas, to make it easier to build housing and help businesses recover after the pandemic. It would let some industrial land hold homes and shops, allow taller buildings, and allow more kinds of businesses, including food carts. Food cart rule changes would apply across the city where food carts are allowed.
Decision: Continued. Spoken testimony is closed. Written testimony is accepted until October 15, 2026 at 4:00 pm, and the item returns to council then.
Who it affects: Property owners, builders, businesses, food cart operators and residents in the Central City, plus food cart operators citywide.
Next: Written record closes and council takes the item up again October 15, 2026 at 4:00 pm. If passed, the changes take effect March 1, 2027.
Official record
Waxaa qoray AI iyadoo ka duulaysa diiwaanka rasmiga ah, si toos ah ayaana loo hubiyay. Oktoobar 14, 2026
- Document number
- 2026-343
- Introduced by
- Mayor Keith Wilson
- City department
- Planning and Sustainability (BPS)
- Requested council date
- October 29, 2026
- Purpose and background
- The purpose of this legislation is to amend the Comprehensive Plan Map, Zoning Map, and Title 33, Planning and Zoning, to promote additional housing growth and economic recovery, following the 2019 Covid 19 global pandemic, in the Central City Plan District. The Central City Code Amendments Project specifically amend use allowances and development standards in Chapter 33.510, Central City Plan District, as well as additional related chapters of the zoning code, to in part implement strategies from the 2024 Housing Production Strategy. These amendments do not amend existing 2035 Comprehensive Plan nor Central City 2035 goals and policies, and all amendments are consistent with and support implementation of applicable goals and policies, as indicated in Exhibit A, Findings of Fact Report.
- Financial and budgetary impacts
- There are no long-term financial or budgetary impacts from this legislation, nor does the legislation affect current or future staffing levels or financial agreements. This legislation amends the zoning code but is not a long-term planning document that includes actions or commitments of any kind.
- Economic and real estate impacts
- With regard to housing production, CCCAP proposed amendments were shared with interested parties in the development community, public agencies, property owners, neighborhood and business associations and community members, at meetings hosted by external stakeholder groups and the city and through the project webpage, Map App, email notifications, and public hearings, providing a range of opportunities for input. There were 42 pieces of testimony submitted to the Planning Commission, and 11 in person testifiers. Feedback from these groups informed refinements to CCCAP proposals to provide updated zoning designations to facilitate housing development and economic recovery. General Industrial (IG1) zoning and one property with IH (Heavy Industrial) have been changed to Central Employment (EX) in a number of areas in the Central Eastside, Lloyd and Lower Albina subdistricts. In addition, a number of properties with EX zoning but no housing allowance, have been updated to allow future housing. In addition, removing prohibitions on ground floor residential units is proposed. Bonus heights are increased across the Central City and a new path is created to access an unlimited height standard is also being added in certain areas of the city as well as an additional bonus FAR for residential development are proposed. These changes are intended to provide additional opportunities for mixed use and residential development in the Central City. These amendments support Portland's Housing Production Strategy which calls for the removal of barriers to housing production in the Central City. With regard to economic recovery in the Central City, CCCAP proposes zoning code amendments that provide temporary surface parking provisions to assist in redevelopment activities, expand the range of uses allowed in the Central Commercial (CX) base zone, expand opportunities for Retail Sales and Service uses in the Central Eastside subdistrict and in the Open Space base zone in the Central City, and reduce barriers for the siting of food carts and food cart pods. The proposed amendments also expand the types of land uses allowed in Governor Tom McCall Waterfront Park, remove barriers to developing Major Event Entertainment uses, and increase the development potential for residential land uses across the Central City Plan District By amending Comprehensive Plan and Zoning Map designations, CCCAP proposals increase the feasibility of new housing projects and business growth and expansion by creating greater flexibility in the allowable uses in vacant office buildings and ground floors. There are no anticipated adverse impacts for housing providers and CCCAP is anticipated to facilitate future investment in housing by reducing barriers and increasing development potential.
- Community impacts and community involvement
- CCCAP proposes amendments that primarily address the Central City Plan District and the ten (10) subdistricts this plan district contains. However, amendments related to food carts and food cart pods apply city-wide in zones where such uses are allowed. Community engagement efforts began early in the CCCAP planning process, prior to the release of the initial Discussion Draft. Project staff conducted over 20 meetings with neighborhood associations, business associations, and other interest groups. After the release of the Proposed Draft, staff continued to offer follow-up meetings. Staff also conducted two (2) virtual open house events, one in-person event, and the Portland Map-App was available for people to submit input on the Discussion and Proposed drafts of the plan. Issues Raised Requests to Rezone Additional Industrial Properties. During the Planning Commission review of CCCAP a few property owners in the Central Eastside subdistrict, as well as the Central Eastside Industrial Council (CEIC) submitted testimony requesting that additional properties in the subdistrict be rezoned from General Industrial 1 (IG1) to Central Employment (EX). The EX zone is the same zone used in the Pearl District and main street corridors in the Central Eastside and allows for a mix of retail, employment, and residential land uses. The Planning Commission decided not to pursue these additional rezoning requests after reviewing BPS staff analysis regarding the potential to displace existing industrial businesses and jobs if these sites were rezoned to EX. In addition, information was shared that demonstrated there is an existing potential to develop over 15,000 housing units in Central Eastside subdistrict today without additional rezoning. Infrastructure comments from the Bureau of Environmental Services, raised a concern that additional residential development, beyond that proposed by CCCAP, may overwhelm the existing sewer system capacity within the subdistrict. Preserving the IG1 zoning where staff field surveys indicate concentrations of industrial zoning maintains key industries and the middle wage jobs they generate and is consistent with adopted Central City Central City 2035 goals and policies. The staff analysis shows that the combination of dwelling unit capacity in the existing zoning and the new capacity created by proposed zone changes provide significant housing capacity and should be balanced with adopted policies that also support retaining and growing businesses and jobs in the Central Eastside. Unlimited Bonus Height. In response to public testimony, the Planning Commission adopted a recommendation to amend the zoning code to include a new path for accessing additional height beyond the maximums identified on Map 510-4, Bonus Height, in Chapter 33.510. Central City Plan District. The intent of the provision is to encourage and facilitate housing development. The proposal includes alternative regulations that allow for unlimited height, if certain standards are met. The unlimited height provisions do not apply within designated scenic view corridors, in designated historic districts, within the South Waterfront subdistrict, or within the North Pearl and RiverPlace Height Opportunity areas. The provisions also require a shadow analysis to ensure greater height will not have adverse impacts on open space, Waterfront Park, historic districts, or residentially zoned lands outside of and adjacent to the Central City Plan District. These provisions were initiated by Planning Commission in response to testimony received at the Planning Commission hearing. Because these provisions were not part of the original staff proposal, it is possible that neighborhood associations and other community interests may express concerns about allowing greater heights than those proposed by the Proposed Draft of CCCAP.
- 100% renewable goal
- This action does not increase or decrease the City's total energy use and does not increase or decrease the City's renewable energy use.
Qoraalka oo dhan
The City of Portland ordains.
Section 1. The Council finds:
In 1972, the City Council adopted the Planning Guidelines/Downtown Plan as a policy statement to guide public and private decision-making in the Downtown area (adopted Motion on agenda item 3958, December 28, 1972). The plan addressed issues related to the loss of retail and housing, parking and the general character, livability and prosperity of Portland's downtown core. In 1980, the City Council updated and retitled the plan Goals and Policies/Downtown Plan (Resolution No. 32772).
In 1979, scenic resources were first designated and protected through building height limits as part of the implementation of the Downtown Plan. Additional scenic resources were identified and protected through the adoption of area plans between 1979 and 1988.
In 1988, the City Council adopted the Central City Plan, which expanded the approach of the Downtown Plan to areas north of East Burnside (the Pearl and Old Town/Chinatown districts), west and south of Interstate 405 (the Goose Hollow and South Waterfront districts), and to the east side of the Willamette River (Lower Albina, Lloyd, and Central Eastside districts) (Ordinance No. 160606 and Resolution No. 34417). This plan addressed the preservation and development of new housing, expansion of transit, and other multi-modal improvements, enhancement of the Willamette River waterfront, views, the role of social services and affordable housing and environmental health, among other critical issues.
In 1987, the City Council adopted the Willamette Greenway Plan (Ordinance No. 160237). This plan implemented and was consistent with Statewide Planning Goal 15, Willamette River, for the City of Portland. This plan included goals, objectives, mapped boundaries with an inventory of property characteristics, Zoning Code regulations and special design guidelines that apply to properties along the Willamette River, including the Central City, and a list of public acquisition areas. The plan also updated information and regulations for scenic resources along the Willamette River.
In 1991, City Council adopted the Scenic Resources Protection Plan (SRPP) (Ordinance No. 163957). The SRPP includes a citywide inventory of scenic resources and an Economic, Social, Environmental and Energy Analysis (ESEE) as required by OAR 660-16-000 through 660-16-025. The SRPP consolidated and updated information about scenic resources from previous plans, including the Downtown Plan, Central City Plan and Willamette Greenway Plan. The SRPP implemented new regulations (Zoning Code Chapter 33.480) to protect designated scenic resources. The SRPP also amended the environmental regulations (Zoning Code Chapter 33.430) to allow for scenic resource management when the scenic and environmental resources overlap.
Following adoption and implementation of the Central City Plan, subsequent plans amended the policy and regulatory framework of the plan. These plans include, but are not limited to: University District Plan (1995); River District Plan (1995); Goose Hollow Station Community Plan (1996); Downtown's West End (2002); South Waterfront Plan (2002); and North Pearl District Plan (2008). These plans also provided the opportunity to address new and emerging issues not addressed by the Downtown and Central City plans.
In 1995, the City Council adopted the Central City Transportation Management Plan (Ordinance No. 169535 and Resolution No. 35472). This plan amended the Central City's transportation and parking policies and regulations in order to maintain air quality, promote economic development, support an efficient transportation system and encourage the use of alternative modes of travel.
Recognizing a need to create a new long-range plan for the Central City, the Bureau of Planning and Sustainability, in collaboration with other City bureaus and public agencies, initiated the Central City 2035 Plan project (CC2035) in 2010. The goal of the project was to create a comprehensive new policy and regulatory framework for the Central City, including the Central Reach of the Willamette River, taking into consideration new and emerging issues such as sustainable development, climate change, resiliency and equity.
On July 18, 2018, the City Council adopted the Central City 2035 Plan (Ordinance 190023). Following an appeal, the plan was readopted by City Council on July 8, 2020. The plan contained a new policy framework to guide development and investment in the Central City and included numerous zoning code amendments to implement the plan.
On January 10, 2023, Governor Kotek signed Executive Order 23-04 acknowledging a statewide housing shortage and affordable housing crisis, establishing an annual housing target statewide of 36,000 units, and establishing a Housing Production Advisory Council to develop an action plan to meet this goal.
On December 12, 2023, City Council adopted the 2045 Housing Needs Analysis and Buildable Land Inventory to address future housing needs. This analysis indicated that Portland should strive to produce 55,000 housing units by 2030 to address historic underproduction of units.
City Council adopted Housing Needs Analysis (Ordinance 191547) including an analysis of Portland's population and existing housing characteristics, projected housing needs, and a buildable land inventory to estimate the capacity to accommodate future residential development.
On January 31, 2024, City Council adopted the Housing Regulatory Relief Project (Ordinance 191609) a package of zoning code amendments that included both temporary suspensions and reductions to zoning code standards and processes, as well as clarifications to the code to facilitate and encourage housing production.
In August 2024, City Council adopted the Housing Production Strategy (HPS) (Resolution 37673), which identified specific actions (policies, programs, development regulations, financial incentives, etc.) that the City would implement over the next six years to meet those identified needs. The state requires the City to complete an HNA and HPS every six years. The HPS included initiatives, such as "Reduce Barriers to Development and Improve Processes" and "Promote Age and Disability Friendly Housing," and strategies that included: Revise Zoning Bonuses and Incentives; Increase Housing Capacity in the Central City; and Implement Accessible Housing Production Strategies. These strategies are implemented, in part, by the Central City Code Amendments Project.
On April 22, 2026, notice of the May 26, 2026, Planning Commission public hearing on the proposed amendments was mailed in accordance with Code Section 33.740.020.B, Public notice for the hearing.
On April 21, 2026, notice was provided to the Department of Land Conservation and Development in compliance with the post-acknowledgement review process required by ORS 197.610 and 197.615 and OAR 660-18-0020.
On April 21, 2026, the Central City Code Amendment Project—Proposed Draft was released for public review.
On May 26, 2026, the Planning Commission held a public hearing on the proposed amendments.
On July 14, 2026, the Planning Commission voted to forward the amendments to City Council.
On September 22, 2026, notice of the October 6, 2026, public hearing before the City Council Housing and Permitting Committee was mailed in accordance with Code Section 33.740.030.B, Notice.
On September 10, 2026, the Central City Code Amendment Project—Recommended Draft was released for public review.
On October 6, 2026, the City Council Housing and Permitting Committee held a public hearing on the amendments.
On October 28, 2026, the City Council held a public hearing on the amendment.
The Findings of Fact Report, attached as Exhibit A, includes additional findings demonstrating consistency with the Statewide Planning Goals, Metro Urban Growth Management Functional Plan and the City of Portland 2035 Comprehensive Plan.
NOW, THEREFORE, the Council directs:
Adopt Exhibit A, Findings of Fact Report, as additional findings.
Adopt the commentary and introduction shown in Exhibit B, Central City Code Amendment Project—Recommended Draft, as legislative intent and further findings.
Amend Title 33, Planning and Zoning of the Municipal Code of the City of Portland, as shown in Exhibit B, Central City Code Amendment Project—Recommended Draft, dated September 2026.
Amend the Portland Comprehensive Plan Map as shown in Exhibit B.
Amend the official zoning map as shown in Exhibit B.
Section 2. This ordinance shall be in full force and effect on March 1, 2027.
Section 3. If any section, subsection, sentence, clause, phrase, diagram, designation, or drawing contained in this Ordinance, or the plan, map or code it adopts or amends, is held to be deficient, invalid or unconstitutional, that shall not affect the validity of the remaining portions. The Council declares that it would have adopted the plan, map, or code and each section, subsection, sentence, clause, phrase, diagram, designation, and drawing thereof, regardless of the fact that any one or more sections, subsections, sentences, clauses, phrases, diagrams, designations, or drawings contained in this Ordinance, may be found to be deficient, invalid or unconstitutional.