ADAPTIVE REUSE TECHNICAL MANUAL
CITY OF RIVERSIDE
MAY 2026
2 The Adaptive Reuse Ordinance is intended to
help developers convert existing nonresidential
buildings into housing within defined areas of
the City. It provides a set of incentives and a
streamlined, predictable review process so that
qualified buildings can transition to residential
use without needing full redevelopment.
The Ordinance is designed to lower entitlement
risk, reduce time and cost compared to
ground‑up projects, and support the delivery of
new infill housing options.
This Guide acts as a support document to the
ordinance, offering an overview of common
adaptive reuse challenges to consider and a
description of the application process for
projects in the City of Riverside.
3 RIVERSIDE ADAPTIVE REUSE ORDINANCE
SUPPORT GUIDE
TABLE OF CONTENTS
Adaptive Reuse Overview ................................ ................................ ................................ ..... 4 Background ................................ ................................ ................................ ................................ ................................ ... 4 Adaptive Reuse Ordinance Purpose ................................ ................................ ................................ .............................. 5 Adaptive Reuse Guide Purpose and Applicability ................................ ................................ ................................ .......... 5 Common Adaptive Reuse Challenges ................................ ................................ .................... 7 Structural and Seismic Retrofits ................................ ................................ ................................ ................................ .... 7 Unreinforced Masonry ................................ ................................ ................................ ................................ .................. 7 Accessibility Requirements ................................ ................................ ................................ ................................ ........... 7 Exterior Walls, Windows, And Envelope ................................ ................................ ................................ ....................... 7 Exiting ................................ ................................ ................................ ................................ ................................ ........... 8 Elevators ................................ ................................ ................................ ................................ ................................ ....... 8 High-Rise Fire Life Safety Requirements ................................ ................................ ................................ ....................... 9 At-Grade Program Requirements ................................ ................................ ................................ ................................ . 9 Electrical Upgrades ................................ ................................ ................................ ................................ ....................... 9 Lid Requirements ................................ ................................ ................................ ................................ .......................... 9 Adaptive Reuse Submittal and Review Process ................................ ................................ ... 10
1. Due Diligence and Feasibility Study ................................ ................................ ................................ ......................... 10
2. Conceptual Review ................................ ................................ ................................ ................................ .................. 10
3. Plan Check ................................ ................................ ................................ ................................ ............................... 10
4. Construction and Inspection ................................ ................................ ................................ ................................ ... 11
5. Certificate of Occupancy ................................ ................................ ................................ ................................ ......... 11
4 ADAPTIVE REUSE OVERVIEW
Adaptive reuse, the practice of repurposing existing
buildings for new uses, delivers significant value for a city and its community. It shifts growth away from “tear down and rebuild” toward conserving what already
exists, while meeting today’s needs for homes and
services. Key benefits include reducing climate and
environmental impacts, strengthening community fabric
and local economies, and creating new housing and infill development opportunities.
Background
The Riverside adaptive re-use ordinance was adopted by
the City Council on June 23, 2026. A REAP funded effort, the ordinance intended to create new opportunities for
infill housing within key areas of the city.
CLIMATE AND ENVIRONMENTAL IMPACTS
Reusing buildings reduces construction-related carbon
emissions because much of the embodied energy in
foundations, structure, and envelope is preserved rather than discarded. It also cuts demolition waste and
material demand, since adaptive projects can salvage a
large share of existing materials instead of sending them to landfills. By supporting infill development and
reinvestment in already urbanized areas, adaptive reuse can also reduce sprawl, vehicle miles traveled, and
associated greenhouse gas emissions. Together, these
effects make adaptive reuse a core strategy in reducing Riverside’s climate footprint while still accommodating growth.
STRENGTHENING OUR COMMUNITIES
At the neighborhood scale, adaptive reuse can help
restore aging or vacant properties into active,
welcoming spaces that reinforce local identity and pride.
Through adaptive re-use, historic or culturally significant buildings can be retained and reimagined, preserving the physical character of a place while updating it for
contemporary uses. In many cases, the repurposing of
existing buildings is a catalyst for broader revitalization, particularly in infill and urbanized areas. Infill adaptive reuse means that projects are in walkable, transit-served areas. Therefore, connecting communities to everyday
access to services, culture, and public life for existing residents.
CREATING NEW HOUSING OPPORTUNITIES
Adaptive reuse offers a faster, more cost-effective
pathway to deliver new homes by converting
underutilized offices, retail, hotels, and even institutional buildings into residential or mixed-use projects. By
utilizing existing infrastructure and zoning capacity,
adaptive reuse allows jurisdictions to add units without consuming new greenfield land or waiting for large
master-planned developments.
5 Adaptive Reuse Ordinance Purpose
The Riverside Adaptive Reuse Ordinance intends to
facilitate the revitalization and preservation of Riverside by making it easier to turn unused or outdated buildings into residential uses including live-work spaces.
In addition to activating vacant properties, the ordinance encourages infill housing that complements existing
neighborhoods, safeguards Riverside’s architectural and cultural legacy, and supports a healthier balance
between where people live and work within the city’s
core areas.
The Adaptive Reuse Ordinance is applicable for eligible buildings in the zoning districts shown in Figure 1, below.
For building eligibility and available incentives for
qualifying projects, please see the Adaptive Reuse
Ordinance #XXX.
Adaptive Reuse Guide Purpose and
Applicability
This Adaptive Reuse Guide serves as a support
document for applicants using the ordinance. The goal
of the guide is to provide an overview of process for
submitting a project. It is not intended to be an all-
inclusive Handbook. Qualification for adaptive reuse is determined case by case, recognizing that each project
is unique and requires tailored consideration.
The City reserves the right to update this Support Guide as deemed necessary.
6 Figure 1. Applicable Zoning Designations
7 COMMON ADAPTIVE REUSE
CHALLENGES
Adaptive reuse projects face a distinct set of challenges, from navigating outdated building systems and
hazardous materials to resolving conflicts between
historic character and modern codes and accessibility
standards. Developers must also contend with uncertain
existing conditions when adapting buildings, the section below outlines common adaptive reuse challenges to be
aware of and prepared to discuss with the city during
review.
Structural and Seismic Retrofits
When conducting the feasibility study and assessment of existing building conditions, consideration should be
given to existing structural building elements and the
extent of changes needed for the proposed project. All
new structural elements must meet the requirements
for new construction.
Depending on the condition of the existing building, soft- story weaknesses, where a multi-story structure has a
ground floor that is significantly less rigid or strong than the floors above, may require costly seismic upgrades.
Performance-based engineering methods may be used
when approved by the Building Official.
Unreinforced Masonry
Unreinforced masonry bearing wall buildings must meet
minimum seismic stabilization requirements if any
structural modifications are made. Any future seismic or structural upgrades required by city or state laws will also apply.
Accessibility Requirements
As part of the due diligence phase, the existing building should be assessed for compliance with applicable
accessibility requirements. There may be some flexibility in achieving solutions that meet the spirit of the
accessibility requirements if the exact requirements are unable to be met.
Exterior Walls, Windows, And Envelope
EXTERIOR WALL CONSTRUCTION
Any new additions or alterations to those exterior walls must comply with new construction requirements.
EXTERIOR ENVELOPE UPGRADES
Any enclosure required repairs and upgrades, such as
windows or insulation updates, must meet current
energy and code requirements. Another example of
envelope upgrades that may be coordinated is an
underslab vapor barrier in new slab-on-grade or
subterranean slab-on-grade construction.
EXTERIOR OPENING PROTECTION
Existing exterior wall openings that do not meet current fire-separation requirements must be updated to meet
new-construction standards.
You may encounter openings that are too close to
property lines and not allowed by code which would not
typically count in new building codes.
Any new openings or changes to existing exterior wall
openings must comply with new-construction
requirements.
8 Exiting
EXIT
Each floor, where there is a proposed change of use or
occupancy, needs access to a minimum number of exit
stairways, in compliance with new construction
standards.
CORRIDORS
New corridors must meet all current code requirements.
Existing corridors may still be used as exit access
components. In general, corridors are required to
comply with all applicable code requirements unless an
approved alternative means and methods (AMM)
approach is proposed.
Here are a few examples of common adaptive reuse
scenarios that may need to be addressed, especially if
they have historic significance:
• Existing transoms or fixed glazed openings in good
condition
• Existing openings and penetrations
• Existing doors
EXIT STAIRWAYS
Because floor heights are fixed, changing stair
dimensions is often not practical. The Building Official and Fire Official may consider alternative solutions
proposed by the design team for stair number, size,
clearances, riser and tread dimensions, landings, loads, and other code issues. Any reasonable upgrades that can be made should be included.
FIRE ESCAPES
Fire escapes shall be maintained clear, accessible, and in good condition, with secure attachment to the building
and fire-resistive opening protection as required by the applicable code provisions. An existing fire escape may be considered as part of the means of egress from upper floors where it is operational, structurally sound, and evaluated by a licensed engineer.
Any proposal to utilize an existing fire escape in lieu of full compliance with current code requirements shall
include a code analysis identifying the specific code
sections for which alternate compliance is requested.
Such requests shall be processed through the Alternative Means and Methods (AMM) process and are subject to
review and approval by the Building Official and Fire
Official.
ROOFTOPS
If a rooftop is newly occupied or its occupant load
increases, it must have exits that meet current code
requirements. Any new assembly use with 50 or more
occupants on an existing rooftop must typically provide at least two exits, and fire escapes cannot be used as
those exits.
If the rooftop is 75 feet or more above the lowest level accessible to fire vehicles, additional high-rise code
requirements may apply, as determined by the Fire
Official.
Elevators
Elevator requirements vary between high-rise and
low-rise buildings. Some limits on the number, size,
capacity, and dimensions of elevators are allowed, but
9 elevator shafts must meet fire-resistance and
smoke-protection requirements. Existing freight
elevators cannot be used for passengers.
High-Rise Fire Life Safety Requirements
Coordination with Building and Fire Officials will be
needed for high-rise buildings where new construction
standards cannot be met. There may be flexibility with
fire command, smoke removal, required additional
stairs, existing stair widths, non-continuous stair
enclosures, and handrails.
At-Grade Program Requirements
Existing building conditions may limit programmatic
elements that are typically required to be located at
grade on new construction. Spaces such as switchgear or transformer rooms, trash rooms, and mail rooms have
historically presented challenges. Coordination with
Building and Fire Officials will be needed if those
requirements cannot be met.
Electrical Upgrades
Consider potential electrical upgrades required for
increased load for things like required electric vehicle charging stations, heat pumps, etc.
Lid Requirements
Coordination with Building Officials may be needed for
projects unable to meet new construction LID standards.
There may be flexibility in the requirements if there is no increase in impermeable surfaces.
10 ADAPTIVE REUSE SUBMITTAL AND
REVIEW PROCESS
The following steps have been designed to help
applicants navigate through the adaptive reuse process:
1. Due Diligence and Feasibility Study
It is crucial to complete a comprehensive review before purchasing or making any modifications to an existing
building when it pertains to an adaptive reuse project.
This investigative phase is critical and typically requires a detailed inspection by trained and licensed
professionals.
Property Ownership - Existing buildings sometimes
demonstrate complicated issues such as addressing,
property line, and ownership issues that have to be
addressed prior to any new project permitting.
Utilities and Existing Building Infrastructure - Existing buildings may also be limited as far as the capacity of the electrical, water, gas, and sewer services. Upgrading of water, sewer, gas, and electrical services are normally costly items and can impact an adaptive reuse project.
Existing Building Conditions - Field survey of structure, construction type, year of construction, understanding
of elements that are not in compliance with new
construction standards.
Prior to developing conceptual design, the following due diligence is needed:
• Obtain Existing Building Survey
• Obtain Geotechnical Report
• Obtain structural materials testing
• Obtain report from Structural Engineer to identify
any selective demo areas required to provide a
comprehensive structural design
• Obtain Alta Survey with existing utility locations
onsite
• Develop a soft demolition process:
- Ask ownership for a soft demo to clear non-
structural elements before documentation. This
helps to avoid some of the unforeseen existing
issues.
- Conduct a site visit after soft demo with entire
project team to be familiar with existing building
conditions.
2. Conceptual Review
After the building has been thoroughly assessed, it is
time to develop conceptual designs, narrative
descriptions about the project, pro forma financial
analysis, and other similar evaluations for the site.
Looking at the project from various perspectives will
eventually help shape the successful proposal.
While most of this effort will be undertaken by the
developer, city staff are available to discuss options, identify possible concerns or limitations, and find the best solutions for the proposed project.
3. Plan Check
The primary purpose of this Support Guide is to provide guidance to architects, engineers and designers to aid in developing creative mitigation measures based on the
building deficiencies and/or structural performance
levels; therefore, it is to be expected that the plan check process will require more iterations of review than new construction projects. In addition, it is to be expected
11 that new or unusual issues might come up during the
plan check process.
Throughout this Support Guide, examples are provided
to clarify the intent of certain sections and to identify when a code modification is needed by the Building
Official and/or Fire Official.
4. Construction and Inspection
Adaptive reuse projects are complex and challenging.
Even if all the above steps are completed, given the
nature of existing buildings, especially historic
structures, unforeseen complexities are to be expected
during construction. Because of this, a more involved
and frequent inspection process, field changes, or
modification to construction drawings are likely. Regular communication with the building inspector during
construction will be vital to ensure that potential delays are minimized or reduced.
5. Certificate of Occupancy
At the completion of construction, the Building & Safety will issue a Certificate of Occupancy allowing the
adaptively reused building to be used for its new
purpose.