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Brisbane — Land Use

Land Use under the Brisbane local zoning and planning code, with the controlling citations.

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Last reviewed: July 1, 2026

Overview

Brisbane regulates land use through Title 17 (Zoning), which divides the city into distinct zoning districts and overlays with their own permitted and conditional uses and dimensional standards. If you are scoping a project, start with the base district on the zoning map and then layer in any applicable overlay, objective standards, and use-specific conditions; match that against related processes like Brisbane Zoning, Brisbane Development Standards, Brisbane Parking, and Brisbane Design Review.

Below is a district-by-district guide to what the Brisbane Zoning Ordinance allows by land use. All standards are interpreted from the municipal code sections cited in-line.

How to read Brisbane’s land-use rules

  • “Permitted uses” are allowed by right when all standards are met; “conditional uses” need a use permit and findings under Chapter 17.40. See definitions in § 17.02.
  • Exceptions, variances, and some special approvals live in Chapter 17.32 and related procedures; see Brisbane Variances and Exceptions.
  • Nonconformities are handled separately; see Brisbane Nonconforming Uses.

District-by-district land use

R-1 Residential District

Purpose is to protect single-family neighborhoods. Typical permitted uses include single-family dwellings, home occupations, and ADUs/JADUs; child day care homes are allowed by right (small and large). Conditional uses include cultural/educational facilities, group care homes, meeting halls, mobile home parks, and places of worship (§§ 17.06.020–.030).
Key standards: minimum lot area 5,000 sf; minimum lot dimensions 50 ft x 100 ft; minimum setbacks 15 ft front, 5 ft side, 10 ft rear; maximum lot coverage 40%; maximum FAR 0.72; height generally 28–30 ft depending on slope and with a 20 ft height plane at the front (§ 17.06.040).
Applies citywide in mapped R-1 areas.

R-2 Residential District

Allows single-family, duplex, and low-density multifamily; ADUs/JADUs are allowed; 7+ unit multifamily requires a use permit (§§ 17.08.020–.030).
Key standards include a typical garage setback of 18 ft, maximum lot coverage 60%, and maximum FAR 0.72; district setbacks mirror small-lot residential patterns (see § 17.08.040).
Parking and design permitting are cross-referenced to Chapters 17.34 and 17.42 (§§ 17.08.050–.060).
Applies where mapped R-2.

R-3 Residential District

Permits multifamily, single-family, duplexes, dwelling groups, home occupations, and ADUs/JADUs; similar institutional uses are conditional (§§ 17.10.020–.030).
A housing development permit and, in some cases, a design permit apply (§ 17.10.050), with parking and signage per Chapters 17.34 and 17.36 (§§ 17.10.060–.070).
Key dimensional standards: Not found in retrieved materials.

R-BA Brisbane Acres Residential District

Single-family district tailored for the hillside Brisbane Acres area and the San Bruno Mountain HCP context (§ 17.12.010).
Permits single-family dwellings, home occupations, and ADUs/JADUs; group care homes are conditional (§§ 17.12.020–.030).
Key standards: minimum lot area 20,000 sf; lot dimensions 110 ft x 140 ft; setbacks 10 ft front, side at 10% of lot width (min 5 ft, max 15 ft), 10 ft rear; maximum lot coverage 25%; maximum FAR 0.72 with a 5,500 sf cap on total floor area; height up to 35 ft with a 20 ft height plane near the street and wildland/HCP compliance triggers (§ 17.12.040).
Special tools: density transfer and clustered development to consolidate units while conserving habitat (§§ 17.12.050–.055).

R-TUO Residential Two-Unit Overlay

Adds “duplex” and “two-unit dwelling group” as permitted uses in mapped R-1 and R-BA areas, with objective standards; up to four total units per lot may be achieved via combinations with ADUs/JADUs (tables in § 17.05.070).
Overlay standards allow each primary unit to be at least 800 sf notwithstanding underlying lot coverage/FAR limits, provide 4 ft side/rear setbacks for primary units in some cases, and include objective siting rules (§§ 17.05.060–.070).

NCRO Neighborhood Commercial (NCRO‑1 Brisbane Village; NCRO‑2 Downtown Brisbane)

Permitted uses in both: financial institutions, medical facilities, offices, personal services, restaurants, retail; in NCRO‑2, home occupations and ADUs/JADUs associated with a dwelling in mixed use are also allowed (§ 17.14.020).
Typical conditional uses include bars, cultural/educational facilities, meeting halls, veterinary clinics, and certain residential components in mixed use (§§ 17.14.030–.040).
NCRO‑2 key standards: no front or side setback except where abutting a residential district; rear setback 10 ft; coverage up to 90%; height 36 ft; minimum lot 2,500 sf; storefront requirements on Visitacion/San Bruno Avenues (§ 17.14.060).
Applies to Central Brisbane subareas as designated in § 17.14.010.

C-1 Commercial Mixed-Use District

All uses require a conditional use permit; the ordinance lists retail, offices, hotels, research and development (with limits), commercial services, residential, and civic/institutional among eligible uses (§ 17.13.030, with an express prohibition on commercial parking lots in § 17.13.035). Development and design standards are set by a council-adopted specific plan (§ 17.13.040).

HC Beatty Heavy Commercial District

No uses are permitted by right; conditionally allowed uses include heavy equipment repair, offices, meeting halls, and organics reload operations (§ 17.15.030). Performance standards address outdoor storage screening, noise, odors, lighting, and landscaping/pest-resistant species (§§ 17.15.050–.060).

SCRO‑1 Southwest Bayshore Commercial District

Purpose-built mixed subregional commercial with potential residential. Permitted uses include multifamily, duplexes, dwelling groups, ADUs/JADUs, home occupations, and emergency shelters meeting § 17.16.040; a wide list of commercial uses is conditional, including hotels, light fabrication, research and development (with risk analysis limits), retail, restaurants, and live/work (§§ 17.16.020–.030).
Key standards: minimum lot 7,500 sf; residential/mixed-use setbacks 10/5/10 ft (front/side/rear); commercial front setback 25 ft; coverage 70%; height 36 ft (§ 17.16.040). Night operations and performance standards apply (§§ 17.16.030.C, 17.16.050). A visual impact analysis is required for most projects (§ 17.16.110).

SP‑CRO Sierra Point Commercial District

Permitted uses include offices, hotels, retail, restaurants/bars, gyms, financial institutions, meeting halls, marinas, and R&D using specified animals, with higher-risk biological R&D as a conditional use reviewed by the City Council (§§ 17.18.020–.030). All R&D must meet performance standards and submit risk analysis (§ 17.18.045).
Key standards: minimum lot 1 acre; setbacks 25 ft front, 15/20 ft sides (interior/exterior), and 20/15 ft rear (interior/corner); coverage 40%; height and shoreline siting per Sierra Point combined guidelines (§ 17.18.040).

TC‑1 Crocker Park Trade Commercial District

Permitted uses include light fabrication, printing, media studios, offices, personal services, R&D (with limits), restaurants, retail, warehousing (excluding freight forwarders). Freight forwarders are conditional with added regulations; high-hazard R&D may be conditional subject to risk analysis (§§ 17.19.020–.030).
Key standards: minimum lot 10,000 sf; minimum width 100 ft; setbacks 25/10/10 ft; coverage 60%; height 50 ft and maximum FAR 2.0 (§ 17.19.040).

TC‑2 Southeast Bayshore Trade Commercial District

Permitted list mirrors light industrial/trade commercial (gyms, data centers, food production with odor control, freight forwarding, light manufacturing, offices, printing, R&D, retail, warehousing) with commercial recreation, gas stations, outside storage, and restaurants/bars as conditional (§§ 17.21.010–.020).
Key standards track TC‑1: minimum lot 10,000 sf; width 100 ft; setbacks 25/10/10 ft; coverage 60%; height 50 ft with FAR up to 2:1 (§ 17.21.030).

M‑1 Manufacturing District

Permits a range of clean, quiet operations within buildings—light manufacturing/assembly, printing, R&D, offices, retail, warehousing, data centers, and gyms; certain outdoor storage, vehicle repair, gas stations, and restaurants/bars are conditional (§§ 17.20.010–.020).
Key standards: minimum lot 10,000 sf; width 100 ft; setbacks 25/10/10 ft; coverage 60%; height 50 ft and FAR max 2:1; minimum 15% landscaped (§ 17.20.030).

MLB Marsh Lagoon Bayfront District

No uses are permitted by right; water-oriented commercial/recreation, education, research, habitat restoration, marinas, and transit facilities can be conditionally approved. Development regulations are set via use permit (§§ 17.24.020–.040).

O‑S Open Space District

Permits active/passive recreation, educational/cultural uses, agriculture/horticulture, and open space reserves; expansions/new structures and commercial activities that don’t detract from open space value require a use permit (conditional) (§§ 17.26.030–.050).

P‑D Planned Development District

Requires an adopted specific plan and a PD permit before uses/structures may proceed; the PD permit specifies allowed uses, development program, and conditions, with city council hearings and findings (§§ 17.28.020–.030, 17.28.080–.090).

C/P‑U Northwest Bayshore Commercial/Public Utilities District

Public utility facilities/buildings and related offices/warehousing/light fabrication are permitted; restaurants/bars are listed under commercial uses, and certain unscreened utility facilities and vehicle service/repair are conditional. Development standards differ for the utility and commercial components (e.g., 50 ft setbacks for utility lots; commercial lots have no setback, height 28 ft) (§§ 17.22.010–.030).

Baylands Interim Uses (Chapter 17.41)

Applies only in the Baylands Subarea. Expressly prohibits hazardous materials handling, garbage/scrap operations, heavy manufacturing (e.g., batch plants), commercial parking lots, and any use with objectionable emissions or harmful discharges; interim uses otherwise require an interim use permit and must not conflict with redevelopment plans or the General Plan (§§ 17.41.010–.040).

Key land-use controls at a glance

District Typical permitted uses Min. lot Setbacks (F/S/R) Height Coverage/FAR Code Reference
R-1 Single-family, home occupations, ADU/JADU 5,000 sf 15/5/10 ft 28–30 ft (slope-based), 20 ft front plane 40% / 0.72 FAR § 17.06.020, .040
R-2 SF/duplex/small MF; ADU/JADU Not found Garage 18 ft; typical res. yards Not found 60% / 0.72 FAR § 17.08.020, .040
R-BA Single-family; ADU/JADU 20,000 sf 10/varies/10 ft 35 ft + front height plane 25% / 0.72 (≤5,500 sf) § 17.12.020, .040
NCRO‑2 Downtown storefront commercial; mixed use 2,500 sf 0/0/10 ft (side 10 ft if abutting res.) 36 ft 90% § 17.14.060
SCRO‑1 MF/duplex; broad commercial by CUP 7,500 sf 10/5/10 ft (res/mixed); 25 ft commercial front 36 ft 70% § 17.16.040
TC‑1 Light fabrication, offices, R&D, retail 10,000 sf 25/10/10 ft 50 ft 60% / 2.0 FAR §§ 17.19.020, .040
TC‑2 Trade commercial, light industrial 10,000 sf 25/10/10 ft 50 ft 60% / 2:1 FAR § 17.21.030
M‑1 Light MFG, R&D, office, warehouse 10,000 sf 25/10/10 ft 50 ft 60% / 2:1 FAR § 17.20.030
SP‑CRO Office, hotel, retail, R&D 1 acre 25/15–20/20–15 ft Per Sierra Point guidelines 40% § 17.18.040

Notes:

  • Where “Not found” appears, confirm with the city or see Brisbane Zoning.
  • Landscaping and screening requirements appear in several districts (e.g., M‑1 requires at least 15% landscaping), and are supported by citywide guidelines; see Brisbane Landscaping and Screening.
  • Signs are regulated by Chapter 17.36; see Brisbane Signage. Examples: R-2 § 17.08.070; SP‑CRO § 17.18.060.

Cross-cutting rules that often decide “yes” or “no”

  • Sensitive R&D and hazardous materials: SP‑CRO has performance standards and requires risk analysis; TC‑1 and SCRO‑1 may require risk findings or limits for R&D that uses hazardous materials (§§ 17.18.045; 17.19.030.M; 17.16.030.A.24).
  • Freight forwarders: allowed in TC‑2 by right, and conditionally in TC‑1 with added provisions (§§ 17.21.010; 17.19.030.G).
  • Bayfront/Sierra Point: location/height/signs can be controlled by combined site and architectural guidelines referenced in SP‑CRO (§§ 17.18.040, .060).
  • Mixed-use in NCRO and SCRO‑1: some residential components depend on use permits and meeting objective standards; storefront rules apply on key downtown streets (§§ 17.14.060; 17.16.030–.040).

Overlays and special areas

  • Two-Unit Overlay (R‑TUO): Adds duplex/two‑unit groups in mapped R‑1/R‑BA areas with objective standards and flexibility for unit size and setbacks (see above and Brisbane Overlay Districts).
  • Parkside Overlay (PAOZ‑1/2): Within Crocker Park, allows multifamily/some single-family with set densities and objective setbacks/heights; no conditional uses (§ 17.27.020–.040).
  • Baylands Interim Uses: Strict prohibitions during the interim period; separate interim use permit required; see above (§ 17.41.030).

Related citywide topics you may need

Checklist

  • Identify base zoning district and any overlays on your parcel (Title 17 map; see Brisbane zoning & planning overview).
  • Confirm your intended use is listed as a permitted or conditional use in your district (cite relevant §).
  • Check key dimensional controls: minimum lot area/width, setbacks, height, coverage, FAR (district §).
  • Verify any special district performance standards (e.g., odor, noise, screening, landscaping).
  • If conditional, prepare findings and conditions strategy under Chapter 17.40; consider Brisbane Variances and Exceptions if standards can’t be met.
  • Cross-check parking, signage, and any required Brisbane Design Review.
  • In R‑BA or hillside areas, confirm HCP/wildland interface constraints (§ 17.12.040).
  • If in SCRO‑1/NCRO‑2/Downtown, check storefront or visual analysis requirements (§§ 17.14.060; 17.16.110).
  • If in SP‑CRO or proposing R&D, address risk analysis (§ 17.18.045).

Risks & Ambiguities

Issue Why it matters What to verify
R-3 dimensional standards not located You must meet lot/setback/height to be approvable Not found in retrieved materials; verify § 17.10.040 with the city
R&D using hazardous materials May shift a use from permitted to conditional and add performance standards SP‑CRO § 17.18.030.F, § 17.18.045; TC‑1 § 17.19.030.M; SCRO‑1 § 17.16.030.A.24
Freight forwarders Allowed in some trade districts but restricted or conditional in others TC‑1 § 17.19.030.G; TC‑1 warehousing excludes freight forwarders; TC‑2 § 17.21.010
Bayfront/Sierra Point guidance External design guidelines can control height/siting/signage SP‑CRO § 17.18.040, .060 (combined guidelines)
Downtown storefront rules Affects ground-floor use layouts and parking locations NCRO‑2 § 17.14.060 (storefronts; no parking in front of storefront)
Hillside/HCP constraints in R‑BA Adds habitat conservation, wildfire, and height-plane limits § 17.12.040; §§ 17.12.050–.055 density transfer/cluster

Plain-English Summary

Land use in Brisbane is highly district-specific. If you’re on a standard residential lot in R‑1, you can build a single-family home with typical neighborhood setbacks; in R‑2 and R‑3, more units are allowed, while R‑BA adds hillside and habitat rules. Commercial and employment uses concentrate in TC‑1/TC‑2, M‑1, and SCRO‑1, each with specific permitted lists, odor/noise controls, and height/coverage caps. Special places like Sierra Point (SP‑CRO), Downtown (NCRO‑2), and Parkside (PAOZ) have extra objective standards. Always check uses first, then confirm setbacks/height and any special performance standards for your district.

Source References

  • Title 17 adoption and districts list (§§ 17.01.010–.060; 17.04.010)
  • R-1 permitted/conditional uses and development standards (§§ 17.06.020–.040)
  • R-2 permitted/conditional uses; design/parking/signs (§§ 17.08.020–.070)
  • R-3 permitted/conditional uses; permits/parking/signs (§§ 17.10.020–.070)
  • R-BA purposes/uses/standards; density transfer/cluster (§§ 17.12.010–.060)
  • R‑TUO overlay standards (§§ 17.05.060–.070)
  • NCRO permitted/conditional uses and NCRO‑2 standards (§§ 17.14.020–.040, .060)
  • C‑1 conditional uses; development via specific plan (§§ 17.13.030–.040)
  • HC conditional uses, performance standards, parking/signs/design (§§ 17.15.030, .050–.080)
  • SCRO‑1 permitted/conditional uses, standards, performance, visual analysis (§§ 17.16.020–.050, .110)
  • SP‑CRO permitted/conditional uses; development standards; R&D performance (§§ 17.18.020–.045)
  • TC‑1 permitted/conditional uses; development standards (§§ 17.19.020–.040)
  • TC‑2 permitted/conditional uses; development standards (§§ 17.21.010–.030)
  • M‑1 permitted/conditional uses; development standards (§§ 17.20.010–.030)
  • MLB conditional uses; standards by use permit (§§ 17.24.020–.040)
  • O‑S permitted/conditional uses (§§ 17.26.030–.050)
  • P‑D specific plan/PD permit requirements (§§ 17.28.020–.030, .080–.090)
  • C/P‑U permitted/conditional uses; development standards (§§ 17.22.010–.030)
  • Baylands Interim Uses—prohibitions and process (§§ 17.41.010–.040)

Sources

Retrieved passages

  • Brisbane Zoning Code (§ 4) High relevance
  • Brisbane Zoning Code (Section 17.01.030) High relevance
  • Brisbane Zoning Code (Chapter 17.40) High relevance
  • Brisbane Zoning Code (§ 4.8) High relevance
  • Brisbane Zoning Code (§ 1) High relevance
  • Brisbane Zoning Code (Chapter 15.70) High relevance
  • Brisbane Zoning Code (§ 4) High relevance
  • Brisbane Zoning Code (§ 1) High relevance
  • Brisbane Zoning Code (§ 25) High relevance
  • Brisbane Zoning Code (Section 17.01.030) High relevance
  • Brisbane Zoning Code (Chapter 17.36) High relevance
  • Brisbane Zoning Code (§ 4.8) Medium relevance
  • Brisbane Zoning Code (Title 17) Medium relevance
  • Brisbane Zoning Code (section and) Medium relevance
  • Brisbane Zoning Code (§ 23) Medium relevance
  • Brisbane Zoning Code (Chapter 17.24) High relevance
  • Brisbane Zoning Code (§ 2) High relevance
  • Brisbane Zoning Code (Chapter 17.36) Medium relevance
  • Brisbane Zoning Code (§ 3) Medium relevance
  • CBC § 6 (§ 6) Medium relevance
  • Brisbane Zoning Code (Chapter 17.43) Medium relevance
  • Brisbane Zoning Code (Section 17.32.070) Medium relevance
  • Brisbane Zoning Code (Section 17.40.060) Medium relevance
  • Brisbane Zoning Code (§ 7) Medium relevance
  • Brisbane Zoning Code (chapter shall) Medium relevance
  • Brisbane Zoning Code (§ 1) Medium relevance
  • Brisbane Zoning Code (§ 3) High relevance
  • CBC § 17.32.070 (Section 17.32.070) Medium relevance
  • Brisbane Zoning Code (chapter and) Medium relevance
  • CBC § 17.32.070 (Section 17.32.070) Medium relevance

Cited sections

Frequently asked questions

What can I build in Brisbane’s R-1 district?

Single-family homes are permitted by right, along with home occupations and ADUs/JADUs. Typical setbacks are 15 ft front, 5 ft side, and 10 ft rear; lot coverage is capped at 40% and FAR at 0.72. Certain institutional uses (e.g., day care centers, places of worship) are conditional (§§ 17.06.020–.040).

Can I do multifamily housing in SCRO‑1 (Southwest Bayshore)?

Yes. Multifamily, duplexes, and dwelling groups are permitted; many commercial uses are conditional. The district sets 10/5/10 ft residential setbacks and 25 ft for commercial fronts, with a 36 ft height limit (§§ 17.16.020, 17.16.040).

Are research and development uses allowed in Sierra Point?

Yes, R&D is permitted in SP‑CRO, but higher‑risk biological R&D is conditional and reviewed by the City Council. All R&D must comply with performance standards and submit risk analysis (§§ 17.18.020, 17.18.030.F, 17.18.045).

What are the TC‑1 (Crocker Park) basics for a new light industrial user?

Permitted uses include light fabrication, printing, offices, R&D (with limits), restaurants, retail, and warehousing (excluding freight forwarders). Minimum lot is 10,000 sf; setbacks 25/10/10 ft; coverage 60%; height 50 ft; FAR up to 2.0 (§§ 17.19.020, 17.19.040).

Can I open a restaurant or retail in Downtown Brisbane (NCRO‑2)?

Yes—restaurants and retail are permitted. NCRO‑2 has 0 ft front and side setbacks (except next to residential), 10 ft rear setback, 36 ft height, and storefront requirements on Visitacion/San Bruno Avenues (§ 17.14.060).

Is outside storage allowed in M‑1?

Limited outside storage of vehicles/equipment related to the interior use is allowed; broader outside storage requires conditional approval and screening. M‑1 also has odor and landscaping requirements (15% site landscaped) (§§ 17.20.010–.030).

What uses are allowed in the Marsh Lagoon Bayfront (MLB) district?

No uses are permitted by right. Water‑oriented commercial/recreation, education/science, habitat restoration, marinas, and certain transit facilities may be allowed with a use permit; standards are set through that permit (§§ 17.24.020–.040).

How does the Two‑Unit Overlay (R‑TUO) change what I can build?

In mapped R‑1 or R‑BA, the overlay allows a duplex or two detached primary units by right under objective standards; with ADUs/JADUs, up to four total units may be possible per lot (§ 17.05.070). Minimum 4 ft side/rear setbacks can apply to primary units (§ 17.05.070.A.4).

Are there special storefront rules in Downtown?

Yes. NCRO‑2 requires street‑level storefronts on Visitacion and San Bruno, minimum storefront floor area, and no off‑street parking between the curb and storefront (§ 17.14.060).

What uses are prohibited as interim Baylands uses?

Hazardous materials handling, garbage/scrap operations, heavy manufacturing (batch plants, foundries), commercial parking lots, and any use with objectionable emissions or harmful discharges are prohibited (§ 17.41.030).

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