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Home My WebLink AboutRES-11589 APPROVING GENERAL PLAN AMENDMENT NO. 2024-0002 AMENDING SAFETY ELEMENT TO COMPLY WITH STATE LAW AND MAKING NONSUBSTANTIVE UPDATES TO CITY POLICIES, TEXT, AND GRAPHICSRESOLUTION NO. 11589 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ORANGE APPROVING GENERAL PLAN AMENDMENT NO.2024-0002 AMENDING THE CITY OF ORANGE GENERAL PLAN SAFETY ELEMENT TO COMPLY WITH STATE LAW, AND MAKING NON- SUBSTANTIVE UPDATES TO CITY POLICIES, TEXT, AND GRAPHICS TO THE REMAINING GENERAL PLAN ELEMENTS AND IMPLEMENTATION PLAN TO MAINTAIN DOCUMENT ACCURACY APPLICANT: CITY OF ORANGE WHEREAS, the City of Orange adopted a comprehensive update to the General Plan on March 9, 2010; and WHEREAS, since adoption of the General Plan and subsequent updates there have been name changes and changes in scope of responsibility for some of the outside agencies involved with the provision of City services, as well as the policy documents administered by regional and state agencies; and WHEREAS, a city's General Plan must contain seven"elements"one of which is a Safety Element. The requirements for a Safety Element are contained in California Government Code Section 65302(g); WHEREAS, the State of California has adopted amendments to the California Government Code,requiring the City to update the Safety Element of its General Plan; and WHEREAS, the Planning Commission, having considered the proposed changes to the General Plan Safety Element and throughout the entire General Plan contained in Exhibit"A"at a public hearing held on November 4,2024,including review of the staff report and receiving public testimony on the item,has determined that General Plan Amendment No.2024-0002 is appropriate and recommended City Council approval thereof; and NOW,THEREFORE,BE IT RESOLVED that the City Council approves General Plan Amendment No. 2024-0002, amending the City of Orange General Plan Safety Element and associated text and graphic revisions as depicted in Exhibit "A" attached hereto and incorporated by this reference based on the following findings: SECTION 1 —FINDINGS The subject General Plan Amendment maintains the accuracy and relevance of the Orange General Plan to ensure its utility in guiding growth and change in the City in an informed and strategic fashion. The subject General Plan Amendment updates the Safety Element to comply with state law, and makes adjustments throughout the General Plan,updating references to outside agencies and associated policy documents that serve or have jurisdiction over the City. SECTION 2- ENVIRONMENTAL REVIEW The proposed General Plan Safety Element update and General Plan language clean-up do not have the potential for causing a significant effect on the environment.The proposed updates would amend the Safety Element to reflect state law, and minimize wildfire impacts to the city. The accuracy language clean up throughout the remainder of the General Plan, including text and graphic updates and limited non-substantive changes to City policies for document accuracy,will not have a significant effect on the environment; and, therefore, no additional analysis is required pursuant to CEQA. In addition, the Final Program Environmental Impact Report (EIR) No. 1815-09 SCH#2006031.117) for the Comprehensive General Plan Update was certified on March 9,2010, and prepared in accordance with the CEQA. The proposed General Plan amendment reflects updates to text and graphic revisions that are not substantive but more accurate references to outside agencies and related policy documents, current City and inter-agency practices, and dissolution of the Redevelopment Agency. As such, the proposed GPA makes non substantive edits to the General Plan, making the General Plan content consistent with the technical analysis provided in the EIR. Pursuant to CEQA Guidelines Section 15168(c),the City finds that the effects of the General Plan updates/amendment were contemplated in the General Plan Program EIR and the associated Findings and Statement of Overriding Considerations. The City also finds that pursuant to CEQA Guidelines Section 15162, the text and graphic amendments will not cause new significant environmental impacts or require new mitigation measures, which were not already identified in the General Plan Program EIR. The City finds that the proposed activity is within the scope of the project covered by the previously certified Program EIR and nothing further is necessary or required to comply with CEQA. ADOPTED this 14th day of January 2025. aniel R. Slater, Mayor, City of Orange ATTEST: Pamela Coleman, City Clerk, City of Orange 2 APPROVED AS TO FORM: LLICAAJ IUt1. 44..._. Mike Vigliotta, CiAttorney, City of Orange Attachment: Exhibit A STATE OF CALIFORNIA ) COUNTY OF ORANGE ) CITY OF ORANGE I, PAMELA COLEMAN, City Clerk of the City of Orange, California, do hereby certify that the foregoing Resolution was duly and regularly adopted by the City Council of the City of Orange at a regular meeting thereof held on the 14th day of January 2025 by the following vote: AYES: COUNCILMEMBERS: Bilodeau, Barrios, Dumitru, Tavoularis, Gutierrez, Gyllenhammer, Slater NOES: COUNCILMEMBERS: None ABSENT: COUNCILMEMBS: No Pamela Coleman, City Clerk, City of Orange I 1111) CITY OF ORANGE lANGE GENERAL PLAN ENERAL PLAN Adopted March 2010 Amended December 2015 and January 2025 City Council General Plan Advisory Committee Carolyn Cavecche-Mayor John Baker Tita Smith-Mayor Pro Tern Bill Bouska Denis Bilodeau-Councilmember Phyllis Cahill Jon Dumitru-Councilmember Toni Carlton Mark Murphy-Councilmember Peggy Catron Jeff Frankel Planning Commission Robert Hitchcock Janine Ingram Matthew Cunningham Martha Moyers Robert Imboden Karie Najemnik Michael Merino James Obermayer Scott Steiner Bruce Ramm Fred Whitaker Kathy Sorensen Roy Shabazian City Staff Sister Mary Therese Sweeney Laura Thomas John Sibley-City Manager Shawn Ward Alice Angus,AICP-Community Development Director Ed Knight,AICP-Assistant Planning Director Consultants to the City Anna Pehoushek,AICP-Principal Planner Jennifer Le-Senior Planner/Environmental EDAW, Inc. Coordinator In association with: Alliance Acoustical Consultants Chattel Architecture and Design GRC Keyser Marston Associates MIG P&D Consultants PAR Environmental Parsons Brinkerhoff 111111111 A NG INTRODUCTION ENERAL PIAN k INTRODUCTION TO THE GENERAL PLAN Orange is grounded by a unique and 0 f__ rich history that provides a foundation I ' ;'i` upon which the City is prepared to build to meet the challenges of the zest r/ Century.This General Plan is the primary icf 1 " i " i 1 source of long-range planning and M j` policy direction that will be used to 1 i I guide growth and change, and to preserve and enhance the quality of life within the community. The General Plan strives to protect Old Towne Orange shopping district those characteristics that make Orange a desirable and distinctive place to live, work, and play. Those attributes include: 1) high- quality services that residents have come to expect; 2) a variety of residential, business, and recreational environments; and 3) the important role that the history and traditions of the City play in community life. The essence of Orange is variety, quality, and surprise. Numerous housing options are accommodated in the Plan, allowing residents a range of housing types, including homes in the largest historic district in Southern California and suburban tract homes designed by a world-famous architect. Housing locations also vary from densely populated urban neighborhoods near public transit, cultural, and recreational activities to semi-rural equestrian environments close to nature.This Plan maintains that variety of choice. Orange is a high-quality community that boasts world class hospitals, educational institutions, and business diversity. Its public services are second to none, its parks and open spaces attract visitors from around the region, and its business environment has made the City a regional economic leader. Yet, throughout its periods of growth and development,the City has maintained its small town attitude. With countless restaurants to enjoy in the City's retail areas, many small shops to discover at the Plaza, and the Santiago Creek area to explore, Orange continues to offer welcome surprises. As described above, Orange is already a very special place, but it is also a City at a crossroads in its history. This Plan comes at a critical juncture as the City expands its physical development one final time to the east. It ensures that the special quality of life that has defined this community is not lost as the region continues to be confronted by development pressures. Orange provides a strong sense of place and identity, and this General Plan is designed to protect those qualities for future generations. ORANGE GENERAL PLAN I-1 INTRODUCTION d Arsommauma, Purpose of the General Plan City planning is: An aid to the people in the street to visualize their city properly planned; A practical, sensible way of providing a place for everything with everything in its place; An instrument for uniting citizens to work for the city's future;and An efficient means of avoiding duplication and waste in public improvements." adapted from John Nolen, 1926 Each city and county within California is required to adopt a general plan and update this plan at regular intervals.The purpose of the general plan is to anticipate and plan for"the physical development of the county or city, and any land outside its boundaries which bears relation to its planning"(California Government Code Section 65300). Orange's General Plan might be compared to a roadmap that will lead to a better future. Contained within this roadmap is a description of Orange today, a vision of a desirable Orange of tomorrow, and the outline of a path, expressed through goals, policies and implementation measures,to achieve the vision's promise of tomorrow. To be considered comprehensive, this General Plan must address many issues that influence land use decisions. Specifically, state law requires that the General Plan address not only land use but also circulation, housing, the conservation of natural resources, the preservation of open space, the noise environment, and the protection of public safety (Government Code Section 65302). In addition to addressing the issues required by the state, Orange's General Plan also addresses important local issues involving cultural resources, economic development, urban design,and growth management. The primary benefit of long range planning is that it allows the City to control, to the degree possible, its own destiny. Much of the vision statement and many of the goals and policies outlined in this Plan will, if implemented, enhance livability for residents, foster a better business climate, and provide for the city's visitors. The links forged within the Plan between land uses and the transportation, infrastructure, and public services networks will provide the flexibility needed to accommodate growth and change over the life of the Plan. The General Plan also focuses on strengthening the connections between residential neighborhoods and adjacent commercial centers and recreational amenities. Such connections may lead to a healthier lifestyle for residents by creating mobility options that did not exist before. Orange' s Planning Area Orange benefits from its location near six major freeways that link the City to residential communities, shopping, and jobs throughout Orange, Los Angeles, and Riverside Counties Figure I-1).The planning area addressed by the General Plan is illustrated in Figure 1-2. The City of Orange lies in the heart of north-central Orange County, an area undergoing a marked change in land use. To the west and south are the rapidly growing and urbanizing cities of Anaheim and Santa Ana.To the southeast is the City of Tustin. Completely contained within the borders of Orange is the City of Villa Park. To the east lies vast acreage of ORANGE GENERAL PLAN I-2 A INTRODUCTION unincorporated land within the County of Orange. In addition to the corporate limits of the City, the planning area generally addresses portions of unincorporated Orange County located within and adjacent to the incorporated City limits. The planning area encompasses approximately 23,800 acres, including about 22,400 acres within the City's corporate limits and 1,40o acres of unincorporated land within the sphere of influence (S01). An additional 15,800 acres of Orange's remaining SOI are located east of the City and outside the planning area. A primary goal of the General Plan is to realize the long-held vision of"One Orange"—a city that stretches from the Santa Ana River to the Anaheim Hills, supporting a wide variety of residential lifestyles. These residential options include the dense urban environment of Uptown, the small town flavor of Old Towne, the "modernism for the masses" neighborhoods of the Eichler tracts,and tranquil, equestrian-oriented neighborhoods such as Orange Park Acres. Orange is connected to the surrounding region through a complex network of freeways; through Metrolink, a heavy rail commuter system; and through bus transit provided by the Orange County Transportation Authority (OCTA). The City occupies a unique geographic location that offers residents and businesses easy access to both the benefits of urban living and the quiet solitude of open spaces and suburban life. A Brief History of Orange In order to prepare for the future, it is often worthwhile to look to the past for inspiration. A review of Orange's dynamic history reveals seven important phases: pre-colonization, colonization, early settlement, agriculture and industry, immigration and ethnic diversity, interwar development, and postwar development. Pre-Colonization (before 1800) The City of Orange has a rich cultural heritage stretching back perhaps as far as 15,00o years. Evidence of pre-colonial occupation indicates an evolution from mobile foraging to sedentary settlement patterns. By the Late Prehistoric Period, human settlements with high population densities and complex political, social, technological, and religious systems were typical throughout the Los Angeles Basin.This period ended abruptly when Spanish colonists began establishing missions along the California coast. The City of Orange is situated within the ethnographic territory of the Gabrielino Indians of California. The Gabrielino people lived in either permanent or semi-permanent villages, primarily along coastal estuaries and major inland watercourses. Gabrielino culture was heavily affected by colonial Spanish missionary efforts, with disease and forced participation in the mission system disrupting most traditional culture and resulting in a catastrophic reduction of the native population. 41111 ORANGE GENERAL PLAN I-3 63L...,.....Los Angeles i f ,Ie. A \ County 57 t1, ENERAL P1.hN a H bra 'P Brea Full ton1ena l Yorba Linda Park-'- 72 57 Placentia 4 r 9i i - a Riverside 91 5- s County A t City of P,or;. yStar ton› - Onnge Orange , f i 24'Sphere cki L-- 1 - L- of Influence Garden Grove L s West inster t I 21,Santa Ana ; ii1111: 1 C1 Tustin l51 Fountain 2517 7 Valley i j I t Orange 39 405'\_ r 4 County H ntington it Costa Beach Mesa r 241..roe Irvine 55 ,1^ fLaker' ... i. iti 1,y Jj Forest/ Newp. t 1'`-' 133 7; 1--' Mission 1 1 -... -_..;',. r2-\ t r Viejo A 1 Qcf' Laguna c' Qcp Orange I Hills 4tj r I County J aguna ach i 1Be LEGEND NORM H H HMiles Planning Area o 1 2 3 4 Surrounding Cities Figure 1-1 Regional Location Map ORANGE GENERAL PLAN I-4 Wit.. 'i I Ts city or I JJ,r zr +t 1 I Cky of GE r Anaheim r 1__— e.. i 1••.. 1 t l Anaheim I t` r, j tT7iRn1.PLAN 00:. J 2.57 is I j t-' 1 l Clty Of 1 r' ) Villa Park I ' I i ptr. iff: I f 1 k k\• County of t s 9 1 f e " - I--', / l C 1 •`•' A • I Orange N,; 1ee44, f• .,...., _~ e,- 4 22' . r. r' • 1 i1 A,/•. 1 1.,-.„‘ v•Lt ?.,.w,:r e` ..- •`• J••`' i 1 p 1 1''' mow s ti a,. 1 1 /: k. it 3i 11' fr county or 4. t t r- t' e w 1 I City of I '65 i f Orange /.. 1, v I S ' r-- 1 Santa Ana .1-! `.1 ;241 t I I l I r-1 i 261 ti t I c y City of I r . 1t Tustin t/' i County of t 1- Orange 1 i LEGEND 4 P l__,j Planning Area k' 1 r t L_I Sphere of Influence Y d l/ t ttCityBoundary1 `•„ Surrounding Cities ti 4 d i— i1ifit' i i Highways F. b x, i i Railroads N..'lr a ^`^•'', t 4 E+t 1- 1 H ae.. i 1 0 075 0a QR t A 1-5 Figure 1-2 Orange Planning Area l INTRODUCTION While traveling through the area in 1769, Father Juan Crespi, whose diaries are the first written account of interactions between Spanish priests and the indigenous populations, noted the presence of a large village, Hotuuknga, upstream from present day Olive on the north side of the Santa Ana River. Crespi wrote that 52 Indians came to greet their party and accepted blankets, beads, and other goods. When he returned two years later, the group was hostile and the Spaniards quickly continued on their way. As late as the 187os, a small Indian camp"was visible on the north side of Santiago Creek just west of the Glassell Street crossing. Colonization (circa 1800-1870) The first landowner in the Orange area was Juan Pablo Grijalva, a retired Spanish soldier. His land extended from the Santa Ana River and the foothills above Villa Park to the ocean at Newport Beach. Along with his son-in-law, Jose Antonio Yorba, he began a cattle ranch and built the first irrigation ditches to carry water from the Santa Ana River. After Grijalva's death, Yorba and his nephew, Juan Pablo Peralta, received title to the Rancho Santiago de Santa Ana land grant with a total of 78,941 acres. After California became a state in 1848, one member of the extended family that owned the Rancho—Leonardo Cota—borrowed money from Abel Stearns, who was the largest landowner in Southern California. Cota put up his share of the Rancho as collateral. When Cota defaulted on the loan in 1866, Stearns filed a lawsuit in Los Angeles Superior Court to demand a partition of the land so that Stearns could claim Cota's section. As a result, the Rancho was subdivided into i,000 units parceled out to the heirs and the claimants in the lawsuit. Early Settlement (circa 1870-1920) The early roots of the Orange we recognize today had their origins in the partitioning of the Rancho. Two of the most important historic areas within the city—Old Towne and El Modena—were established at this time. Old Towne When the Rancho Santiago de gummriSantaAnawassubdividedin js the late 186os, a Los Angeles Lawyer, Alfred B. Chapman, f... represented several parties in j the partition suit. As payment e !Ilk for his fees, Chapman acquired approximately 4,00o acres. In M 1870, Chapman hired another j`2-1,- lawyer, William T. Glassell, to emu _Lar survey and subdivide his land II holdings into farm lots ranging in size from 10 to 4o acres. Old Towne Orange commercial building,circa i9oo ORANGE GENERAL PLAN I-7 INTRODUCTION r111411rr With an eye to the future, the founders set aside eight lots in the center of the newly subdivided blocks of land, to be used as a public square.This public amenity is now known as Plaza Square, or simply the Plaza. In honor of the founders, the two main streets, which intersected at the public square, were named Chapman Avenue (running east-west) and Glassell Street(north-south). Orange grew rapidly during the Great Boom of the 188os. New settlers flocked to the region due to cross-country expansion, inexpensive rail fares, and the balmy Southern California climate. Many of the new settlers entered Orange via the Santa Fe Railroad (later called the Atchison,Topeka,and Santa Fe) Depot four blocks west of the Plaza (currently the site of the historic Santa Fe Depot building and Depot Park). Much of the real estate boom of the 188os was driven by speculation. Landowners subdivided their ranches in order to sell individual lots, which were often bought by speculators. By 1887, dozens of new subdivisions and four new townsites were laid out. Connecting these new communities were two horse-drawn streetcar systems: the Orange, McPherson and Modena; and the Santa Ana, Orange and Tustin lines. By the late 187os and early 188os, the population of Orange was large enough to support the construction of civic buildings and gathering places such as churches, schools, and public parks. As the community continued to grow and lots were further subdivided, the new residents named the streets after the towns they came from in the East, such as Batavia and Palmyra. Orange incorporated on April 6, 1888. At the time of incorporation, Orange was about three square miles, with 60o people who predominantly lived on small family ranches surrounding the town. Although most residents lived on working farms, some homes—generally for the town's doctors, lawyers, and merchants—were built on the small r`, lots surrounding the Plaza. After the Great Boom of the 188os became a bust, major construction in 4/1 Orange lay dormant for over ten 11 years. With the new century came F growth in the town's citrus industry and an increase in economic prosperity. The Plaza soon became the commercial and social hub of Orange. Radiating out from the Plaza, Chapman Avenue and Glassell Street became favored locations for the principal banks, newspapers, stores, and public institutions.A Craftsman bungalow in Old Towne Orange,circa 1916 Residential development, which increased to meet growing demand, occurred on the secondary streets beyond the Plaza and commercial center. 151111Pise-a7r We ORANGE GENERAL PLAN I—8 Mt*^IM4- sue sgiamor INTRODUCTION El Modena Paralleling the early settlement of Old Towne was the establishment of another town located approximately three miles to the east. Known as El Modena, this small enclave evolved from a Quaker village into a citrus-farming Mexican-American barrio over the course of its nearly 120- year history. San Francisco millionaire and philanthropist David Hewes became one of the primary developers in the area when he bought hundreds of acres around 1885. By 1886,there were 40o people living in El Modena. In 1888, a horse drawn streetcar connected El Modena to Orange. By 1889 the building boom was over and the population declined briefly before rebounding with the successful establishment of the area as an important fruit growing location. Agriculture and Industry (circa 1880-1950) With the expansion of citrus farming, water quickly became a critical element for ongoing prosperity. In 1871,the A.B. Chapman canal began bringing water from the Santa Ana River to the townsite, with ranchers digging lateral ditches to their farms. By 1873, settlers began to develop wells, tapping into a water table only 18 feet below ground. A drought in 1877 motivated local ranchers to buy out the water company and form the Santa Ana Valley Irrigation Company(SAVI). As a cooperative water venture, SAVI was vital to the agricultural development of the arid Southern California region. Beginning in the 188os, the transcontinental railroad system granted growers in Orange County access to markets across the nation. The introduction of reliable irrigation and transportation systems was accompanied by a surge in agricultural production and productivity in Orange County. This was particularly true in Orange. From 188o to 195o, citrus and other agricultural industries were the predominant influences on the economic, political, and cultural development of the city. By i893, citrus had become so dominant that the Orange County Fruit Exchange(now known as Sunkist) was organized and incorporated. Its headquarters, built at the northeast corner of Glassell Street and Almond Avenue, marked the beginning of Orange's industrial district. The citrus industry continued to grow until the Great Depression. Between 1933 and 1935, unemployment in Orange County grew to i5 percent, leading to labor issues that culminated in a farm workers strike in 1936. Another blow to the citrus industry occurred in the 195os with the spread of "Quick Decline" disease, which resulted in reduced crops and loss of trees. This, combined with the strong demand for housing after World War II and the need for developable real estate, began to diminish the once-powerful role of the citrus industry. Immigration and Ethnic Diversity (circa 1910-1950) Two international events had significant effects on El Modena and Orange in the igios: the Mexican Revolution and World War I. Beginning around 191o, many Mexican families came to the U.S. seeking refuge from the chaos sparked by the Mexican Revolution. When the U.S. entered World War I in 1917, men across the country were drafted into the war effort. As a result,the fruit harvesting workforce dwindled, creating employment opportunities for these new immigrants. The increased demand for workers and the influx of Mexicans supported two vibrant communities: the Cypress Street Barrio and El Modena. The ethnic diversity of Orange was also increased by many Chinese railroad workers who made it their home. kzr wrnisarzw ORANGE GENERAL PLAN I-9 INTRODUCTION m w.r;dmioma. Cypress Street Barrio Beginning in 1893, Mexican citrus workers settled on Cypress Street, a short distance west of the Plaza, when a packinghouse was built on the 30o block of North Cypress. Growers realized that having an easily accessible, stable, and permanently housed workforce assured a lessened chance of labor problems. Residents of the Cypress Street Barrio were a tight-knit group with many new residents coming from the same villages in Mexico. Today, some residents can trace their family's neighborhood roots back four generations. In 1946, the City instituted new zoning laws that designated much of the Barrio for light industrial use. Because of this zoning, residents could not qualify for permits to rebuild or remodel their homes. El Modena By the 1920s, the town of El Modena began to take on a distinctly Mexican character. Many Mexican-American El Modena families worked in packinghouses and orchards. The area was isolated from surrounding communities by swathes of fruit tree groves. Property lots in El Modena were small, creating a very intimate community whose focus was on the church and the nearby schools. Segregation Isolation and segregation from the Anglo residents of Orange were unfortunate facets of life for the residents of El Modena and the Cypress Street Barrio. Many popular recreational activities were segregated, including movie theaters. Mexican-Americans were restricted from playing ball in public parks and their use of the community pool was limited to Mondays, because the pool was drained on Monday night. The effects of segregation were also felt in the schools, where Mexican-American student enrollment was restricted to "La Caballeriza" ("The Barn"), a two-room wooden schoolhouse behind the Lemon Street School. A breakthrough came in 1947, when the U.S. Supreme Court ruled in favor of the League of United Latin American Citizens in the case Mendez v. Westminster, ordering that "school districts not segregate on the basis of national origin." El Modena was among the four school districts subject to this ruling. In the wake of Mendez came the landmark Brown v. Board of Education decision in 1954. As integration slowly commenced, many disgruntled Anglo families moved away, settling in newly drawn school districts that were often "re"- segregated. The original town proper of El Modena, north of Chapman Avenue, continues to be an unincorporated part of Orange r ' County, despite annexation in 11000.the 196os and 197os of lt- 141-IM surrounding areas by the ever- growing City of Orange.Although waft many additions and alterations to the area's older homes have La Morenita general store in El Modena,circa 193o ORANGE GENERAL PLAN I-10 ysr INTRODUCTIONa taken place,the single-family,working-class residential character of El Modena remains. Interwar Development (circa 1920-1941) As the citrus economy continued to flourish into the 19205,the demand for housing grew and fueled the architectural diversity of the city. The first residential neighborhoods were created on a compact grid of streets. The cottages and California-oriented Craftsman houses of the 191os and early 192os were followed by European-influenced Tudor, Provincial, Mediterranean, and Norman Revival styles. The Mediterranean Revival style was the most popular in Orange, and houses in this style that remain exist primarily on the outskirts of the original townsite. Beginning in the 193os, Ranch and Minimal Traditional style homes became dominant due to the economic restraints created by the Great Depression. Minimal Traditional homes tend to be boxy, with flat wall surfaces and little ornamentation or other detailing; they often feature simplified features of Tudor and Colonial Revival styles. Ranch homes became the most prevalent type of housing built in the United States between the 193os and 196os. Throughout the 192os and up until World War II, Orange grew slowly and methodically. The boundaries of the original townsite were expanded with new residential areas,with infill development completing the historic area that is now known as Old Towne. Postwar Development circa 1945-1975) MEL World War II brought ooe prosperity to southern California's economy and ended the ravages caused by the Great Depression, which had devastated fruit o. prices. After World War II, the face of California was I I s changed forever by i returning soldiers and a massive influx of new state A Mediterranean Revival residence in Old Towne Orange,circa 192o residents. Orange, located centrally in the Los Angeles metropolitan area, was no exception. Military personnel, facing housing shortages in other areas, moved into the region. Orange's remaining open and agricultural space was highly attractive to developers of bedroom communities. By the 195os, many ranchers readily sold their acreage; orange groves were succumbing to the "Quick Decline" disease and the demand for real estate for housing construction soared. Orange's explosive suburban residential growth began in 1953 and peaked in 1962, when thousands of acres of land were sold for development. Between 195o and 196o, the local population swelled from io,000 to 26,00o as former orchards were torn out and replaced with subdivisions of single-family homes. Most of the larger tracts(50-10o homes)were built by outside developers, though there were a few local developers who worked on a smaller scale. One of the more notable developers working in Orange during this period was Joseph Eichler, who built three tracts to the north and east of Old Towne. These Eichler ORANGE GENERAL PLAN I-11 INTRODUCTION i MK a -j9: err AIMIlimet s= developments brought distinct elegance,originality,and modern design principles to suburban homes. Eichler Homes Between i949 and 1974, Joseph Eichler built about 000 homes in California, o ii I including 575 in Southern is California and 35o in Orange. Frank Lloyd Wright's Usonian building principles, which included integration with the natural landscape, the use of indigenous materials, and an Fairhaven Tract residence designed by architect A.Quincy Jones,circa aesthetic to appeal to the common man," gave Eichler ideas for his own suburban tract housing. Eichler hired a series of progressive firms, including Anshen & Allen, Jones & Emmons, and Claude Oakland Associates, to design innovative, modern, and affordable homes for California's growing middle class consumers. For over two decades, Eichler Homes would utilize streamlined production methods, specialized construction materials, an innovative marketing campaign, and one of the first non-discriminatory suburban housing policies in the country to change the shape of California's suburbs. Chapman University Chapman College was founded in i86i as Hesperian College in Woodland, California by the Disciples of Christ. By i92o, Hesperian College merged with the new Los Angeles-based California Christian College. The major benefactor to California Christian College was Fullerton citrus rancher Charles Clarke Chapman,and in i934 the college was renamed Chapman College. After World War II, as returning veterans with G.I. Bill funding filled college classrooms across the nation, Chapman College required a larger campus to accommodate the higher student population. When the Orange Unified School District proposed building a new high school, Chapman College purchased the old Orange Union High School campus at Glassell Street and Palm Avenue. Chapman College moved to this site in i954 and became the first four-year, accredited college in Orange County. In 199i, the college changed its name to Chapman University. Civic and Community Development The surge in Orange's population in the 195os and i96os created a need for new government buildings to replace the early City Hall, Fire Station, and Carnegie Library. The Orange Public Library (then addressed as poi North Center Street, but now as 407 East Chapman Avenue) was completed in 1961.Welton Becket and Associates designed a new civic center completed in 1963. Several fire stations were constructed during the 196os, including a new headquarters on South Grand Street in 1969. A new main post office was constructed on Tustin Avenue in 1971. ORANGE GENERAL PLAN I-12 INTRODUCTION New business districts were also created during the mid-195os, diminishing downtown Orange's importance as the city's major commercial center. Major shopping centers opened on the corners of Tustin Street, Chapman Avenue, Collins Avenue, Glassell Street, North Batavia Street, East Katella Avenue, Meats Avenue, Main Street, and La Veta Avenue, attracting supermarkets, restaurants, hardware stores, banks,and gas stations, among other businesses. Shopping centers built during the 196os and 197os include Town and Country Village Shopping Center, the Mall of Orange (now The Village at Orange), and The City Shopping Center(now The Block at Orange). The industrial areas located on the City's west side continued to flourish. Lots were consolidated, allowing for larger structures. The first of the office condominiums were completed.The growth pressures in the industrial area started to affect the quality of life for those living in the Cypress Street Barrio area and other residential pockets within the industrial district. Modern Orange: 1975—Present During the postwar suburban construction boom,the most desirable land for subdivisions was the flat coastal plain where cities such as Garden Grove, Westminster, and Costa Mesa developed. By the late 196os, construction slowed. Further development stalled with the energy crisis of 1973. By the 198os, however, the foothills to the east of El Modena became prime real estate. Orange Park Acres, which lies between Chapman Avenue and Santiago Canyon Road, was first subdivided in 1928, but most of the area was annexed by the City of Orange during the 199os. The Orange campus of Rancho Santiago Community College was constructed in -1985 and became Santiago Canyon College in 1997.As a result of this continued residential development, by the late 199os the citrus packing industry had steadily moved out of Orange County. Today the only operating packinghouse in Orange County is in the City of Orange. Once the flatlands were fully developed, the remaining undeveloped lands that were previously thought to be too expensive or complicated to develop, including the hillsides, became much more desirable. In 2005, the City approved a development proposal for the remaining undeveloped hillsides to the east of Orange and within its SOI. The newest neighborhoods in Orange are Santiago Hills II and East Orange, which consist of approximately 4,00o homes. Both neighborhoods are located adjacent to the Irvine Ranch Land Reserve, and have significantly expanded the boundaries of Orange towards the east. These areas comprise approximately 6,821 acres, with 4,988 acres set aside as permanent open space. Part of the development agreement called for the inclusion of amenities such as neighborhood parks, a 20-acre regional sports park,public trails,and a new fire station. Historic Growth As shown in Figure 1-3, the birthplace of the City of Orange can be traced to a single spot— the intersection of Chapman Avenue and Glassell Street. The City founders felt that a grand public space right in the heart of the community would be an asset that would help them sell lots. Now known as Plaza Park,this park and traffic circle is the hub of the City. The original city plot was for a i-square-mile town divided by a north-south commercial corridor and an east-west commercial corridor. The surrounding quadrants were residential ORANGE GENERAL PLAN I-13 INTRODUCTION ".0 r:; T a w r areas. Moving outward from the Plaza, lot sizes grew progressively larger. This original area, now known as Old Towne,has become one of the most cherished destinations in Orange County. Once the original square mile district was fully built out, the City began to grow through annexation. Nutwood Place, a residential subdivision to the south, was the first area annexed. Factors such as the Great Depression and World War II limited growth until i95o. By 195o, the demand for housing and the decline of the citrus industry combined to change Orange forever.The first areas to see growth and then annexation were the industrial lands west of the railroad tracks, south of Sycamore Avenue, and east of the River. This included the adjoining residential neighborhood. Between 196o and 197o, Orange saw some of its greatest periods of growth. The original farms north of Old Towne were redeveloped as residential subdivisions. These subdivisions sought annexation to take advantage of the high quality of services for which Orange is known.The area north of Collins Avenue saw dozens of residential neighborhoods spring up. Industry found a home west of the railroad tracks, east of the Santa Ana River, and north of the Bitterbush Channel (Sycamore Avenue). Areas adjacent to the new 57 Freeway west of the Santa Ana River were also brought into the fold, including the area where the UCI Medical Center stands today. Growth also occurred east of Old Towne, including the areas surrounding the El Modena and McPherson neighborhoods. In the 197os, the only area newly annexed to the city was the Nohi Ranch area at the City's northern border.This suburban residential district is bisected by Meats Avenue. In the 1980's, the Irvine Company's Santiago Hills and other projects redefined Orange's eastern boundary. This growth also included the development of Santiago Canyon College. The unincorporated Orange Park Acres neighborhood was surrounded by this large scale development. By the 199os,the City was well established.Additional areas annexed to the City were mostly infill development projects, including residential neighborhoods adjacent to Hart Park, north of Bond Avenue along Hewes Street, suburban residential tracks near Cerro Villa Park and Belmont Park,and a residential neighborhood located near Cannon Street. Since zoo°, numerous parcels have been annexed to the City, including the Del Rio/River Bend site along the Santa Ana River at the northwest tip of the city, a residential neighborhood centered on Serrano Park, a large parcel to the east of the current boundary along Chapman Avenue where it climbs up the hillside, and about a dozen small County islands surrounded by previously incorporated areas. The Vision for the Future By understanding the historical factors that have helped shape today's Orange, the City is well-positioned to chart a course to achieve its vision for the future.The Vision Statement is the foundation for General Plan goals and policies. It is an expression of our shared values and requirements for Orange's future. The Vision identifies the ideal conditions to work toward over the next 20 years and provides guidance for our policy makers as they work to improve the quality of life in Orange. ORANGE GENERAL PLAN I-14 t. i-- 91 i ` di 1 o City of t eNexnt.PLAN e•.0fti. Anaheim i:.„ Ji s A f 1 t ',', City of 1 II ItO 21 1 Villa Park,,, A, 1111111101r j t _ i Yam,.::. ... j 7 VT', M, ,,.I Ira .Jr 1 .J ( I j a:— eat i. i i a i h ir r_;: I 1p!tIIII n1;AMA M, J _ ntyuN w,1 /i ii),L. 2:Fr. kill:1111.. r1 4 T„ WOW LA. 1 1 /:. . tf, j.,) . iii 4,it'/ s,„„ ..,..., \. iteirL I LW tIMIA MI I 4: 7 City of s - i a i >'' F Santa Ana ! c,—i i i s/ e_ YNI i I 261 k I j j I l LEGEND I I '^ 1 Annexation AreasE»r Planning Area 1. 1 • t L 1 Sphere of Influence Nag Prior to 1950 [ -1 1980 to 1989 C` l j•\__ City Boundary 11.111 1950 to 1959 IIIII 1990 to 1999 z Surrounding Cities 1960 to 1%9 — 2000 to Present j Highways El. 1970to 1979 e` /V i-1- Railroads I 71 H H i-a F l Mn 0 axia1a,1 , I. 1-15 Figure 1-3 Orange's Historic Growth t :. W.;aM.`__ 440 INTRODUCTION A VISION FOR ORANGE : 2030 Preamble The people, neighborhoods, businesses, and educational and religious institutions define Orange. Our identity has been enhanced because we have honored the past while creating our future. We must continue to maintain our small town character within residential neighborhoods, while providing a wide range of services, products, and amenities in our commercial, retail,and industrial districts. Where We Live Our vision for Orange is to continue to provide housing for all lifestyles within its diverse population. The General Plan will strive to maintain the different residential areas that make Orange unique: whether living in a semi-rural area that provides scenic views of natural beauty and convenient access to nature and trails; residing in a traditional suburban neighborhood setting; or enjoying the urban core experience near shops, restaurants, civic facilities, and public services. In the future,we will strive to achieve the following objectives: Orange must continue to encourage a variety of living environments for a diverse population, consistent with existing neighborhoods. The City will build upon existing assets to create a living, active, and diverse environment that complements all lifestyles and enhances neighborhoods, without compromising the valued resources that make Orange unique. The City will continue efforts to protect and enhance its historic core. This same type of care and attention will be applied throughout the rest of the City. The City will work to improve the quality of life for all residents by providing residential, commercial, industrial, and public uses that exist in harmony with the surrounding urban and natural environments. Residential areas will be connected to commercial,recreational,and open space areas,as well as educational and cultural facilities via a balanced, multi-modal circulation network that accommodates vehicles, pedestrians, cyclists, hikers, and equestrians. This network will create additional opportunities for walking and biking, enhancing safety and well- being for neighborhoods and businesses. The City will encourage a local economy that provides ample commercial, financial, office, and industrial opportunities that provide employment and sufficient revenue to support important community services. Orange recognizes the importance of managing development in a manner that ensures adequate and timely public services and infrastructure and limits impacts on the natural environment. ORANGE GENERAL PLAN I-17 INTRODUCTION j cam.w,ni Where We Work Our vision for Orange is to find an appropriate balance between residential, commercial, and industrial demands. This vision encourages the City's retail districts to improve piece by piece, so that their efforts will result in a public realm along Chapman Avenue,Tustin Street, Katella Avenue, and Main Street that will be characterized by visually attractive commercial development, active public areas, high-quality streetscapes, and innovative design that complements Orange's heritage. To achieve our vision,we shall work toward the following objectives: The City will strive to provide for a range of businesses including both small, family- owned businesses and larger businesses that serve a regional market. The appearance and variety of commercial, retail, industrial, and employment centers will reflect the pride that residents have for Orange, as well as the long-term investments the City has made in its infrastructure. Orange will tap into the entertainment and hospitality markets by enabling development of high-quality facilities strategically located near other regional tourist draws. We will continue to support educational and medical institutions and other industries that provide high paying jobs and are major contributors to the community. Where We Play Our community recognizes that its quality of life will be judged by how well we connect with our surroundings.Therefore,this General Plan has focused on maintaining and creating those special places that bring us together. It is paramount to reinforce the connections between those places and the community, so that all our residents and visitors can share and enjoy the outdoors and other activities. Therefore, our Vision includes the following objectives: The City will work to define neighborhoods through the use of open space areas and a trail system that provides a source of aesthetic beauty and recreational opportunities. These open space areas support a healthy and active community. We will continue to protect our critical watersheds, such as Santiago Creek, and other significant natural and open space resources. The City will strive to build a comprehensive system of parks, open space, equestrian areas, scenic resources, undeveloped natural areas, as well as a full array of recreational, educational, and cultural offerings such as libraries, sports, entertainment areas, and play facilities. We will develop a connected multi-modal network for traveling from one end of town to the other that provides the option for residents from different neighborhoods to access parks, open spaces, and scenic areas by vehicle, transit, foot, bicycle or, where appropriate, horse. ORANGE GENERAL PLAN I-18 4*.* INTRODUCTION Visioning Process and Community Participation Vital to the success of this General Plan update was the high level of participation from the public. The objective for the community participation component of the General Plan was to rely upon members of the community to provide direction for the Plan, to assist in the drafting of the Vision Statement, and to identify issues and opportunities that will enhance the quality of life in Orange.A variety of outreach tools allowed all who wished to participate to do so in a manner with which they felt comfortable. Outreach tools included articles in the City's quarterly newsletter, workshops targeting seniors and youth, and stakeholder interviews including talks with the City Council and City department heads. Focus group discussions were conducted with representatives of special interest groups, including business owners, developers and real estate experts, community resource organizations, open space and trail advocates, and neighborhood groups. Additional focus group sessions were conducted with representatives from housing organizations, historic preservation and arts organizations, parks and recreation advocates, and the local hospitals. Other focus groups were comprised of infrastructure experts, education representatives, and those who work in the circulation and mobility fields. Leading the effort was the General Plan Advisory Committee (GPAC). The GPAC membership consisted of community representatives appointed by the City Council who brought broad- based insights regarding the issues and opportunities confronting Orange over the next two decades. The GPAC membership represented diverse community interests and geographic areas of the City. The GPAC was the principal body for identifying, confirming, and validating community concerns and desires, and functioned as a conduit between City, residents, property owners, and the business community. The group extensively analyzed a full spectrum of community issues, opportunities, and challenges. The GPAC met nine (9) times and successfully drafted and adopted the Vision Statement, identified and reviewed future options for land use opportunity areas, and drafted goals and policies for each General Plan element. In addition to their meetings, the GPAC toured the City by bus and shared their impressions with City staff and the rest of the group. The City also conducted four (4) community-wide workshops. The first workshop focused on the opportunity areas selected by the GPAC. The workshop objectiveidentifywasto issues and opportunities for each area. The second workshop was based on the input from the first workshop and was a review of potential land use alternative how' scenarios for the opportunity areas. The direction gained from the second " `. s\. workshop was further refined and presented to the public at the third workshop, where the long-term impacts Orange residents provided numerous ideas for future of each scenario were considered. Finally, land use options in many City neighborhoods during a fourth workshop was held to validate workshops. ARIBME ORANGE GENERAL PLAN I-19 INTRODUCTION the Vision Statement, the preferred land use scenarios, and the goals and policies crafted by the GPAC. In addition to these workshops,the City made a special effort to reach out to both youth and seniors,with individual workshops focused upon each of these groups. Other community participation tools included Joint Workshops with the City Council and the Planning Commission, and working with the Chamber of Commerce's Junior Leadership group. The City also invited representatives of the regions' Native American tribes to contribute to the process. The tribes contacted included the Juaneno Band of Mission Indians and the Gabrieleno/Tongva Tribal Council. Organization and Use of the General Plan The Orange General Plan contains goals, policies, and plans to guide land use and development decisions in the future. The General Plan consists of the following elements, or chapters: Land Use Element Circulation&Mobility Element Natural Resources Element Public Safety Element Noise Element Growth Management Element Cultural Resources&Historic Preservation Element Infrastructure Element Urban Design Element Economic Development Element Housing Element As shown in Figure 1-4, Orange's General Plan sometimes deviates from the state- and county-mandated elements in non-substantive ways to better conform to the objectives of the Vision Statement. For example, the state-required Conservation and Open-Space Elements have been combined in the Natural Resources Element. In addition to the state- mandated elements, stipulations of Orange County's Measure M require cities to prepare a Growth Management Element, addressing timely provision of capital facilities and public services associated with new development. The Orange General Plan also includes optional elements that address unique concerns that will affect Orange's quality of life in the future. These optional elements include Cultural Resources & Historic Preservation, Infrastructure, Urban Design, and Economic Development. Several supporting documents were produced during the development of the General Plan, including the General Plan Program Environmental Impact Report (Program EIR). Other technical reports and studies used in preparing the Plan include an existing land use survey,a traffic/circulation model, a historic resources inventory and cultural resources predictive model, and market studies and fiscal impact reports for opportunity areas identified in the Land Use Element. ORANGE GENERAL PLAN I-20 411,1/4- irn w-w INTRODUCTION Orange N Vision d t N c Statement N'- ,,1 i, ! d . -Si Ltl 1 i 5 > O 4 t 0 - 3 a o A 6w 4 n : ° P s i') Orange General Plan Elements U ' 0 3 3 3 Land Use Circulation & Mobility Natural Resources Open Space and Conservation)Ili MP Public Safety AIM MEP gm". 1111Noise imi Min midi Growth Management Cultural Resources & Historic Preservatioii Infrastructure Urban Design Economic Development Housing Pr•iiii Rim II Figure 1-4 General Plan Structure ORANGE GENERAL PLAN I-21 wk INTRODUCTIONEtitinmn .m., General Plan Structure The General Plan document is comprised of this Introduction, and eleven elements. Each element may stand alone, but is also an integral part of the overall plan. The General Plan is accompanied by an Implementation Program and Glossary. Each of the elements is organized according to the following format: t) Introduction; 2) Issues, Goals, and Policies; and 3) the Plan. The Introduction of each element describes the focus and the purpose of the element. The relationship of the element to other General Plan elements is also specified in the Introduction. The Issues, Goals, and Policies section of each element contains a description of identified planning issues, goals, and policies related to the element topic, based on input received from the community, members of the GPAC, and members of the City Council, Planning Commission, and City staff. Issues represent the needs, concerns, or desires addressed by the General Plan. Goals are overall statements of community desires and consist of broad statements of purpose or direction. Policies serve as guides to the City Council and City staff in reviewing development proposals and making other decisions that affect future growth and development in Orange. Each element also contains a Plan section. The Plan section offers an overview of the City's course of action to implement identified goals and policies. Many of the elements also contain one or more policy maps which consolidate the various opportunities, constraints, classifications, and policies expressed in the Element in graphic form. For example, the Land Use Element contains a "Land Use Policy Map" and a "Land Use Plan" identifying and describing the locations of future land uses by type, density, and intensity within the City of Orange. Following the elements is the Implementation Program, which identifies specific actions to achieve the goals, policies, and plans identified in each General Plan element. The Implementation Program is provided as an Appendix to the General Plan. The organization of the General Plan allows users to identify the section that interests them and quickly obtain a perspective of the City's policies on that subject. However, General Plan users should realize that the policies in the various elements are interrelated and should be examined collectively. Policies are presented as written statements, tables, diagrams, and maps. All of these components must be considered together when making planning decisions. Related Plans and Policies State law places the General Plan atop the hierarchy of land use planning regulations. Several local ordinances and other City plans must conform to General Plan policy direction and work to implement the General Plan. Also, regional governmental agencies, such as the Southern California Association of Governments (SCAG), the South Coast Air Quality Management District (SCAQMD), and the Regional Water Quality Control Board (RWQCB) have been established in recognition of the fact that planning issues extend beyond the boundaries of individual cities. Efforts to address regional planning issues such as air and water quality, transportation, affordable housing, and habitat conservation have resulted in the adoption rrr ORANGE GENERAL PLAN I-22 eseevirersiorAGassisav INTRODUCTION of regional plans. The policies adopted by Orange will be affected by these plans, and will in turn have effects on these other plans. The paragraphs below describe ordinances, plans, and programs that should be consulted in association with the General Plan when making development and planning decisions. Orange Zoning Code The Zoning Code, the primary tool used to implement the General Plan, regulates development type and intensity citywide. Development regulations imposed include those setting limits on building height, requiring setbacks, and specifying the percentage of a site that must be landscaped. The Zoning Code also outlines standards for residential planned unit development and affordable housing,among many other land use issues. Orange Redevelopment Plans Under California law, cities can form redevelopment agencies and adopt redevelopment plans as mechanisms for facilitating community renewal.The Orange Redevelopment Agency Agency) was established with redevelopment authority on August 11, 1983, with the adoption of Ordinance No. 21-83. Since then, the Agency has been instrumental in upgrading the Tustin Street project area, redeveloping the Southwest Project area that includes the City's southwest quadrant and the Old Towne Historic District, and renewing the Northwest Project area, which includes a large section of the City's industrial areas. In 2001, the three redevelopment project areas were merged into one, known as the Orange Merged and Amended Redevelopment Project Area. The Agency strives to achieve its three-fold mission: to enhance the commercial and industrial areas of the City; to revitalize those areas; and to increase, improve, and preserve the community's supply of low- and moderate-income housing available at affordable housing cost. Orange's City Council acts as the governing board of the Redevelopment Agency. Specific Plans and Neighborhood Plans in Orange A Specific Plan is a detailed plan for the development of a particular area. Falling under the broader umbrella of the General Plan, Specific Plans are intended to provide more finite specification of the types of uses to be permitted, development standards (setbacks, heights, landscape, architecture, etc.), and circulation and infrastructure improvements within identified subareas of the City. Specific Plans are often used to ensure that multiple property owners and developers adhere to a single common development plan. Further, they can provide flexibility in development standards beyond those contained in the Zoning Ordinance. Orange has utilized Specific Plans and Neighborhood Plans as tools to achieve the coordinated development of individual parcels within a broader context. Adopted Specific Plans and Neighborhood Plans include: Archstone Gateway Chapman University Immanuel Lutheran Church Orange Park Acres Pinnacle at Uptown Orange St.John's Lutheran Church and School Santa Fe Depot Area ORANGE GENERAL PLAN I—2 3 INTRODUCTION W Serrano Heights Upper Peters Canyon Earlier planning efforts that have influenced the growth and change within Orange include the 1975 East Orange General Plan and the Orange Park Acres development plan. California Environmental Quality Act The California Environmental Quality Act (CEQA) was adopted by the state legislature in response to a public mandate for thorough environmental analysis of projects that could affect the environment. The provisions of the law and environmental review procedure are described in the CEQA Statutes and Guidelines. CEQA is the instrument for ensuring that environmental impacts of local development projects are appropriately assessed and mitigated.The City also maintains local CEQA Guidelines that provide more detailed guidance for the application of CEQA to new development in Orange. SCAG Regional Comprehensive Plan and Regional Transportation Plan In 1995, SCAG prepared a Regional Comprehensive Plan (RCP) to address regional issues, goals, objectives, and policies for the Southern California region into the early part of the zest century. The RCP was updated in 20o8 based upon the SCAG's moo Compass Blueprint Growth Vision, which calls for modest changes to current land use and transportation trends on only two percent of the land area of the region. A key component of the RCP is the Regional Transportation Plan (RTP). The RTP sets broad goals for the region and provides strategies to reduce problems associated with congestion and mobility. In recognition of the close relationship between traffic and air quality issues, the assumptions, goals, and programs contained in the RTP parallel those used to prepare the Air Quality Management Plan (AQMP). The RTP was also updated in 2008 to implement transportation provisions of the RCP. Air Quality Management Plan The federal Clean Air Act requires preparation of plans to improve air quality in any region designated as a nonattainment area. A nonattainment area is a geographic region identified by the Environmental Protection Agency (EPA) and/or the California Air Resources Board as not meeting state or federal standards for a given pollutant. The AQMP, prepared by SCAQMD, was first adopted in 1994 and is updated on a three-year cycle. It contains policies and measures designed to achieve federal and state air quality standards within the South Coast Air Basin. The assumptions and programs in the AQMP draw directly from regional goals, objectives, and assumptions in the RCP. Orange County General Plan The Orange County General Plan guides land use decision-making in unincorporated sections of the County. Orange's SOI is also governed by the County General Plan. The City's SOI is established by the Local Agency Formation Commission (LAFCO). As properties in the SOI develop, they may also be annexed to and served by the City. The County and incorporated communities within the County have agreed, through a formal Memorandum of ORANGE GENERAL PLAN I-24 eaRIFINte arap INTRODUCTION Understanding, to consult with each other whenever development actions are proposed within a city's SOI. Local Agency Formation Commission Guidelines The provisions of California's Cortese-Knox-Hertzberg Local Government Reorganization Act of 2000 set forth procedures for LAFCOs throughout the state to review annexation applications.The Act was adopted to: encourage orderly development; ensure that populations receive efficient and high quality governmental services; and guide development away from open space and prime agricultural lands, unless such action promotes planned, orderly,and efficient development. The Orange County LAFCO must adhere to adopted guidelines pursuant to the Act in its review of future City annexations within or beyond the City's SOI. County of Orange Master Plan of Arterial Highways The County of Orange Master Plan of Arterial Highways (MPAH) forms part of the Orange County General Plan and designates the arterial system in the Circulation & Mobility Element of the General Plan. Defined according to specific arterial functional classifications,the MPAH serves to define the intended future roadway system for the County. Cities within the County are expected to achieve consistency with the MPAH in individual General Plan circulation elements. To implement changes to the MPAH, approval from the Orange County Transportation Authority(OCTA)is required. Measure M In 199o, Orange County voters approved Measure M, authorizing a half-cent retail sales tax increase for a period of 20 years effective April 1, 1991. Revenue generated by Measure M is returned to local jurisdictions for use on local and regional transportation improvements and maintenance projects. To qualify for this revenue, each jurisdiction must comply with the Countywide Traffic Improvement and Growth Management Program. Specifically, to receive an allocation of Measure M funds, Orange must submit a statement of compliance with the growth management components of the program. Requirements include the adoption of a traffic circulation plan consistent with the County MPAH,adoption of a Growth Management Element within the General Plan,adoption and adequate funding of a local transportation fee program, and adoption of a seven-year capital improvement program that includes all transportation projects funded either partially or fully by Measure M funds. The current Measure M expires in 2oii, and a November 2006 ballot measure renewed the program (now known as M2) through 2o3i. M2 extends the requirements of Measure M, without increasing sales taxes, to fund freeway, street, transit, and environmental projects identified in a Transportation Investment Plan considered by voters in tandem with the renewal measure. mr ORANGE GENERAL PLAN I-25 INTRODUCTION c< Orange County Central/Coastal Natural Communities Conservation Plan The Orange County Central/Coastal Natural Communities Conservation Plan (NCCP) was approved in 1996. The NCCP is a program of the State of California designed to address the needs of habitats and species at the level of natural communities. An NCCP is a plan for conservation of natural communities that takes an ecosystem approach and encourages cooperation between private and government interests. It also provides for the regional and area-wide protection and perpetuation of plants, animals, and their habitats, while allowing compatible land use and economic activity. An NCCP seeks to anticipate and prevent the controversies caused by species listings (as federally endangered, for instance) by focusing on the long-term stability of natural communities. National Pollution Discharge Elimination System Program Urban pollutants degrade water quality and adversely affect wildlife and plants dependent on aquatic habitat. The City is a co-permittee with the County of Orange in the National Pollution Discharge Elimination System (NPDES) program, which is designed to reduce pollutants in runoff. According to the NPDES permit for the region, all new development projects and substantial rehabilitation projects are required to incorporate Best Management Practices(BM Ps)as identified in the County Drainage Area Master Plan (DAMP). ORANGE GENERAL PLAN I-26 r s INTRODUCTION Introduction to the General Plan 1 Purpose of the General Plan 2 Orange's Planning Area 2 A Brief History of Orange 3 FIGURE 1-1. Regional Location Map 4 1-5 FIGURE 1-2. Orange Planning Area 5 Historic Growth 13 The Vision for the Future 14 1-15 FIGURE 1-3. Orange's Historic Growth 15 Visioning Process and Community Participation 19 Organization and Use of the General Plan 20 Figure 1-4 General Plan Structure 21 Related Plans and Policies 22 ORANGE GENERAL PLAN I-27 11111 NG LAND USE ENERAL PLAN INTRODUCTION AND VISION FOR THE FUTURE The Land Use Element describes the desired future physical and economic composition of Orange's planning area and the planned relationship of uses. The primary objectives of the Element are to determine the future location, type, and intensity of new development and redevelopment projects, and to establish the desired mix and relationship between such projects to maximize 3_..._— the long-term livability of the community. The City also seeks to achieve a number of additional objectives, consistent with Orange's Vision for the Future,described in the General Plan Introduction.These objectives include: Providing policy guidance for Orange's future based on innovative land use planning techniques, unifying the developed portion of the City with east Orange, and expressing community values. Encouraging a variety of semi-rural, suburban, and urban neighborhood living environments. Protecting and enhancing the City's historic core, and expanding historic preservation efforts to other neighborhoods within the City. Encouraging new residential, commercial, industrial, and public uses within established focus areas. Supporting a multi-modal circulation network that accommodates vehicles, pedestrians, cyclists, hikers, and equestrians. Managing future development in a manner that ensures adequate and timely public services and infrastructure. Improving the appearance and variety of the City's commercial, retail, industrial, and employment centers. Enabling development of high quality entertainment-oriented mixed-use projects strategically located near regional tourist draws. Expanding open space areas and promoting completion of a trail system. Protecting critical watersheds and other natural and open space resources. ORANGE GENERAL PLAN LU-1 REV. 12/15, GPA 2014-0001) LAND USE The Land Use Element provides a key policy foundation for the entire General Plan. Through the use of text and diagrams, the Land Use Element establishes clear and logical patterns of land use as well as standards for new development. The goals and policies contained in this Element establish a constitutional framework for future land use planning and decision- making in the City. Another important feature of this Element is the Land Use Policy Map, which indicates the location, density, and intensity of development for all land uses citywide. The proposed land use designations identify the types and nature of development permitted throughout the planning area. The goals and policies contained in this Element are designed to ensure land use diversity and balanced development; encourage mixed-use development; promote commercial enterprise in Orange; encourage high quality industrial development; maintain and enhance the role of Old Towne within the community; encourage an efficient and responsible relationship between land use, transit, open space, and areas of environmental sensitivity; ensure City interests are achieved through inter-jurisdictional and regional planning;and encourage public involvement in land use planning decisions. Purpose of the Land Use Element The Land Use Element is one of seven elements required by the State to be included in Orange's General Plan. The Land Use Element directs and defines development patterns by designating allowable uses, requirements, and locations for both existing and future development.This Element has the most wide-ranging scope in the General Plan, and affects all of the others.Although the interpretation of the Land Use Element is the responsibility of the community's policymakers, this vision of long-term land use will influence short-term plans such as infill development, Specific Plans,and public works investments. Scope and Content of the Land Use Element The Land Use Element is divided into three sections: i) Introduction 2) Issues, Goals, and Policies 3) Land Use Plan The Introduction defines the purpose, scope, and content of the Land Use Element, and its relationship to other General Plan Elements. The Issues, Goals, and Policies section describes the City's intent to encourage diverse land uses that foster a vibrant and sustainable community, and to coordinate planning and public participation activities in determining future land uses. The Land Use Plan section communicates how these goals and policies will be implemented through land use diagrams and maps depicting assigned land uses, locations, and the extent of future use envisioned by the community. The Land Use Plan complies with the requirements of the Land Use Element as stated in Section 65302 of California's Government Code. Land uses requiring future planning include housing, business, industry, open space, forest/timber, agriculture, natural resources, recreation, scenic beauty, education, public buildings and land, solid and liquid waste disposal facilities, and other public and private uses of land." The Land Use Plan also establishes standards for residential density and non-residential building intensity for ORANGE GENERAL PLAN LU-2 B y_ LAND USE designated land uses citywide, and it expresses the community's vision for revitalization of eight focus areas located throughout the City. Relationship to Other General Plan Elements The Land Use Element serves as a guide for future development in the City and determines many key issues examined in the remaining Elements. For example, different land uses generate various trip demands, which influence the capacity and service levels of Orange's transportation systems. The Circulation & Mobility Element lays out future transportation services and routes designed to meet the demands of both existing and future development. Future residential development described in the Land Use Element affects the City's housing goals, programs and objectives, which are discussed in the Housing Element. Land use decisions and the City's long-range economic development strategy are also directly inter- related. This Element proposes new development strategies for a number of the City's most important commercial corridors, and advocates intensification of certain areas as mixed-use corridors and urban office and employment centers. These Land Use Element policies are directly related to the long-range policies of the Economic Development Element. The Land Use Element also designates areas to be used as open spaces, areas for parks and recreation, and areas for conservation and preservation of natural resources. Goals and policies regarding the preservation and maintenance of these areas are also addressed in the Natural Resources Element. Land uses defined in the Land Use Element are also affected by the Urban Design Element. The goals and policies of the Urban Design Element address physical characteristics of the community, such as building massing,concentration, setbacks,and landscaping features that affect land use requirements. The Cultural Resources & Historic Preservation Element expresses the City's strategy for requiring preservation of structures and areas that carry historic significance. Growth and development patterns in Orange are to be managed in a way that does not overwhelm or reduce the quality of services provided by the City's infrastructure system. The goals and policies of the Growth Management and Infrastructure Elements are related to the contents of the Land Use Element because they affect land use designations and requirements. Safety and noise abatement issues also relate to land uses. To comply with noise level requirements, land use designations are determined in tandem with noise contour maps in the Noise Element. Provisions are made within the Noise Element to allow higher noise levels within the mixed-use environments promoted within the Land Use Element. To mitigate or avoid damage and injury from natural and human-caused hazards, hazards maps in the Safety Element must also be consistent with the Land Use Element. ISSUES , GOALS , AND POLICIES The goals, policies, and implementation programs of the Land Use Element address eight citywide issues, as well as issues pertaining to eight focus areas identified within the City. ORANGE GENERAL PLAN LU-3 LAND USE s4"SeliagElailialliEr Citywide land use issues represent opportunities to improve the way land is currently used and the way future land use is planned.These opportunities capitalize on existing community assets, such as hospitals, universities and colleges, transportation networks, and natural features. Land use issues include: (t) ensuring land use diversity and balanced development; 2) encouraging mixed-use development for purposes of promoting convenient and efficient relationships between housing, employment, services, and transit; (3) promoting commercial enterprise in Orange; (4) encouraging high quality industrial development; (5) maintaining and enhancing the role of Old Towne within the community; (6) considering and promoting the contextual and environmental compatibility of various land uses; (7) ensuring City interests are achieved through inter-jurisdictional and regional planning; and(8) encouraging public involvement in land use planning decisions. Land Use Diversity and Balanced Development A well-balanced community provides a broad range of housing and business opportunities as well as recreational, institutional, and cultural activities that serve Orange's diverse population and enhance the overall living environment. By encouraging a mix of land uses, the City can create an active and diverse environment that complements all lifestyles and supports neighborhoods. The City will continue to work toward creating a balanced inventory of land uses that meets the housing needs of all income groups and household types, creates a stable employment and tax base, maintains logical relationships between land uses and community assets, and provides residents with a diverse range of recreational opportunities. GOAL to:Meet the present and future needs of all residential and business sectors with a diverse and balanced mix of land uses. Policy 1.1:Maintain a land use structure that balances jobs and housing with available infrastructure and public and human services. Policy t.z:Balance economic gains from new development while preserving the character and densities of residential neighborhoods. Policy 1.3:Provide a range of housing densities and types to meet the diverse needs and lifestyles of residents. Policy 1.4:Ensure that new development reflects existing design standards, qualities, and features that are in context with nearby development. Policy 1.5:Prioritize recreation and open space uses at Irvine Lake and protect historic visual resources in east Orange. Policy 1.6:Minimize effects of new development on the privacy and character of surrounding neighborhoods. Policy 1.7:Provide a range of open space and park amenities to meet the diverse needs of current and new residents. Encouraging Mixed—use Development opportunities for creative commercial, residential, office, or mixed-use centers are emerging within older commercial corridors throughout the City. Three different styles of mixed-use are defined in the Land Use Plan and are implemented through five land use ORANGE GENERAL PLAN LU-4 k JT o LAND USE designations. The three mixed-use styles are Neighborhood, Old Towne, and Urban. Future development options for these mixed-use areas rely on high quality, pedestrian-oriented design, incorporation of community open spaces, and full integration of alternative transportation modes. Successful completion of high quality mixed-use projects in Orange will assist the City in accomplishing multiple objectives concerned with housing, circulation, land use,economic vitality, recreation, and the environment. GOAL 2.0: Create successful, high quality mixed-use districts consisting of a mix of residential, commercial, office, civic, and common open space land uses, supported by alternative modes of transportation. Policy 2.1:Encourage development of mixed-use projects to revitalize older commercial areas throughout the City and industrial areas surrounding the historic Santa Fe Depot. Policy 2.2:Encourage transfers of development rights within areas designated Urban Mixed-use on the Land Use Policy Map to promote development of high-rise office and residential structures at compatible locations. Policy 2.3:Encourage transfers of development rights within areas designated Neighborhood Mixed-use and Old Towne Mixed-use on the Land Use Policy Map to promote historic preservation and creation of open spaces accessible to the community. Policy 2.4: Encourage mixed-use projects that contain a variety of compatible uses, and provide necessary supporting public and community facilities. Policy 2.5: Minimize traffic and parking impacts of proposed mixed-use projects. Policy 2.6: Encourage linkage in and around mixed-use areas using a multi-modal circulation network, particularly transit, pedestrian sidewalks, paths and paseos,and bicycle and trail systems. Policy 2.7:Ensure that the architecture, landscape design, and site planning of mixed- use projects are of the highest quality, and that they emphasize a pedestrian orientation and safe, convenient access between uses. Policy 2.8: Ensure that adequate gathering areas or plazas are incorporated within mixed-use projects and areas to allow for social interaction and community activities. Policy 2.9: Encourage mixed-use development to include ground floor retail. Vibrant Commercial Districts Commercial activities continue to play an important role in shaping the City. Business activities provide jobs and revenue that support important community services. Much of the City's revenue comes from sales tax generated by commercial establishments. The City will continue to revitalize and improve the appearance of aging commercial districts.The City will encourage land use patterns and development standards that promote vibrant commercial activities, take advantage of existing land use assets, assist existing businesses that want to expand, promote the local economy and existing establishments, and reinforce the relationship between neighborhoods and adjacent business districts with respect to goods, services,and employment. ORANGE GENERAL PLAN LU-5 LAND USE GOAL 3.o: Create commercial uses that provide a solid economic base and employment opportunities and identify Orange as an attractive and diverse shopping destination. Policy 3.1:Promote development of revenue-generating land uses that help defray the costs of high quality public services. Policy 3.2: Actively promote the City as a place to shop and conduct business, and encourage local patronage of Orange businesses. Policy 3.3: Improve vehicular, pedestrian, and visual connections between commercial areas and the rest of the community. Policy 3.4: Discourage commercial and industrial enterprises that have significant adverse soil, air,water,or noise impacts. Sustainable Industrial and Office Uses Providing options for industrial development and office uses within the City is important, because these uses contribute to the economic wellbeing and the employment base of the community. Industrial development in Orange and throughout the region has changed significantly in recent years. Although traditional manufacturing activities continue to be a key component of Orange's industrial areas, many such businesses have been replaced by warehousing uses and modern office uses that are more attractive in appearance and more compatible with adjacent neighborhoods. In some instances, large buildings and warehouses that once housed manufacturing or agriculture-oriented activities are now available for adapting to future residential, office, or commercial uses. In addition, Orange has experienced increased demand for larger, multi-story professional office complexes at locations such as South Main Street, Town and Country Road, La Veta Avenue, and The City Drive. Demand has also increased for medical office space surrounding local hospitals. The City will emphasize the important role industry continues to play in the community's future, will encourage continued development of professional offices, and will ensure that the quality of the environment is not compromised by industrial uses. GOAL 4.o: Encourage high quality, sustainable, industrial and office uses that provide jobs and revenue; support environmental quality; and promote options for adaptive re-use. Policy 4.1:Maximize use of limited land resources for industrial and office uses within areas designated Light Industrial or Industrial on the Land Use Policy Map. Policy 4.2: Encourage development of professional office space located near medical institutions and County facilities. Policy 4.3: Protect residents and the environment from potential adverse soil, air,water, and noise impacts of industrial operations. Policy 4.4: Encourage development of mixed office, industrial, and support commercial uses in areas designated Light Industrial on the Land Use Policy Map. Policy 4.5: Accommodate a wide variety of industrial uses that contribute to a healthy and diverse economic base. iffamisimysies ORANGE GENERAL PLAN LU-6 LAND USE Old Towne Orange When people think of Orange, they often think of the historic downtown district and adjoining residential neighborhoods. Old Towne Orange is an active, vibrant area that supports a variety of commercial, office, civic, and residential uses. In recent years, the City has taken steps to enable long-term preservation of many historic properties in the Old Towne area.This has created one of California's most viable and recognized historic districts. The historic Santa Fe Depot, associated Metrolink station, and Orange Transportation Center provide valuable commuting options. Land use policies for Old Towne call for targeted growth in the area near the Santa Fe Depot, to be achieved through increased density and more walkable and transit-oriented development. This area also provides opportunities for adaptive reuse of historic industrial buildings. GOAL 5.o: Maintain and enhance the vibrant, transit-accessible, pedestrian-friendly, and livable character of Old Towne's neighborhoods and commercial core. Policy 5.1:Promote targeted development of mixed-use, transit-oriented development surrounding the Santa Fe Depot to achieve development intensities compatible with the fabric of Old Towne. Policy 5.2: Promote adaptive re-use of previously industrial and agricultural historic structures for residential,office,or commercial purposes. Policy 5.3: Continue to promote institutional and civic uses located throughout Old Towne. Policy 5.4: Develop additional sensitively designed public parking throughout Old Towne. Policy 5.5: Continue to require consistent, high quality, historically-referenced design within Old Towne. Policy 5.6: Continue to upgrade infrastructure throughout Old Towne. Policy 5.7: Ensure that roadway improvements within Old Towne are designed to promote walkability and a safe pedestrian environment. Policy 5.8: Maintain balance between Old Towne and Chapman University's growth, so that the University complements Old Towne. Policy 5.9: Promote attractive and safe pedestrian access between the Santa Fe Depot and the Plaza. Contextual and Environmental Compatibility The quality of the physical environment, built or natural, plays a large part in defining Orange's quality of life. Land use conflicts often occur when newer developments are insensitive to the use, scale or character of existing development and/or the surrounding natural environment. In other cases, older, obsolete nonconforming uses remain interspersed among newer development, as when old service stations or repair shops survive in the midst of residential development. Such conflicts can lead to degradation of the built and natural environments. The following goals and policies are designed to ensure contextual and environmental compatibility of development within the City, and to achieve compliance with local,regional, state, and federal environmental requirements. e ORANGE GENERAL PLAN LU-7 LAND USE s These policies also represent an overview of the City's strategy to consider the contextual and environmental effects of new development and reuse projects. Additional related policies addressing this topic may be found in the Natural Resources, Cultural Resources & Historic Preservation, Infrastructure, Urban Design, Public Safety, and Noise Elements. GOAL 6.o: Advance development activity that is mutually beneficial to both the environment and the community. Policy 6.1:Ensure that new development is compatible with the style and design of established structures and the surrounding environment. Policy 6.2: In areas where residential uses abut commercial or industrial land uses, use buffering techniques to improve compatibility. Such techniques include the use of setbacks, screening, soundwalls with pedestrian access, and appearance standards. Policy 6.3: Establish and maintain greenways, and pedestrian and bicycle connections that complement the residential, commercial and open space areas they connect. Policy 6.4: Create and maintain open space resources that provide recreational opportunities, protect hillside vistas and ridgelines, and conserve natural resources. Policy 6.5: Reduce pollutant runoff from new development and urban runoff to the maximum extent practicable. Policy 6.6: Enhance the walkability of both new and current development. Policy 6.7: Integrate natural amenities and connections, including waterways and wildlife corridors,within the design of urban and suburban spaces. Policy 6.8: Maximize landscaping along streetscapes and within development projects to enhance public health and environmental benefits. Policy 6.9: Restrict development in areas where exposure to hazards such as flood, erosion, liquefaction, dam failure, hazardous materials, and toxic gases cannot be mitigated to reduce risk to residents and liability to the City. Policy 6.1o: Mitigate adverse air, noise, circulation, and other environmental impacts caused by new development adjacent to existing neighborhoods through use of sound walls, landscaping buffers, speed limits, and other traffic control measures. Policy 6.11: Recognize the value of natural and cultural resources in the undeveloped portions of the planning area. Policy 6.12: Maximize the land use opportunities for the Irvine Lake area by providing a mix of uses, such as lodging, housing, and recreational uses. Coordinated Planning Future planning considers ongoing planning efforts of other City departments, agencies, surrounding jurisdictions, and special districts. In addition, ongoing planning efforts undertaken by regional agencies such as the County of Orange, the Southern California Association of Governments, the Southern California Air Quality Management District, the ORANGE GENERAL PLAN LU—8 LAND USE Orange County Transportation Authority, the Santa Ana Regional Water Quality Control Board,and others will be examined for consistency with the City's long-range objectives. GOAL 7.o: Promote coordinated planning among City departments and agencies, property owners, residents, special districts, and other jurisdictions in the region. Policy 7.1:Coordinate with the Orange Unified School District and Community College District regarding future plans for their facilities. Policy 7.2: Work with institutions within the City to ensure that implementation of their future plans is compatible with the City's goals for surrounding areas. Policy 7.3: Coordinate planning efforts with adjacent cities, special purpose agencies, utilities, and community service providers. Policy 7.4: Ensure positive benefits for Orange from regional transportation, land use, air quality,waste management and disposal,and habitat conservation plans. Policy 7.5: Work with and encourage other agencies and service providers to minimize potential visual and environmental impacts of their facilities on Orange. Policy 7.6: Explore joint use agreements with other agencies to share existing and future public facilities among institutions in Orange. Public Participation The City recognizes that the single most important component of any future planning effort is public participation. The following goal and policies emphasize the need for continued public involvement in all parts of the planning process. GOAL 8.o: Encourage active involvement of residents, businesses, and agencies in the planning and decision making process. Policy 8.1:Continue to provide opportunities for public education and involvement in land use planning decisions through public hearings, community meetings, study sessions, electronic media, and any other appropriate and available means. Policy 8.2: Emphasize public-private cooperation in implementing the General Plan and future planning activities. Policy 8.3: Foster meaningful involvement and interaction among diverse groups within the City regarding land use planning efforts and decision making. LAND USE PLAN The Land Use Plan discusses how the City will grow and change over the next zo years, and describes those aspects of the community that will be enhanced and maintained. Current and future land uses are categorized and mapped to identify where residential, commercial, industrial, and community facilities are anticipated to be located. The Land Use Plan describes the planned distribution and development intensities of all land uses in the City, and describes how the City's land use goals will be achieved both citywide and within eight identified focus areas. ORANGE GENERAL PLAN LU-9 LAND USE Land Use Distribution The predominantly residential land use pattern in Orange reflects the City's history of transition from a citrus-growing center clustered near the railroad to a town core surrounded by residential neighborhoods and supporting businesses and services. Based on a land use inventory completed in 2004, PublicFacilities residential development and Instittions represented the predominant land Vacont 4 use within Orange's city limits, with Open housing covering 46 percent of the Space/Parks Housing City's land area. Commercial and 32° 46 industrial uses represented about 14 percent of the City's land area, while natural hillsides, parks, and open Industry space represented 32 percent. 6°° Retail/Office Figure LU-1 identifies the division of 8% on-the-ground land uses within the City in 2004. Figure LU-1 Land Use Distribution(2004) Land Use Density and Intensity Planners describe the extent to which properties can be or are developed using the terms density and intensity. Density is used for residential uses and refers to the population and development capacity of a given parcel or group of parcels. Density within the General Plan is described in terms of dwelling units per net acre of land (du/ac), exclusive of existing or proposed streets and rights-of-way. Typical residential densities found within Orange are illustrated in Figure LU-2. Development intensity, which applies to non-residential uses, refers to the extent of development on a parcel of land or lot (that is, the total building square footage, building height, the floor-area ratio, and/or the percent of lot coverage).While intensity is often used to describe non-residential development levels, in a broader sense, intensity also can describe overall levels of mixed residential and non-residential development.Throughout this Element, floor-area ratio (FAR) and building floor area square footage are used as measures of non-residential development intensity. ORANGE GENERAL PLAN LU-10 LAND USE ter * f rl_I Ili I r2 =1 P"'1./ 12 4 rtstssor 4_ Ili4=Ir Estate and Low Medium Density Residential Medium Density Residential Low Density Residential 6-15 units/acre) 15-24 units/acre) 1-6 units/acre) Figure LU-2 Typical Residential Densities in Orange Floor-area ratio (FAR) expresses the intensity of use on a lot (see Figure LU-3). The FAR represents the ratio between the total gross floor area of all buildings on a lot and the total land area of that lot. For example, a 2o,000-square-foot building on a 40,000-square-foot lot yields an FAR of o.50.A o.5o FAR describes a single-story building that covers half of the lot,a two-story building covering approximately one-quarter of the lot, or a four-story building covering one-eighth of the lot. For purposes of illustration, the diagrams in 11U Figure LU-4 provide examples of FAR for 1 commercial retail and office sites drawn from throughout the City. The middle example illustrates buildings within two 0.25 FAR square blocks of Old Towne Orange along Glassell Street north and south of Chapman 11111 Avenue. The lot area is approximately 549,80o square feet and the gross floor j / area of the buildings is approximately 549,90o square feet (most of the buildings have two stories).As shown in the diagram, 0.5 FAR when the gross building floor area is divided by the lot area, an FAR of I approximately to results. The same process is illustrated for office propertiesII• located alongTown and CountryRoad, and industrial areas located on Glassell Street, z north of Taft Avenue. 1.0 FAR Floor Area Ratio(FAR): Gross Building Area Lot Area Figure LU-3 Floor Area Ratios Defined ORANGE GENERAL PLAN LU-11 fi ,4 LAND USE iik r s,.µ- T- Land Use Designations The Land Use Element establishes 19 land use Glassell Street Industrial Properties designations. The land use designations have been established to reflect: (i) development ; ,. II trends affecting the City's near and long-term I .1 _ J J I, futures; (2) opportunity areas associated with 0 . l major institutional uses, shopping and 1 -1 employment centers, and access to I e. transportation facilities; and (3) community T interests and desires expressed during the 1E7 -r 1 E. General Plan update process. Four designations are established for residential development that allow for a range of housing j---„i- --tir` (- i', -,-; types and densities. Three mixed-use activity FAR: 0.33 Building Floor Area: 238,000 sq.ft. center designations encourage creative mixes Parcel/Lot Area: 720,300 sq.ft. of commercial retail, office, housing, civic, and Old Towne Orange entertainment uses at key locations M,_ throughout the City. Five commercial and s j a r ,,,, i; .` office designations and two industrial j designations provide for a range of revenue- and employment-generating businesses. Five ' ,- _ 1 .,.,".. public and semi-public use categories provide t 1 locations for important public and private 1 . facilities and institutions, including parks, open I Y C space areas, resource lands, civic facilities, hospitals, and educational institutions. t:, 4.,.. r i Table LU-1 presents descriptions of each Building Floor Area: 549,900 sq.ft. General Plan land use designation and the FAR: 1 .0 Parcel/Lot Area: 549,800 sq ft. corresponding range of density or intensity of Town and Country Road Office Properties development permitted for each. The maximum allowable development on any individual parcel is governed by these measures of density or intensity, with the J s anticipated yield influenced by the physical characteristics of a parcel, by access and infrastructure issues, and by compatibility considerations. The land use designations are described here in terms of general land uses A and maximum densities or intensities i r permitted. Corresponding zoning districts specify the permitted uses for each category as well as the applicable development FAR 0.49 Building Floor Area: 449,200 sq.ft.Pp P Parcel/Lot Area:918,900 sq.ft. standards. The density or intensity maximums outlined in Table LU-1 serve as development Figure LU-4 caps. Actual development intensities are Floor Area Ratio Examples in Orange expected to be lower than the caps, based on ORANGE GENERAL PLAN LU-12 vtir Aesamptmoreyr,i LAND USE market factors and past development trends. In order to estimate future build-out of the City and resulting impacts on the circulation system, expected levels of density and intensity have also been assumed, and are shown in Table LU-i.The City anticipates most development will occur at or below these expected levels, although on any single property,development up to the cap is allowed. However, any development proposed in excess of the expected levels indicated in Table LU-i may be required to perform special studies to show the development's ability to mitigate adverse impacts on adjacent properties and the citywide circulation system. Density ranges are provided in Table LU-i for each of the residential land use designations and the Urban Mixed Use designation, whereas only maximum densities are established for the Neighborhood Mixed Use and Old Towne Mixed Use designations. Similarly, FAR ranges are provided in Table LU-i for several commercial, industrial, office, and mixed commercial/residential land uses, while others feature a maximum FAR value. In cases where a range is listed, the minimum value represents the least intense land use permitted within the area, while the maximum value represents the most intense land use permitted. For designations where only a maximum value is listed,no minimum is implied. For mixed-use designations listed in Table LU-i, both densities (du/ac) and intensities (FAR) are established.The permitted dwelling units per acre should be interpreted to be contained within the maximum FAR expressed for each category. Table LU-t Land Use Designations Land Use Density or Intensity Description Designation Range Expected Residential Designations ESTR Estate Low o-2.o du/ac 1.8 du/ac Large lot, single-family residential development in a rural or Density semi-rural setting. Private, noncommercial equestrian and Residential agricultural uses may be allowed if associated with residential uses. LDR Low Density 2.1-6.o du/ac 5.o du/ac Conventional single-family residential development Residential characterized by individual single-family homes constructed in subdivisions,or by custom units built on individual lots. LMDR Low Medium 6.1-15.o du/ac 8.o du/ac Includes small lot or zero lot line single-family subdivisions, Density duplexes and mobile home parks, as well as lower intensity Residential apartment and condominium complexes. MDR Medium 15.1-24.o du/ac 16.3 du/ac Apartment and condominium or townhouse units in areas with Density ready access to major circulation routes,business districts and Residential public open space areas.Typical developments may consist of two-or three-story buildings that house multiple dwelling units and provide some form of open space. Mixed-Use Activity Center Designations ORANGE GENERAL PLAN LU-13 LAND USE ti Table LU-1 Land Use Designations Land Use Density or Intensity Description Designation Range Expected NMIX Neighborhood Max.24.0 16.3 du/ac; Local- and neighborhood-supporting mixed-use activity Mixed-use du/ac; to FAR centers and corridors. Commercial retail is encouraged to be to-1.5 FAR the primary use on the ground floor. Professional office and housing uses are also encouraged, either integrated with a commercial use,or as separate,free-standing uses.Walkability and pedestrian access are key considerations. The lower end of the FAR range supports retail development, while the higher end supports a combination of uses including both commercial and office. OTMIX Old Towne Mixed-use Local- and neighborhood-supporting mixed-use activity centers designed to be contextually appropriate within a Old Towne Mixed Use Max.15.o du/ac; 8.o du/ac; historic area. Commercial retail is encouraged to be the 15 0.5 to FAR to FAR primary use on the ground floor. Professional office and Old Towne Mixed Use Max.24.0 16.3 du/ac; housing uses are also encouraged, particularly as adaptive 24 du/ac; 1.5 FAR reuse opportunities within existing structures. Transit- to-1.5 FAR orientation, walkability, and pedestrian access are key considerations.The lower end of the FAR range supports retail development, while the higher end of the range supports a combination of uses including commercial and office. Old Towne Mixed Use 6.0-15.0 du/ac; io.o du/ac; Local- and neighborhood-supporting mixed-use activity Spoke Max.0.6 FAR o.6 FAR centers designed to be contextually appropriate within a historic area. Commercial retail is encouraged to be the primary use on the ground floor. Professional office and housing uses are also encouraged, particularly as adaptive reuse opportunities within existing structures. Transit- orientation, walkability, and pedestrian access are key considerations, as well as protection of the existing historic, residential-scale, and building character of the spoke streets outside of the downtown core. The lower end of the FAR range supports retail development,while the higher end of the range supports a combination of uses including commercial and office. UM IX Urban Mixed- 30.0-60.0 48.o du/ac; Urban, high-intensity, regionally-oriented activity centers that use du/ac; 1.7 FAR define the character of surrounding areas and serve as 1.5-3.o FAR gateways to the City.This designation provides for integrated commercial retail, high-rise office, housing, and civic uses. Commercial retail is intended to be the primary use on the ground floor. Convenient, high-frequency transit access, innovative housing options, and pedestrian-oriented design are key considerations. Commercial and Office Designations GC General Max.to FAR o.35 FAR A wide range of retail and service commercial uses and Commercial professional offices.Regional shopping centers,mid-rise office projects,corridor shopping districts,and neighborhood corner stores are permitted uses. RC Recreation Max.0.35 FAR o.18 FAR Outdoor commercial recreational uses which include, but not Commercial limited to:golf courses,marinas,boat rental buildings,staging areas,fishing facilities,and other commercial sports facilities. ORANGE GENERAL PLAN LU-14 LAND USE Table LU-t Land Use Designations Land Use Density or Intensity Description Designation Range Expected NOP Neighborhood Max.0.5 FAR o.36 FAR Low-rise office and professional office park development. Office Professional office is intended as the primary use. However, Professional support retail and service commercial uses are also permitted as necessary to serve adjacent professional offices. UOP Urban Office 1.5-3.0 FAR 1.5 FAR Urban, high-intensity, mid- and high-rise office centers. Professional Professional office is intended as the primary use. However, support retail and service commercial uses are also permitted as necessary to serve adjacent professional offices. Hospitals and supporting uses are also permitted. YNCO Yorba North Max.to FAR o.35 FAR Allows for mixed uses compatible with a public facility or Commercial institutional use, such as a civic, college, or health care Overlay campus, including integrated retail, housing, office, and civic uses where a specific plan is approved for a public facility or institutional activity center. Innovative housing and pedestrian-oriented deign are key considerations. YSCO Yorba South Max.to FAR 0.35 FAR A wide range of potential retail and service commercial uses,in Commercial conjunction with on-site parkland improvements, off-site Overlay parkland, and/or park improvements. Commercial use may only be activated through a Development Agreement with the City that identifies specific parkland obligations. Industrial Designations LI Light Industrial Max.to FAR o.5o FAR Allows for manufacturing, processing, and distribution of 3-story height goods. Wholesale activities associated with industrial limit operations, as well as small-scale, support retail, service commercial and office uses may also be established in areasIndustrialMax.0.75 FAR o.65 FAR with ready access to major circulation routes. A 3-story building height limit applies within Light Industrial designated areas. Public Facilities and Open Space Designations PFI Public Facilities and Institutions Provides for several types of public, quasi-public and institutional land uses, including schools, colleges and Civic uses/Schools Max.0.5o FAR universities, City and County facilities, hospitals, and major Cemeteries, Corporate yard, Water .05 FAR utility easements and properties. Includes service towers, Southern California Electric organizations and housing related to an institutional use,such facilities as dormitories, employee housing, assisted living, convalescent homes,and skilled nursing facilities. Schools,Water Department facilities 15 FAR Civic Center, Libraries, Police and Fire .25 FAR Department facilities Institutions Max.2.0 FAR Colleges and Universities 35 FAR Hospitals to FAR OS Open Space NA NA Steep hillsides,creeks,or environmentally sensitive areas that should not be developed.Although designated as permanent open space,most areas will not be developed as public parks ORANGE GENERAL PLAN LU-15 o LAND USE Table LU-t Land Use Designations Land Use Density or Intensity Description Designation Range Expected with the exception of river and creekside areas that promote connectivity of the City's trails system.Lands in this category include both privately held open spaces and public lands. OS-P Open Space- NA NA Public lands used for passive and active recreation.Includes all Park parklands owned and maintained by the City of Orange,as well as parks operated by the County. OS-R Open Space- NA NA Areas designated open space to preserve visually significant Ridgeline ridgelines identified on the Land Use Policy Map.No development or grading is permitted. RA Resource Area NA NA Allows for agricultural uses and continued use of stream and river channels for aggregate mining.Passive and active recreational uses are also permitted.May serve as a holding zone for future uses compatible with established and planned land uses in surrounding areas. Residential Uses Four residential categories allow for a variety of housing types representing the diverse residential character of Orange. The City will continue to preserve and enhance existing single-family residential neighborhoods. Older neighborhoods, characterized by higher densities, are located throughout the western part of the City. Lower density housing,typical of newer residential development, is located principally on the City's eastern side. Estate Low Density Residential Density Range: 0-2.0 du/ac The Estate Low Density Residential designation provides for single-family detached, estate-style '<.' homes on large lots, featuring a custom character .' of development. Estate Low Density Residential development is primarily found in Orange Park Acres and other similar parts of east Orange. IJ Private, noncommercial equestrian and agricultural 1,6, uses may be allowed if they are associated with the residential uses. ORANGE GENERAL PLAN LU-16 III" rrr z r..., , LAND USE Low Density Residential Density Range:2.1-6.0 du/ac The Low Density Residential designation provides ;,_.+ Wlsk 1,--x for typical single-family residential neighborhoods. A Low Density Residential uses make up the majority of land uses in Orange, and are found throughout i the City in both older, established areas, such as F:At f Old Towne, and newer development areas, i including east Orange. Ij. III II I II `!i I I i ` 'tf it Low Medium Density Residential Density Range:6.1-15.o du/ac The Low Medium Density Residential designation provides for both detached and attached single-family homes on smaller lots, as well as duplexes and some mobile homes, multi-family l' , , .,. townhouses, condominiums, and apartments. Low Medium Density residential uses are typically found adjacent to commercial or mixed-use activity centers, such as near South Main Street, Tustin Avenue, or El Modena. Low Medium Density I I ' 1 residential uses are also found within newer development areas, isuchasSerranoHeights. uom Medium Density Residential Density Range: 15.1-24.o du/ac The Medium Density Residential designation provides for multi-family townhouses, condominiums, and apartments featuring some form of iv- internalinternal open space in areas with good access to major circulation routes, business . N` i di . districts, and public open space areas. Medium Density residential uses are li 0 1111 typically found adjacent to commercial districts, such as near Lincoln Avenue, Katella Avenue, or La Veta Avenue. Medium Density residential uses are also lifoundnearmajortransportationcorridors, ORANGE GENERAL PLAN LU-17 LAND USE such as the Santa Fe Depot or freeway interchanges along Chapman Avenue, Tustin Street, or Glassell Street. Mixed—Use Activity Centers In response to the Vision and recent development trends, the General Plan provides three designations for mixed-use activity centers.All of these designations promote creative mixes of commercial retail, office, housing, civic, and entertainment uses that vary in composition and intensity based upon location, accessibility, and the surrounding development context. Old Towne Mixed-use Maximum Density:Old Towne Mixed Use Spoke:15.o du/ac Old Towne Mixed Use 15: 15.o du/ac Old Towne Mixed Use 24:24.o du/ac Intensity Range: Old Towne Mixed Use Spoke: 0.6 FAR Old Towne Mixed Use 15: 0.5-1.o FAR Old Towne Mixed Use 24:to-1.5 FAR The Old Towne mixed-use designations 47- • provide for integrated commercial retail, professional office, housing, and civic uses designed to be contextually appropriate iU 1 within a historic area. These areas are j intended to be local- and neighborhood- supporting activity centers and corridors. Commercial retail is encouraged to be the _ primary use on the ground floor. Professional office and housing uses are i also encouraged, particularly as adaptive I reuse opportunities within historic ,.... structures. Transit-orientation, walkability, and pedestrian access are key considerations, as well as protection of the existing historic, residential-scale, and building character of the Spoke Streets outside of the downtown core. The lower end of the FAR range supports retail development, while the higher end of the range supports a combination of uses including commercial and office. Uses within this area are additionally subject to provisions of the Historic Preservation Design Standards for Old Towne and Santa Fe Depot Specific Plan, as applicable. amarmpoffwearairego ORANGE GENERAL PLAN LU-18 LAND USEr1nasrr Neighborhood Mixed-use Maximum Density:South Main Street:24.0 du/ac Intensity Range: to-1.5 FAR This land use designation provides for integrated commercial retail, professional office, housing, and civic uses along the South Main Street corridor. This area is intended to be a local-and neighborhood-supporting activity yAcenterandcorridor. Commercial retail is encouraged to be the primary use on the ground floor. Professional office and 7 housing uses are also encouraged, either .. integrated with a commercial use, or as separate, free-standing uses. Walkability and pedestrian access are key n considerations. The lower end of the FAR r i 2 4; range supports retail development, while the higher end of the range supports a combination of commercial and office uses. Urban Mixed-use Density Range:30.0-60.o du/ac Intensity Range:1.5-3.o FAR This designation provides for integrated commercial - retail, professional office, housing, and civic uses along West Katella Avenue, Town and Country Road,y and within Uptown Orange. These areas are intended to provide for urban, high-intensity, regionally- j c-- is oriented activity centers that define the character of surrounding areas.Commercial retail is intended to be d• I '_'.1.® the primary use on the ground floor. Convenient 11 ' ' transit access, innovative housing options, and c pedestrian-oriented design are key considerations. Commercial and Office Designations The commercial and office categories consist of four designations that provide for a range of revenue-and employment-generating businesses. General Commercial Maximum Intensity: to FAR The General Commercial designation provides for a wide range of retail and service commercial uses and professional offices. This designation is found along many of the City's most highly- traveled roadway corridors, including Katella Avenue, Chapman ORANGE GENERAL PLAN u LU-19 1111111 LAND USE a= Avenue, and Tustin Street. Regional shopping centers, mid- and high-rise office projects, corridor shopping districts, and neighborhood corner stores are all permitted uses. Recreation Commercial Maximum Intensity: 0.35 FAR Recreation commercial uses provide for the operation and development of resort or amusement oriented . s commercial and recreational uses. The designation refers a . to recreational uses of regional interest that will draw visitors from throughout the City, Orange County, and L` --: g g Southern California. The areas adjacent to the east and r south sides of Irvine Lake in east Orange are proposed for this land use. Permitted uses include, but are not limited to, marinas, boat rental buildings, staging areas, conference centers, golf courses, clubhouses, hotels, resorts,restaurants, and other commercial sports facilities. Neighborhood Office Professional Maximum Intensity: 0.5 FAR This land use designation provides for low-rise office and professional office park development in s' NN, - appropriate areas throughout the City, including a portions of Chapman Avenue east of Old Towne and :°K r Mint portions of the La Veta Avenue corridor. The principal use in this designation is intended to be professional It ' A offices; however, support retail and service commercial uses are permitted as necessary to serve 1 adjacent professional office needs. t Urban Office Professional Intensity Range: 1.5 -3.o FAR ORANGE GENERAL PLAN LU-20 4. z. LAND USE The Urban Office Professional designation encourages urban, high-intensity, mid- and high-rise office centers located at the City's edges, away from established single-family residential areas. f 4. Urban Office Professional uses are located primarily north of then SR-22 Freeway and south of La Veta Avenue, concentrated around r f , the hospital node at the southern end of Main Street. Professional office is intended as the primary use. However, support retail and service commercial uses are also permitted as necessary to serve adjacent professional offices. Hospitals and supporting uses are 4 also permitted. 1 Yorba North Commercial Overlay Maximum Intensity:to FAR The Yorba North Commercial Overlay designation applies to the Chapman Global Medical Center (previously Chapman Hospital) site. This designation allows for mixed uses compatible with a public facility or institutional use, such as a civic, college, or health care campus, including integrated retail, housing, office, and civic uses where a specific plan is approved for a public facility or institutional activity center. Innovative housing and pedestrian-oriented design are key considerations. Yorba South Commercial Overlay Maximum Intensity: 1.o FAR The Yorba South Commercial Overlay designation applies to the current Yorba Park site near Chapman Global Medical Center, SR-55, and Chapman Avenue. This designation provides for a wide range of potential retail and service commercial uses, in conjunction with on-site parkland improvements, off-site parkland, and/or park improvements. Commercial use may only be activated through a Development Agreement with the City that identifies specific parkland obligations. Industrial Designations Two industrial land use designations provide locations for offices, manufacturing, warehousing, and distribution uses within the City. The principal difference between the designations is the permitted maximum intensity of development allowed within each area. Permitted uses within industrial areas will continue to be primarily determined using the City's Zoning Ordinance. Light Industrial Maximum Intensity:1.o FAR Height Limit:3 stories The Light Industrial designation is intended for uses that are compatible with nearby commercial and residential districts and that do not produce substantial environmental ORANGE GENERAL PLAN LU-21 LAND USE a.. 13 nuisances (noise, odor, dust, smoke, glare, etc.). This designation allows for manufacturing, processing, and distribution of goods. Light industrial uses are located primarily within areas west of Glassell Street and north of Walnut Avenue. Wholesale activities associated with industrial operations, as well as small-scale support retail, service commercial, and office uses may also be established in areas with ready access to major circulation routes. The maximum intensity permitted within the Light Industrial designation is 1.o FAR, which is higher than that permitted 11 Will within the Industrial designation. This distinction recognizes s that ancillary office uses will be more prevalent in Light a Industrial areas than within Industrial areas. A three-story height limit applies within the Light Industrial designation to maintain compatibility of scale with nearby commercial and residential districts. Industrial Maximum Intensity:0.75 FAR Industrial uses include manufacturing and industrial activities that may lead to some environmental nuisances that would be incompatible with residential or commercial j uses. Industrial uses are located primarily in h. Walnut Avenue. This designation allows for manufacturing, processing, and distribution of goods. Wholesale activities associated with industrial operations, as well as small-scale support retail, service commercial, and office uses may also be established in areas with ready access to major circulation routes. The maximum intensity permitted within the Industrial designation is o.75 FAR. Public Facilities and Open Space Five designations for public facilities and open space areas allow for important public and private facilities and institutions, including parks, open space areas, resource lands, civic facilities,hospitals, and educational institutions. Public Facilities and Institutions Maximum Intensity: Civic uses, schools,and public facilities: 0.5 FAR Institutions:2.o FAR The Public Facilities and Institutions designation provides for several types of public, quasi-public, and institutional land uses, including schools, colleges and universities, City t and County government facilities, hospitals, and major ---"^- - ilid i utility easements and properties. This designation also 1 includes service organizations and housing related to an vI ) 1,. 1. 1..„._. i `i institutional use, such as dormitories, employee housing, ii 1 iii. . _ir i ORANGE GENERAL PLAN LU-22 II a ersisesofti LAND USE assisted living, convalescent homes, and skilled nursing facilities. The maximum permitted intensity for civic uses, schools, and public facilities is o.5 FAR, whereas the maximum for institutions,such as universities and hospitals, is 2.0 FAR. Open Space The Open Space designation includes a substantial part of ,, the eastern portion of Orange's planning area. Much of . this area includes steep hillsides or environmentally sensitive areas that should be preserved. Although these , areas may be designated as permanent open space, it is not intended that they be developed as public parks. ;. Lands within this designation include both privately held open space lands and public lands. 5(4 Open Space Park The Open Space Park designation refers to public lands - used for passive and active recreation. This includes all parklands owned and maintained by the City of Orange, R. as well as parks operated by the County. r a;; Open Space Ridgeline The Open Space Ridgeline designation is designed to preserve visually significant ridgelines and steep hillsides. The City has adopted a hillside grading policy that prohibits development or grading on ridgelines with this designated land use. Resource Area The Resource Area designation provides for the continued use of areas for mining and agriculture. Passive and active recreational uses are also permitted in areas with this designation. Resource Areas also serve as a holding zone for areas that are currently used for mining and agriculture, but may not have these uses in the future. ORANGE GENERAL PLAN LU-2 3 LAND USEIplit-raiiinaigaimir- Land Use Policy Map The Land Use Policy Map (Figure LU-5) graphically represents the planned distribution and intensity of land use citywide. The colors shown on the map correspond to the land use designations described above. General Plan Development Capacity Table LU-2 identifies the development capacity associated with the planned distribution of land uses. Over time, as properties transition from one use to another or property owners rebuild, land uses and intensities will gradually shift to align with the intent of this Land Use Element. Table LU-2 summarizes the land use distribution, and the resultant residential and nonresidential levels of development that can be expected from full implementation of land use policies established by this General Plan. Given the largely built-out character of Orange and the good condition of most buildings, significant redevelopment activities may not occur over the life of this General Plan. However, within focus areas described in this Element, future land use changes are anticipated. General Plan and Zoning Consistency The Land Use Element is primarily implemented by the City's Zoning Code, which specifies districts and performance standards for various types of land uses described in the General Plan. Table LU-3 indicates the corresponding zone district that applies to each General Plan land use designation.The zone districts specify the permitted uses for each category as well as applicable development standards. Zone districts specified in Table LU-3 for Mixed-use General Plan designations are new districts, and will be developed as part of the Zoning Code update implementing the General Plan. Specific Plans and Neighborhood Plans in Orange A specific plan is a detailed plan for the development of a particular area. Specific plans are intended to provide finite specification of the types of uses to be permitted, development standards (setbacks, heights, landscape, architecture, etc.), and circulation and infrastructure improvements that are only broadly defined by the General Plan. Specific plans are often used to ensure that multiple property owners and developers adhere to a single common development plan. Specific plans are also used as a means of achieving superior design by providing flexibility in development standards beyond those contained in the Zoning Ordinance. The City has used Specific Plans and Neighborhood Plans as tools to achieve the coordinated development of individual parcels. Specific Plans and Neighborhood Plans currently in effect include: Archstone Gateway Chapman University East Orange Plan(1975) Immanuel Lutheran Church Orange Park Acres Aimmulemaramardlso ORANGE GENERAL PLAN LU-24 i t I-NF- _---. is1.ho. ' 4. 1,. i iiJ'! as tis tt i ,,,, 1....,4,.,, t it I i . v_ 1;,' I City of j t i1 sl CDE i /Rwx i- t Anaheim t q e...:, q i I 'ram l i0c.t:.. 1.,./.........„. s 3 City Of rs. ' 11116 ,,twe.,,.. ill r .: r._. Vila Park t lehiVireatiiiiii-i,..-„ , r., . . i ki . 5., . greduistilisist vr-:_,, _lifti 4:NarbraWZIM:.1 ' ill Alli 2 tk.S ...-..7-.:_" . _ . ,,P01° 41, \ lima. - a n ..,, miorfirii„,,mmt.r..._,_ s 1/4 ...r.i._ k1,0iii./../,?--.... 1171W' IMES 07I- 11 _111M11 City of r 1SantaAna at c Zr i i P. 1 k. r LEGEND Land Use Designations M¢ Old Tov ne Mixed Uce Sbolte Rc Recreational Commercial Marc.0.35 FAt;,gr Resotrce Area `l Planning Area ESTR Estate Law Density Residential 0-2 DUrAC Max.1 Dl1tACo Idx.0.fiat jqp Pr onal nne.5 FAR Ea Open SpaceE_ Sphered Influence -1/ Other Open Space 8 Low Densty(1 acre) MOS Ma.15 C MAC 0.5- 00FAR 4QP:_ Urban Office Professional 1.5-3.0 FAR Open Space ParkCityBoundaryLOSSLowDensityResidertial2-6 DU/ACiiiiq4 DBU/ ed LI 2SurroundingCitiestMORLowMedumResidential6-15 DU/AC afYO°" MexT2rDU AC 1.0-1e..5 FAR General Corrrnerdal Max.1.0 FAR OS-R Ridggelneace lighways to Me doihupm Densty Residential 15-24 DUTAC yip Yorba South Commercial Overlay tl 3?;t tr l Mm>(.1.0 FAR I-I-I- Raitoads Mai 24W/AC 1 01.5 FAR ynco Yuba North Commercial Overlay 0 Industrial Max.U0.75 FAR 7.5 H w r—a r-1,1.es pI Mac c 1 MI urban Mked Use 30-60 DU/AC e" InustrtutFdndMax. .36.iRFAR and r LU-25 Figure LU-5 Land Use Policy Map LAND USE This Page Intentionally Left Blank) ORANGE GENERAL PLAN LU-26 gz. A. E. f 7 Q. § 2 % 3. 2 2 % 7 \ } Q. i 3 ; 5 | { 3 7 - 3 _ J ri k l : - V. t , { « ; 7 & 0 & ; m ; ® ! « a 17 f » rj 2 t ; , , , I - , N ! 2 m / i a. S. oq+ f , , 2 i 5 g ! « ii a g. I I , I , , , I , , I , I , , { 5 a a k Cl19 it i I I I I I I I 2 , _ V 2. } j I I I I I I f ® } } \ g. 1.. st - _ o ( I , a. 11 , C.J. I lilt ] a lb I i ) 0. \ $ 2 § § ! f « ! , , , , / ƒ Y. I , , , I I , k ) % , 4. } ; ° a s 0 1 ' ; a 0 This Page Intentionally Left Blank) ORANGE GENERAL PLAN LU-28 iIF ML c. w. ...".... ..:.....-..' r"-.r-»;.. x..e._sx w.z rnrri¢r-rx. z.:.a..-w •: c, LAND USE Table LU-3 Land Use j Zoning Consistency Zoning n .P r. ao ¢ re to ac w a ,o ao m ¢ = a a 0 . c^j v ' g , f Z E Q 2 F, a I?, a W LL Q uw cu E o 0 0 Residential Designations Estate Low Density Residential Low-Density Residential Low-Medium Density Residential Medium Density Residential Mixed Use Activity Center Designations Old Towne Mixed Use Spoke Old Towne Mixed Use 14 Old Towne Mixed Use 24 Neighborhood Mixed Use Urban Mixed Use I Commercial Designations General Commercial Recreation Commercial Neighborhood Office Professional Urban Office Professional Industrial Designations Light Industrial Industrial Public Facilities and Open Space Designations Public Facilities and Institutions Open Space Open Space-Park Open Space-Ridgeline Resource Area Overlay Districts Yorba North Commercial** Yorba South Commercial*** The C3 and CR zones were previously associated with the 1989 General Plan's Commercial Recreation land use designation.The portion of the Clty with this land use designation has been re-designated Urban Mixed-use.This table will be updated upon adoption of future Zone Changes that address these designations. Overlay applies only to area generally north of Chapman Avenue,east and west of Yorba Street,south of Santiago Creek,and abutting the rear property line of parcels fronting wheeler Street. Overlay applies only to area south of Chapman Avenue,west of Yorba Street,north of Palmyra Avenue,and east of Santiago Creek. ORANGE GENERAL PLAN LU-29 LAND USE 9AN7sM.•3MAN' This Page Intentionally Left Blank) mans ORANGE GENERAL PLAN LO-30 lclh,k. a P\ i r.d---, r1t 1• `' 1.. Anaheim t v. v` N t. sp 4/ HS. 3, r ". i > /% e/y/ , Vi la Park i I. i l6% I i 1 .. I Yfi - Y . t i ( y/ ii• riwee ,„. m. , . i , 241! 4. .J; ... - 1 . k-----.4....-._ 74) .i dr , 3 j/%j: i 'ji-: s' S1 1. /v .`•7./'w"'} 1 1 1\r 1 IQ jc it P/%%' I. 22 • r•1 Ell i % y/I ' \ ° I I ,_r_ I J. .. ' ] I _ f I/ ...; ;\\ I S ` v- J1 1-r •i II.jai a,City of J! I v J k.1.....:....... . 1 SaaAna !— rt_t i t #" 1 49 t 24 i , LEGEND N.t I.C__! Planning Area Focus Areas L__I Sphere of Influence M] Chapman Avenue/Tustin Street j s-% Old Towne and Santa Fe Depot f City Boundary r o i Katdla Avenue Coridor 0% Industrial Areas i cTya v' Surrounding Cities Highways a% South Main Street Corridor i Lemon Street Corridor i/ 4-s-r- Railroads West Chapman Avenue/Uptown Orangei P^ra Pt nB Eckho(I Street/Orangewood Avenue 0 025 02 on t LU-31 Figure LU-6 Land Use Focus Areas LAND USElet'lffsft..r...& a411. -a This Page Intentionally Left Blank) ORANGE GENERAL PLAN LO-32 Anntimairsm. LAND USE Pinnacle at Uptown Orange St.John's Lutheran Church Santa Fe Depot Serrano Heights Upper Peters Canyon Santiago Hills II Orange Olive Each of these plans and any future specific plans adopted by the City must be consistent with the policies expressed in this Element. The City will continue to utilize specific plans to achieve development objectives consistent with the General Plan. Land Use Focus Areas Figure LU-6 identifies the following eight land use focus areas, which represent locations in the City where future land use change may occur. i) Chapman Avenue/Tustin Street 2) Katella Avenue Corridor 3) South Main Street Corridor 4) West Chapman Avenue/Uptown Orange 5) Old Towne and Santa Fe Depot 6) Industrial Areas 7) Lemon Street Corridor 8) Eckhoff Street/Orangewood Avenue Within portions of the City that do not lie within one of the identified focus areas, no significant land use changes are anticipated. For properties within the focus areas where uses established prior to adoption of this General Plan become non-conforming, the City recognizes these pre-existing conditions as legal. It is the City's desire to allow these uses and the facilities in which they are located to continue until a change to the property is initiated by the property owner. Each focus area has unique future development objectives, responding to priorities established in the Vision and input from the community. Providing additional community open space and facilitating use of transit and other alternative transportation modes are encouraged as a component of future development within many focus areas. Others focus areas maintain and enhance job growth, economic development, and affordable housing options within the City. For each area, the sections that follow provide a brief discussion of the recent planning context, a summary of each area's market potential,and a description of the land use plan and future development objectives. Chapman Avenue/Tustin Street This focus area consists of residential, commercial, institutional, open space, and park uses surrounding the intersection of Chapman Avenue and Tustin Street. The focus area includes Chapman Global Medical Center (previously Chapman Hospital), Yorba Park, and Santiago Creek. SR-S5 passes through this focus area in a north-south direction,with an interchange at Chapman Avenue. Key considerations within this area include the continued viability of ORANGE GENERAL PLAN LU-33 i LAND USE 4 commercial and institutional uses at the intersection of Chapman Avenue and Tustin Street, potential for more productive use of properties on both sides of Tustin Avenue from Chapman Avenue to La Veta Avenue, maintaining public access to Santiago Creek throughout the focus area, and the future use of the Yorba Park site east of the SR-55. Although the Open Space-Park designation has not been changed on the Yorba Park site,the Yorba South Commercial Overlay has been applied to the park and the adjacent Orange Unified School District(OUSD) Education Center.The Yorba South Commercial Overlay designation provides for the future potential of the Yorba Park site to be used for commercial purposes that take advantage of its proximity to the SR-55 interchange.Any future commercial use of the Yorba Park site would require the City and potential developer to identify commensurate parkland and/or facilities per the terms of a Development Agreement. This area is well-served by the SR-55 freeway, but is not a regional destination. Market studies completed for the General Plan update have concluded that this area is likely to develop as an office and professional service center.The Chapman Global Medical Center site includes continued hospital and medical office use. This focus area can allow for ongoing revitalization and/or intensification of existing commercial uses. The Yorba North Commercial Overlay has been applied to the Chapman Global Medical Center site. This Overlay designation provides for mixed uses compatible with a public facility or institutional use subject to approval of a specific plan. The integration of housing, small-scale commercial uses and pedestrian-orientated features in this area desirable given its relationship to existing neighborhood-serving commercial uses, the Santiago Creek Trail corridor, and Grijalva Park. The land use plan for this focus area is based upon the following future development objectives,which are consistent with citywide Land Use Element policies and the Vision: Emphasize continued commercial and r• multiple-family residential designations west of S R-55. r • Promote viable open space recreation uses of Grijalva Park, and Santiago Creek. Allow potential future commercial uses on the Yorba Park and OUSD Education Center R ¢;,i?t. sites in conjunction with on-or off-site parkland improvements. Maintain hospital and medical office uses near Chapman Global Medical Center. The plan maintains the Public Facilities and Institutions designation on the Chapman Global Medical Center site east of SR-55, allowing continued hospital and medical office uses. Most commercial areas along Tustin Street are designated General Commercial to provide for retail and service uses that support surrounding residential areas. Areas along Tustin Street approaching Santiago Creek are designated Low Medium and Medium Density Residential, allowing a combination of duplexes, mobile home parks, and apartments and condominiums. East of SR-55, an Open Space-Park designation is applied to Yorba Park and to Grijalva Park, AMMEMMar ORANGE GENERAL PLAN LU-34 LAND USE located northeast of the Chapman Global Medical Center site. An Open Space designation surrounds much of Santiago Creek throughout the focus area.An additional Open Space area is located between Grijalva Community Park and Chapman Global Medical Center. CHAPMAN AVENUE/ TUSTIN STREET i,' ',,, FOCUS AREA li Pi I ' -ate tI .1!I'' y T iii ii ii ^ ilia.:-AN.,`'N '» fit Jftrbj orthl ;f# i•Op- tl11I. .a ' F :,,, i Commercial j i t A" a • ,p i tizri 3 Overlay j ' • . 1 I. — —CHAPMAN AVE. DEVELOPMENT T - - .3,"'• -.iOPPORTUNITY i'' :, kn#tr- i4QtkL Aiti Yorba South1AR.A Land Use Designations ommercial 6. j t ck1-411"Alkir 1 Overlay Low Medium Residential j Medium Density Residential im--___; " a11 Yorba North Commercial Overlay R Yorba South Commercial Overlay 1iGeneralCommercial e _ 1 ti 1 4 j Public Facilities and Institutions sh j 7 rtxri. 1 G '' Open Space ja j a Open Space Park I.-.-.. LA VETA AVE.k1flfflirct Katella Avenue Corridor The Katella Avenue Corridor consists of properties located north and south of Katella Avenue between the Santa Ana River on the west and California Street on the east. The r focus area also includes portions of Main Street between the Collins Channel and Katella Avenue, and portions of Struck Avenue between Katella Avenue and the Collins 1. Channel.West Katella serves as a gateway into the City from Anaheim and interfaces with the highly active area surrounding The Honda Center and Angel Stadium, the Ptt.4 Santa Ana River, and the Platinum Triangle. While the West Katella corridor functions as a solid commercial district for r l I rm., i f ' 4 the City, the westernmost portion of Katella Avenue has L j_ untapped potential due to its strategic location and under- L'411 -=.y< I till • i utilized properties. ORANGE GENERAL PLAN LU-35 LAND USE The Katella Avenue Corridor includes a good variety of both retail and small office uses. Its location at the midpoint of the City's industrial area provides service and support functions for these uses. The current Stadium Promenade site could maximize development potential to include mixed housing and retail uses that complement the current uses on the site. Market studies completed for the General Plan update concluded that the western-most portion of this focus area could support mixed-use development, including housing at high densities. By employing this land use strategy,the City could encourage design of a signature development project on West Katella Avenue, serving as a gateway from the Platinum Triangle in Anaheim into the City of Orange. 57 Y1 ii ' KATELLA AVENUE COR 1DOR, I. ' ii/ FOCUS AREA tirLs 1I 1 t++ t + t t + + t + t+ f + f 4 1+ f—+-} f-- ++—f-i+4++ 0`.• No I EL mmlymtemil i 1S Expanded R ail 1 III 1 Sales Base I11 KAEEELA AVE. i I ),, in,-,,,i, linuma Ur an Mix/d-Use. ,.,•_•4'•_._._._ .._._.f a f. activity Center• STRUCK AVE. j 1 Ei WI TINS AVE. mm i Land Use Designations y Low Medium Residential i _., l'y_ ' tir Medium Density Residential 1, ' ate - Urban Mixed Use i. 1II r v General Commercial The land use plan for this focus area is based upon the following future development objectives, which are consistent with citywide Land Use Element policies and the Vision statement: Establish an active, vibrant urban mixed-use residential gateway to the City featuring high-density residential uses. Capitalize on development of expanded entertainment uses and housing across the Santa Ana River in Anaheim. Enhance retail options and convenience throughout west Orange. ORANGE GENERAL PLAN LU-36 y« LAND USE The land use plan features an Urban Mixed-use designation within the portion of the area between the Santa Ana River , ,,. and Batavia Street, General Commercial and Industrial - between Batavia Street and Glassell Street, and General BIpo Commercial and Medium Density Residential uses between n'a, • Glassell Street and California Street. The Urban Mixed-use 1 - ' area is intended to be a regionally-oriented activity center,T g N.i'1 characterized by mid- to high-rise structures with uses that MI -...„ --- y could include housing (30.o to 60.o du/ac), commercial retail uses, restaurants, offices, and civic uses. The General Commercial designation recognizes the contributions of the Katella Avenue corridor to the City's overall retail sales base, and encourages some expansion and intensification of these uses, up to a maximum FAR of 1.o. Additionally, public input II regarding this area emphasizes the need to incorporate youth and teen activities within the uses; to improve the or C:::=- -,y `== appearance of Katella Avenue in the context of new development, conveying the identity of a grand boulevard; and to gradually phase out strip commercial uses along certain segments of the corridor.The Neighborhood Mixed-use designation allows local-and neighborhood-supporting mixed-use activity centers and corridors, which could include housing (at up to 15.o du/ac). This designation maintains the commercial nature of the corridor with housing uses that help to transition into adjacent Low Density Residential designations. South Main Street Corridor The South Main Street Corridor includes the Children's Hospital of Orange County 4,, CHOC) and St. Joseph Hospital medical centers on La Veta Avenue, as well as various commercial and office uses on Main Street between La Veta Avenue andrpm Chapman Avenue.Multiple-family residential apartments located west of Main fir"'1"• s..kSAC Street and south of Chapman Avenue form a buffer between the Main Street corridor and single-family neighborhoods to the west. The South Main Street corridor also includes areas south of SR-22 along Town and Country Road, characterized by mid-rise office,senior housing, and commercial retail uses. South Main Street serves as a key approach to the major medical hub created by CHOC and St. Joseph Hospital medical centers. These medical facilities have generated a spin-off demand for medical office space and other complementary uses that existing land use policies and parcel sizes do not easily accommodate. In recent years, new medical office buildings have been constructed on redeveloped sites, but many commercial properties remain that are incompatible with desired medical uses. The corridor also abuts established single- and multi- family neighborhoods, making expansion and intensification a ORANGE GENERAL PLAN LU-37 LAND USE 7,0-, ..-E a t,. - challenge. Market studies completed for the General Plan update concluded that this area has good potential to provide for relatively high density housing and mixed-use development that supports current and future medical facilities in the area, while the Town and Country shopping center and Main Place regional mall in Santa Ana continue to provide nearby retail amenities. The land use plan for this focus area is based upon the following future development objective, which is consistent with citywide Land Use Element policies and the Community Vision: Encourage compatible and integrated residential,commercial, and office uses. Promote development of a medical corridor that capitalizes on existing hospital and medical uses. joi 3P1'' i"---- - 44 }44i . Y ExpandedRta'! I. Sale Base _ m M E"3 i QIAPMANAVE. _ .i I. j 'te'4 4' =; e' ' '' Neighko...rhood-Compatible P 1 Mixed-Use„ t I . s Land Use Designations 1, , t , r I Y ` Neighborhood Mixed Use 24 I`: 1 Urban Mixed Use II Sr j Urban Office Professional A 3^:,, sx 1 < General Commercial r.r• t LA VETA AVE. ri i._ iProfessionalOffice Development 1 W Iw Y t Z 1OW'N AND COUNTRY D,f'1 s f I High-Intensity Retail,Office, and • SOUTH MAIN STR T — ' int. I Housing Development CORRIDOR 2...• ORANGE GENERAL PLAN LU-38 x LAND USE A The plan encourages mid- to high-rise office, medical, housing, and retail uses south of La I -.-IO ' ` Veta Avenue. It applies the Urban Mixed-use and Urban Office Professional designations to i . y is.- 211 properties along La Veta Avenue, Town and r ye, w ;;;;; Lit. i _ Country Road, and Parker Street. Urban y Mixed-use areas south of SR-22 are intended Ii.-, ti ;14 to provide for integrated commercial retail, professional office, housing, and civic uses. Commercial retail uses are intended to be the primary use on the ground floor within these areas. Urban Office Professional areas north of SR-22 are intended to provide for urban, high-intensity, mid- and high-rise office centers. Professional office is intended as the primary use. Both designations allow for a maximum allowable intensity of 3.o FAR within this area. A limited number of high-rise office and residential projects may also be permitted within this focus area through the use of transferable development rights. The plan also features Neighborhood Mixed-use designations for portions of Main Street south of Almond Avenue.This designation encourages compatible and integrated residential, commercial, office, and medical uses, either as multiple-story projects with ground-floor retail, or as stand-alone projects with pedestrian connections to the arterial corridors. Neighborhood-scale mixed-use at this location is intended to support the ongoing transformation of south Main Street into a medical corridor in a manner sensitive to surrounding single-family residential areas. On south Main Street, Neighborhood Mixed-use areas are permitted at a maximum density of 24.o du/ac, and a maximum FAR of 1.5. In the Town and Country Road area south of SR-22, high intensity retail, office and housing development is encouraged within the Urban Mixed-use designation, which allows a maximum density of 60.o du/ac, and a maximum FAR of 3.o. The General Commercial designation present at the intersection of Main Street and Chapman Avenue allows for a maximum development intensity of i.o FAR, to enable more productive use of retail properties near the intersection. West Chapman Avenue/Uptown Orange OEM, The West Chapman/Uptown Orange focus area consists of j$sma MINIM mostly commercial and industrial properties located west I Wes' of SR-57, as well as commercial areas located along Anita 11111111111 Drive,just east of the Santa Ana River. In recent years,the 11111.P- City has experienced a high level of interest in sites available for redevelopment in Uptown Orange (generally iboundedbySR-57 and State College Boulevard). Large multi-family developments have recently been Adolfconstructedandpropertyownersanddevelopersremain interested in increased office, retail, and housing _ opportunities. Factors influencing redevelopment interest in this area include expansion of the University of California Irvine (UCI) Medical Center, freeway 1 accessibility, improvements at The Outlets at Orange, ORANGE GENERAL PLAN LU-39 kfArk LAND USE H County government facilities located in the area, and the City of Anaheim's Platinum Triangle Plan. Uptown Orange is the most urban of the eight focus areas. It adjoins Anaheim, Garden Grove, and Santa Ana, where substantial higher-density development is already underway. Uptown is well-served by freeways and contains a mix of major destination uses, including shopping, entertainment, offices, hotels, and a hospital. As a regional mixed-use node, Uptown should accommodate additional development intensity, including high-density multifamily residential development. Market studies completed for the General Plan update concluded that Uptown Orange has the potential to complement similar residential/mixed-use development in surrounding cities. Existing and proposed retail/entertainment facilities at the Outlets at Orange provide the atmosphere to create a live, work, and play destination once higher-density residential units are introduced. This mixed-use development strategy and increased residential densities will require improved transit access. Additionally, the presence of the Santa Ana River and associated regional bike trail along the eastern edge of the focus area provides great opportunity to improve the community's access to and relationship with the river, and to integrate access to and views of the river corridor in the design of mixed-use projects. The land use plan for this focus area is based upon the following future development objectives, which are consistent with citywide Land Use Element policies and the Vision Statement: Encourage integrated commercial retail,professional office, housing,and civic uses. Provide convenient transit access,innovative housing options, and pedestrian-oriented design. Require new development projects to provide community open space areas and retain or improve access to the Santa Ana River Trail. The plan features an Urban Mixed-use designation for most of the focus area,which provides for integrated commercial retail, professional office, housing and civic uses. Convenient transit access, innovative housing options, and pedestrian-oriented design will be encouraged. High intensity retail,office and housing development is encouraged within the Urban Mixed-use designation,which allows a maximum density of 60.o du/ac,and a maximum FAR of 3.o.A limited number of high-rise office and residential projects that exceed the maximum density or intensity may also be permitted within this focus area through the use of transferable development rights. New development projects in this area will be required to demonstrate provision of community open space areas, and,for projects adjacent to the Santa Ana River,to provide access to the River Trail when possible. ORANGE GENERAL PLAN LU-40 LAND USE City cif Anaheim OK1Xcl1vOODA\L_ WEST CHAPMAN / It,o s,n UPTOAN,iE jam ' m _..ki 51'C.U1UKL AVf. ilt iA,- .S. i UG R Medical 1 Center; I • City of 1 bspitSI/MedicaGardenGrove Center t dr I fifluck I I H Or.ug° II Land Use Designations High Intensity 4. ?ot Retail,Office,and Low Density Residential I ousing Development Low Medium Residential 1 I wati Medium Density Residential Urban Mixed Use 22; . Neighborhood Office Professional i rl_.1., it General Commercial I Sant xna Public Facilities and Institutions GARDEN GROVE l )Ell ' l Open Space Old Towne and Santa Fe Depot The Old Towne and Santa Fe Depot focus area isnoilliewgenerallyboundedbyWalnutAvenuetothenorth, La Veta Avenue to the south, Cambridge Street to the east, and Batavia Street to the west. Uses within Old Towne consist of a variety of commercial retail, service, restaurant, and office i.e., lvsir uses lining the Chapman Avenue and Glassell Street corridors; Hart, Plaza, and Depot Parks; industrial and warehouse buildings lining the Burlington Northern/Santa Fe(BNSF) Railway west of Glassell Street; several churches; Orange City Hall; the Orange Public Library & History Center; the Senior Center; much of the Chapman University campus; and numerous single-family and multiple-family residential units at varying densities. Over the past several years, the City has taken steps to enable long-term preservation of historic properties in Old Towne, and in the process, has created one of California's most intact and recognized historic districts. Today, strong interest exists among segments of the community to reduce overall residential densities in the Old Towne residential quadrants, and to make the areas surrounding the Santa Fe Depot more pedestrian friendly and transit- oriented. ORANGE GENERAL PLAN LU-41 LAND USE tikinuseffa The Santa Fe Depot and associated Metrolink station and Orange Transportation Center provide 4 commuting options to people living and working in ss* ,'., s Orange. Opportunities for land use changes in this W area arise because of its proximity to The Plaza and 1 ° /. = #, Chapman University, and due to the presence of Depot Park, under-utilized industrial properties, and surface parking lots. Land use changes could better integrate this area with its surroundings and could lead to more transit-oriented housing and creative re-use of historic industrial and commercial buildings. Old Towne is the heart of the City, and the General Plan seeks to protect the small-scale fabric of the area, as well as the existing predominantly single-family neighborhoods that surround the Plaza. Residents in this "small town" district enjoy proximity to key quality-of- life amenities, such as restaurants, shopping, commuter rail services, and other public facilities.The area provides amenities that are compatible with and supportive of new mixed- use development, which may include small-scale office development, additional storefront retail, and new housing. Market studies completed for the General Plan update concluded that mixed-use designations in this area are more likely to build out as residential use than as non-residential use. Residential uses will in turn drive support for additional non-residential development. The land use plan for this focus area is based upon the following future development objectives, which are consistent with citywide Land Use Element policies and the Vision statement: Reduce residential densities in many Old Towne neighborhoods. Continue to protect and enhance Old Towne's historic character. Introduce neighborhood-scale mixed-use along Chapman Avenue and Glassell Street, and adjacent to the BNSF railroad. Encourage the adaptive re-use of existing industrial areas and the creation of transit- oriented developments around the historic Santa Fe Depot. Maintain and enhance Old Towne's walkability. Provide for continued use and enhancement of the Civic Center. The plan features lower residential densities within the northeast, southwest and southeast quadrants of Old Towne, and introduces mixed-use within the historically industrial areas adjacent to the BNSF railroad. Low Density(maximum 6.o du/ac)residential designations are applied to most current residential areas located east of Glassell Street. West of Glassell Street, a combination of Low, Low Medium, and Medium Density Residential designations are found, consistent with current development patterns.The intent of these designations is to ensure that infill development within Old Towne over time is consistent with the style, density,character,and intensity of the historic residential neighborhood character. ORANGE GENERAL PLAN LU-42 o•rer:, LAND USE NI OLD TOWNE AND I.` SANTA FE DEPOT11 I. I Jam______ -- A.Al NLIA1E. in f Chapman = Q1 v Univenily in F S A, LI i Lower1i1Residential I Densities f 1 Land Use Designations 1 Historic Santa Fe t I 1 pe ottiArea ° 1 ,'R`. Low Density Residential i i i'r" a`;,'5 Low Medium ResidentialOItcry it, HACiw Center Medium Density Residential r 4 Old Towne Mixed Use Spoke 1 optext-Sensi ive Infill 1 .,,,.1: busing,Re ail,and 'W.i Old Towne Mixed Use 15 1 LON" -'g.VA 1°" lice Deve bpment Old Towne Mixed Use 24 r x Llens'L"''t Bowe,Neighborhood Office Profess. t ResltlentialIDemme, Industrial Public Facilities and Institut. LAVEIA AVE. :Lob vim •.ow us IN, a Open Space Park Two Old Towne Mixed-use designations with a maximum density of 15.o du/ac surround the Plaza and line much of Chapman Avenue, Glassell Street, and the BNSF railroad corridor. One of these is designed with a lower floor area ratio to maintain the historic residential character associated with the Spoke Streets. A higher-density Old Towne Mixed Use designation that allows up to 24.o du/ac generally occurs along Olive Street, north and south of Chapman Avenue, and around Pixley Street. The higher-density designation supports future plans for transit-oriented development near the Metrolink station outlined within the Santa Fe Depot Specific Plan. The Old Towne Mixed Use designations encourage and support development up to the property lines in the downtown core and Santa Fe Depot Specific Plan area in order to maintain the historic streetscape and building pattern that characterizes these portions of the Old Towne area. Ground floor retail uses are encouraged for most infill development projects,which could be supported by residential or office uses on subsequent stories. Stand alone commercial, residential, or office projects may also be appropriate, provided they do not interrupt the historic streetscape.The Old Towne Mixed-use designations also encourage the adaptive re-use of the existing industrial areas, and support improved walkability within the area. Chapman University and the Orange Civic Center are contained within the Public Facilities and Institutions designation. The civic center includes City Hall, the Orange Public Library & History Center, the Chamber of Commerce, Fire Department Station 1, St. John's Lutheran School, Emanuel Lutheran School,the Women's Club,and the Ainsworth House. ORANGE GENERAL PLAN LU-43 LAND USEIllat-r.P.‘-:.-01..--...6-azr., :-"seraismemor. Industrial Areas This focus area generally consists of properties located north of Orangewood Avenue/Walnut Avenue and west of the BNSF Railway. Portions of the area, including the Katella Avenue Corridor and the Orangewood/Eckhoff area, are also addressed in more detail in other focus areas. Orange's industrial area is characterized by a broad mix of business park, office, manufacturing, warehousing and commercial uses. A limited number of single-family homes are located in the industrial area, mostly concentrated 1"ri along Cully Drive. t.... Z111;; Over time, market forces may create demand for more office space or for more intense business V park or warehouse uses than currently exist. Considering ways to increase the intensity of uses throughout the City's industrial areas will encourage more productive use of limited land resources. Care must also be exercised to ensure adequate buffering between higher intensity NA,et 'industrial uses and surrounding residential areas VefSa r"` to the north and east. Market studies completed if for the General Plan update concluded that 4 demand for industrial and office use in this area is strong, particularly among those who want to own their buildings. Therefore, the City seeks to 1 preserve the primary industrial land use found in i', t. this area and to encourage intensification and/or redevelopment of underutilized parcels. The land use plan for this focus area is based on the following future development objectives, which are consistent with citywide Land Use Element policies and the Vision statement: Decrease the maximum allowed intensity within areas located west of Batavia Street and generally south of Grove Avenue to discourage professional office uses within this area in favor of true industrial uses. Provide room for expansion of current businesses and infill of vacant properties in remaining portions of this area by increasing the maximum allowed development intensity. Preserve the single-family residential character of the Cully Drive neighborhood. The plan features Industrial land use designations west of Batavia Street and generally south of Grove Avenue. At these locations, the maximum allowed intensity is o.75 FAR. The remaining portions of the industrial area are designated Light Industrial. In these areas, the maximum allowed intensity is i.o FAR with a three-story height limit to ensure a sensitive interface with nearby residential areas. These changes provide capacity for current MP AIIIIMEMEMINFailgalt ORANGE GENERAL PLAN LU-44 EMEFIMMF.F","74.. LAND USE businesses to expand, and enable more intensive uses to provide infill of currently vacant properties. i / rimFIER'E. T m••ft.ft• i INDUSTRIAL 11J AREAS l. • ff • S 1 ` ki C MEATS AVE. I L BALL RD. i. GROVE AVE. t 1 GenFa'al Industri l— j Manufacturing kid , Wa 'house Uses TAFT AVE. i i ' i yt Land Use Designations nit pacific Roilr ad 1LowDensityResidential Industrial IMIMIIMIIIIIM 0, ATET AVE, Low Medium Residential Business Park U es with 3-story H ht Limit/ r Medium Density Residential Urban Mixed Use c;, Neighborhood Office Professional Illp pi co,,,, AVE General Commercial R,l/ .; G Light Industrial a 4. I I/ Nt a S Industrial z 0 - Open Space ORANGE%VOOD AVE•J m L .N i a Open Space Park Properties on the east side of the Taft Avenue/Orange-Olive Road intersection are designated Medium Density Residential(permitting up to 24.o du/ac).Additionally,to protect the integrity and character of the Cully Drive neighborhood, currently residential lots located on Cully Drive, east of Batavia Street, are designated for Low Density Residential use, permitting up to 6.o du/ac. Lemon Street Corridor The Lemon Street corridor is bounded by Lemon Street on the east, the BNSF Railway on 11 : a I 1 the west, Hoover Avenue on the north, and Collins Avenue on the south. The corridor t,.•;;y r`•,-i '" '" s includes predominately industrial and office , ` q* uses and vacant lots. This corridor represents ' ', _,i Il':',I t an opportunity to redefine and improve the imam. -la...r-` ; industrial interface with single- and multi-family BRa residential uses to the east. ORANGE GENERAL PLAN LU—45 LAND USE At ir LEMON STREET CORRIDOR SlJ h1i. - a FOCUS AREA Y aaalaa.a l I,"". e ..--7-._ Ti r Future 1 I }. VA'a.t.“ Residential 1 01 ,. 1 ss .r t' -b, STRUCK AVE. L I 1 • t L t d ` ^' i 11rR . s, Brenna Lane i > : i , r• t"* SW ' 1- Industrial Park t taivi it NINE I., err; j ,7 JH ilia'A t' R 1111 r—al t" a,. a ilk fit Land Use Designation M Milli e Medium Density Residential -.I j stali'l, i lilt ° rt_r 1` as Light Industrial j lli r ', e e ippIndustrial i z • ;'"."` I Q COLLINS AVE, t._. r.a.....m.... a C7 Market studies completed for the General Plan update indicate that developers have shown interest in providing residential uses within the Lemon Street corridor. It is likely that the lot assembly would be needed in order to successfully transition this area to desirable residential development. The land use plan for this focus area is based upon the following future development objective, which is consistent with citywide Land Use Element policies and the Vision statement: Establish a corridor of well-insulated, higher density residential uses,gradually transitioning,from west to east, into a single-family residential area. The plan features a Medium Density Residential designation to the north of the focus area, allowing a maximum density of 24.o du/ac and industrial in the southern two-thirds of the area. Future development in this area should also incorporate accessible open spaces for residents and workers and take advantage of opportunities for future trails parallel to the railroad tracks. per ORANGE GENERAL PLAN LU-46 AammimmerTN LAND USE Eckhoff Street/Orangewood Avenue This focus area encompasses the area generally east of the Santa Ana River, north of Orangewood Avenue, west of Bitterbush Channel, and south of Collins Channel.The focus area largely consists of professional offices, commercial uses, warehouses, and distribution centers. It has historically been planned and zoned r for industrial use;however, over the years, 6 h - - properties have been allowed to develop as offices, and areas adjacent to the offices have been allowed to develop as industrial parks. As in the City's industrial area as a whole, demand for industrial and office use in the . 111 Eckhoff Street/Orangewood Avenue area has been strong, particularly among those who want to own their buildings. The City seeks to encourage intensification and/or Frrr redevelopment of underutilized parcels. The land use plan for this focus area is based on the following objectives for future development, which are consistent with citywide Land Use Element policies and the Community Vision: Recognize the potential of areas north of Orangewood Avenue to continue to provide options for lower-scale office uses and business-park oriented light industrial uses,as well as warehouse and distribution uses. Expand current neighborhood-scale office activities along Orangewood Avenue. The plan supports an expansion of current neighborhood office uses along Orangewood Avenue and north of the Eckhoff Street intersection. All areas designated Light Industrial have a maximum allowable building intensity of to FAR and a 3-story height limit. Properties designated for Neighborhood Office Professional use have a maximum allowable building intensity of o.5 FAR. ORANGE GENERAL PLAN LU-47 LAND USE Sri _ ane r-sir 6:,; - ECKHOFF STREET / y i ' ORANGEWOOD AVENUE!' i I FOCUS AREA 1 iXf I I i k •t• , * i •Industrial I Business Park Uses I 1 1 1 t I r Neighborhood-Scale Land Use Designations Office DedIopment • T Neighborhood Office Professional Light Industrial ORANG[WOOOAVE li•m•mesis•im•m•m• Land Use Diversity and Balanced Development A well-balanced community provides a broad range of housing and business opportunities as well as recreational, institutional, and cultural activities that enhance the overall living environment. By encouraging a mix of land uses, the City can create an active and diverse environment that complements all lifestyles and supports neighborhoods. A balanced inventory of land uses is needed to meet the housing needs of all income groups and lifestyles, to create a stable employment and tax base, to maintain logical relationships between land uses and community assets, and to provide residents with a range of recreational opportunities. Maintaining a variety of complementary land uses will continue to be a high priority for the City. A key challenge that the City will face when reviewing future development is that newer areas of Orange(mostly located in the eastern portion of the City)and long-established areas of the City (mostly located in the western portion) have very different development and community service needs. Priorities in the City's western area tend to be more established, focusing on reinvention of older commercial and industrial areas and on new opportunities to provide open space as part of infill development. This contrasts with priorities for east Orange, which is characterized by more recent suburban residential development. Here, providing adequate levels of roadway, utility infrastructure, and community services that are in step with new development and do not degrade service levels in other parts of the City is a key priority. ORANGE GENERAL PLAN LU-48 amasomm, LAND USE Mixed-use Development As this Element has discussed, mixed-use refers s y,. to the mixing of compatible uses such as residential, commercial, and office, which increases the diversity of land uses within a given area. Mixed-use developments create vital urban ass* - f•= 1 areas that accommodate residents, employment, • retail, and amenities within walkingdistance. r Mixed-use will also activate neighborhoods throughout the day, unlike single-use office • '' ¢ districts, for instance, that are often deserted at k,. ' z .• ; ' !"' night. Mixed-use buildings are often vertically mixed, with commercial space on the first floor and residential or office space above. Horizontal mixed-use is also desirable at some locations,allowing commercial to be adjacent to an office or residential use. The Land Use Policy Map identifies multiple types of mixed-use within the City. All of the mixed-use n designations encourage a creative blend of commercial retail, office, housing, civic, and entertainment uses that y; may vary in composition and intensity based upon one location, accessibility, and the surrounding developmentIw! i!.' .'j context. Figure LU-7 identifies potential configurations of mixed-use, in both plan and elevation, which may be 4 w found in Orange pursuant to the policies outlined in this i Element. As shown in the figure, the style and intensity of mixed-use in Orange varies by location. For example, in areas designated for Urban Mixed-use, vertical mixed- use is encouraged, and mid-to-high rise buildings o reaching upwards of io or more stories may be allowed. By contrast, in Neighborhood and Old Towne Mixed use areas, either horizontal or vertical mixed-use is encouraged. Buildings tend not to exceed three stories, and they are designed to blend in with their surroundings. The City encourages this diversity of mixed-use development as a way of establishing vibrant activity centers, providing diverse housing opportunities, and encouraging walkable districts with convenient access to goods and services. Transfer of Development Rights for Residential Development or Open Space The City seeks to promote flexibility in future development of urban mixed-use environments, to encourage and support historic preservation within Old Towne, and to encourage expansion of open space opportunities in neighborhood scale mixed-use areas. Transfers of development rights are encouraged for these four future development conditions,which are summarized in Table LU-4 and discussed below. ORANGE GENERAL PLAN LU-49 LAND USE y rs ,;;, Table LU-4 Transfer of Development Rights Conditions Site Characteristics Maximum Purpose Transferable Other p Receiver Site Land Donor Site Land Unused FAR Requirements Use Designation(s) Use Designation(s) (Receiver Site) Provide for increased Urban Mixed-use Urban Mixed-use o.25 FAR Development levels of residential use at Agreement appropriate sites. Encourage development Urban Mixed-use Urban Mixed-use to FAR Development of well-designed high rise Agreement development consisting of buildings io stories or zo percent of receiver higher at identified site must be locations. developed as permanent improved open space Expand and preserve open Neighborhood Neighborhood Variable Development space in Neighborhood Mixed-use Mixed-use determined by Agreement mixed-use environments Development Old Towne Mixed-use Agreement) Encourage and support Old Towne Mixed-use Old Towne Mixed-use Variable Development historic preservation in Old determined by Agreement Towne mixed-use Neighborhood Development environments. Mixed-use Agreement) For properties within the Urban Mixed-use designation,(see Figure LU-8)allowable land uses include residential (at 30.o to 60.o du/ac) or commercial retail or office, or any combination of those uses that does not exceed a maximum FAR of 3.o. For properties with proposed commercial retail and/or office development that do not exceed the maximum FAR, any unused FAR on that donor site, up to a maximum o.25 FAR of an identified receiver site, may be transferred to other Urban Mixed-use designated properties for the purpose of developing additional residential units on the property that receives the unused FAR. This approach to development is known as a transfer of development rights (TDR) and must be completed under a development agreement in accordance with City ordinances. This TDR technique is allowed in addition to density bonus provisions of State law (section 65915 of the California Government Code). Transfers of development rights from a donor site under this strategy may be limited to one receiver site, or may involve multiple receiver sites. ORANGE GENERAL PLAN LU-50 ANmNGBERALLPLAN Legend Resafental r r----- Comoercul I II M. a... ELEVATION 1. FERPF -r 1 7 r,4-l . • 1 11 m to in[ r aaaa r4' 1n.n in n ne n n 1 11 11 T—: z 11111 Fr-E-10 I I I I 1111 I1I : II1 min:• • i l l l l 1111 PLAN ri r-I -,—n f-n-rrrrmm1: _ r— Vertical Vertical Vertical Horizontal Horizontal General Plan Very High-Density High-Density Medium-Density Medium-Density Low-DensityLandUseDesignation 1 OM Towne si o Uu Si.ae OlT Mind Use i 5 1 C00 Towne Wed Use 14 02 Ne{han5ood Wad Use d,,,„„ 6Vith Transfer o/ n..t.a.and%WU nd ilelopment Rights) m Coon,Road N.TS. LU-51 Figure LU-7 Mixed-use Types This Page Intentionally Left Blank) ORANGE GENERAL PLAN LU-5 4 LAND USE I L. kT'ATELLA AVE. j,/ A r$TRUCK AVE. SI I I III 1, COLLNS AVE. 571, 4. ' 1\ 4I-0•ANGE•000 AVE. i-- J g i 1/ / 7------ SVC4ORE AVE. ii N r, NA CHAPMAN AV.' -I i 1, Ni 1 . LAWSON WAY i r i il\i, Al LA If / f ma LARDERRO=G 4. Ns Urban Mixed Use Sites Eligible for High-Rise Development NORTH e L 1 1--- -]F 0 1500 3.00Feet Figure LU-8 Urban Mixed-use Sites Eligible for High Rise Development To determine the number of residential units that can be added to the receiver property, unused FAR is converted to building floor area square footage; for example, 0.25 FAR for a receiver property of io acres in size is 108,90o square feet. The resulting square feet of building floor area is then divided by 1,000 square feet(the average size of a residential unit) to determine the number of additional residential units that can be added to the receiver property above and beyond the allowed 30.0-60.o du/ac already allowed on that property. In this example, dividing 108,90o by i,000 equals a maximum of 109 dwelling units that can be added to the receiver property, above and beyond the 300-60o dwelling units already allowed. For some properties within the Urban Mixed-use designation, the City desires well-designed high-rise development consisting of buildings io stories or higher. For any unused FAR, up to a maximum of 1.o FAR of the receiving property may be transferred from other Urban Mixed- use designated properties, if proposed development on the receiving property results in the construction of a well designed high-rise building, and at least 20 percent of the property is developed as permanent improved, publicly accessible open space. siampri gym, ORANGE GENERAL PLAN LU-53 LAND USE For properties in the Neighborhood Mixed-use designation, transfers of unused FAR are permitted and encouraged for the purpose of creating open space. Similarly, in the Old Towne Mixed-use designation, transfers of unused FAR are permitted to support historic preservation within the Old Towne neighborhood. Industrial and Office Uses Providing options for industrial development and office uses within the City contributes to the economic and employment base of the community. A variety of industrial and warehouse facilities are located in the area north and south of the western end of Katella Avenue. Uses range from large beverage and grocery distributors, to masonry and foam manufacturers, down to small one-person printing operations. Office spaces that support industrial practices can also be found in this area. Industrial development in Orange and throughout the region has undergone some transitions in recent years. Even though traditional manufacturing activities dominate these areas, in some cases warehousing uses and a few modern office parks are starting to replace manufacturing. In addition, Orange has experienced increased demand for larger, multi-story professional office complexes at locations such as South Main Street, Town and Country Road, La Veta Avenue, and The City Drive. Demand has also grown for medical office space surrounding local hospitals. The Land Use Policy Map indicates a change in proposed land use designations directly west of the core of Old Towne,from Industrial to Old Towne Mixed-use. By changing the land use designation, the City is encouraging the adaptive reuse of several industrial sites to support walkability and transit presence in the area. The City continues to support industrial and office uses in areas currently characterized by these uses, and encourages a mixture of office, commercial, and residential uses in the area near the Old Towne core. b qJ 9 - e 4 T-• Rp I Contextual and Environmental Compatibility The quality of the built and natural environments plays a large part in defining Orange's quality of life. Land use conflicts often occur when newer development is allowed to occur that is insensitive to the use, scale, or character of current development and the surrounding environment. In other cases, older, obsolete and nonconforming uses remain, interspersed ORANGE GENERAL PLAN LU-54 X LAND USE 0 among newer developments, as when old service stations or repair shops are located in the midst of residential development. Such conflicts can lead to degradation of the built environment. The City has ensured that all proposed land use designations in this Element are designed to complement and enhance adjacent and surrounding land uses and the natural environment. Coordinated Planning Future planning considers ongoing planning efforts of all City departments, agencies, surrounding jurisdictions and special districts. In addition, ongoing planning efforts undertaken by regional agencies such as the County of Orange, the Southern California Association of Governments,the South Coast Air Quality Management District,the Santa Ana Regional Water Quality Control Board, and others need to be examined for consistency with the City's long-range objectives. The following plans and programs, which are administered by federal, state, county, and special purpose agencies, will help achieve the goals of the Land Use Element. The City will continue to coordinate with the agencies responsible for administering these plans to ensure that City interests are considered and met. National Pollutant Discharge and Elimination System The City of Orange is under the jurisdiction of the Santa Ana Regional Water Quality Control Board (RWQCB),which implements the National Pollutant Discharge and Elimination System NPDES) permit for the northern and central portions of Orange County. The NPDES permit, a requirement under the Clean Water Act, addresses pollution from urban runoff that threatens water quality of receiving waters (such as streams and lakes). Under the NPDES permit, Orange must implement measures to reduce urban runoff during all phases of development: planning, construction, and existing use. Requirements include incorporating Best Management Practices to reduce runoff from construction and current uses, reporting any violations to the RWQCB, and education regarding the negative water quality impacts of urban runoff. California Environmental Quality Act and Guidelines The California Environmental Quality Act (CEQA) was adopted by the state legislature in response to a public mandate for more thorough environmental analysis of projects that might affect the environment. Provisions of the law and environmental review procedures are described in the CEQA Statutes, State CEQA Guidelines, and the City's guidelines implementing CEQA. Implementation of CEQA ensures that during the decision making stage of development, City officials and the general public will be able to assess the environmental impacts associated with private and public development projects. Southern California Association of Governments Growth Management Plan The Southern California Association of Governments (SCAG) Growth Management Plan recommends methods to redirect regional growth to minimize traffic congestion and better protect environmental quality. The goals of the Growth Management Plan include balancing oramPtrr ORANGE GENERAL PLAN LU-55 fi 4 LAND USE z jobs and housing. While SCAG has no authority to mandate implementation of the Growth Management Plan, principal goals have implications for the land use composition of Orange. LAND USE IMPLEMENTATION The goals, policies and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaboration with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. ORANGE GENERAL PLAN LU-56 CIRCULAT IONillANGEMOBILITY ENERAL PLAN 1 : AlLi INTRODUCTION AND VISION FOR THE FUTURE Orange's circulation system has been influenced by a variety of historical factors, including the presence of the Santa Fe Railroad,the vision of Alfred B. Chapman and William T. Glassell, the agricultural history of the area, and alternative transportation modes including a historic streetcar system. In 1887, the Santa Fe Railroad came to Orange and built a station four blocks west of the Plaza.The coming of the railroad set off a real estate boom that brought hundreds of settlers to the area. The railroad also influenced the City's early economic success by providing a means to transport goods, especially citrus, to the entire country. Today, the railroad tracks continue to serve freight trains and provide a critical link to the region via the Metrolink heavy rail transit system. In the 187os, Alfred B. Chapman and William T. Glassell subdivided their land into residential and small farm lots centered on a roundabout known today as Plaza Park. Plaza Park was dedicated in i886 and established the City's two main streets —Chapman Avenue and Glassell Street—as well as the compact street grid of Old Towne Orange.The street grid and railroad system were supported historically by a streetcar system that connected the small towns and settlements that make up the City today. Over time, the small farms on the outer edges of Orange's core district began to disappear. Two factors influenced this change: the demand for housing after World War II and the appearance of"Quick Decline" disease that destroyed the local citrus industry. As each farm was developed independently, the grid system expanded outward and commercial corridors were established. Orange's roadways began to take on a more suburban pattern of collectors, connectors,and arterials.As development reached the eastern portion of the City, the grid gave way to curvilinear street patterns. The historic roadways and railways that form the basis for the current circulation network have been complemented over the years by the development of a streetcar system, a transit service, an emerging and continually expanding bicycle trail and route network, and routes for equestrian use in the eastern portion of the City. The City will continue to be served by these multiple modes of transportation and other emerging mobility technologies. ORANGE GENERAL PLAN CM-1 REV. GPA 2014-0001 (12/8/15) Rev. GPA 2010-0001 (8/10/10) 4CIRCULATION AND MOBILITY Orange's Vision for the Future, described in the General Plan Introduction, recognizes that the circulation system is a key component of the quality of life in the City. Accordingly, the vision includes the following objectives: Residential areas will be connected to commercial, recreational,and open space areas, as well as educational and cultural facilities via a balanced, multi-modal circulation network that accommodates vehicles, pedestrians, cyclists, hikers, and equestrians. This network will create additional opportunities for walking and biking, enhancing safety and well- being for neighborhoods and businesses. The City will work to define neighborhoods through the use of open space areas and a trail system that provides a source of aesthetic beauty and recreational opportunities. These open space areas support a healthy and active community. We will develop a connected multi-modal network for traveling from one end of town to the other that provides the option for residents from different neighborhoods to access parks, open spaces, and scenic areas by vehicle, transit, foot, bicycle or, where appropriate, horse. Purpose of the Circulation & Mobility Element California's General Plan Guidelines mandate that the Circulation & Mobility Element fulfill the following objectives: Show a direct relationship to the Land Use Element to ensure that any changes to land use as stated by the Land Use Element and growth occur with adequate circulation and transportation facilities in mind. Address relevant issues including the adequacy of"major thoroughfares,transportation routes,terminals, other local public utilities and facilities."The goal of the Circulation & Mobility Element is to identify circulation problems related to these facilities in the early stages and resolve them in local goals and policies without costly delays. Other relevant issues discussed in the Circulation & Mobility Element include those that address streets, highways, public transit routes, railroads, bicycle and pedestrian routes, recreational trails, paratransit, parking, transportation system management, and air pollution. The hierarchy of streets within the residential areas helps to frame the urban form. Connections between neighborhoods can be achieved by a comprehensive network of sidewalks and trails. Also, the commercial corridors can be enhanced with adequate street capacity, public transit, and pedestrian-friendly environments. The state also recommends that the Circulation & Mobility Element address coordination efforts among the local, regional, and state transportation plans to better resolve circulation issues. Since many transportation concerns are regional, addressing them requires intergovernmental and regional transportation management plans and policy implementation. These partnerships ensure the most efficient use of funding, infrastructure, and other resources. The state also recommends the "preservation of transportation corridors for future system improvements." ORANGE GENERAL PLAN CM-2 CIRCULATION AND MOBILITY The Circulation & Mobility Element prioritizes the issues and opportunities that exist within Orange's transit network. It is directly responsive to proposed changes in land use and anticipates the impacts of those changes. This Element also seeks to reassure residents and businesses that the City recognizes the link between transportation and land uses, and provides a means to mitigate the impacts of growth. Another goal of the Circulation & Mobility Element is to increase transportation options and provide increased access to the circulation system for all residents of Orange. This goal includes improved rail and bus transit connections and frequency, implementation of a Bikeway Master Plan, and completion of a trails system. Transforming many of Orange's historically auto-oriented commercial corridors, such as Katella Avenue, Main Street, and portions of La Veta Avenue, Chapman Avenue, and Glassell Street into more pedestrian- friendly mixed-use environments is an overarching goal.Where possible, the development of equestrian trails is also encouraged. One of the main functions of the Circulation & Mobility Element is to guide and direct enhancement of the current circulation system for existing and future developments. Thus, circulation provisions correlate with the Land Use Element to avoid unchecked growth and unnecessary congestion. Another key objective of the Element is to work toward a future circulation network that provides meaningful alternatives for getting around the community by less auto-dependent means. The City's topography, street and sidewalk system, transit and trail framework, and land use relationships provide an excellent foundation for pursuit of this objective. The Circulation & Mobility Element does not simply determine automobile routes. It also guides the movement of people and goods, directly affecting Orange's physical, social, and economic environment. Since circulation permits accessibility to places and social amenities, it can either improve or cause deterioration in quality of life. Circulation efficiency also plays a major role in progress and development of the City's economy. Scope and Content of the Circulation & Mobility Element The Circulation &Mobility Element comprises three sections: 1) Introduction; 2) Issues,Goals, and Policies;and 3)The Circulation &Mobility Plan. The first section introduces the contents of the Circulation & Mobility Element. The second section presents issues, goals, and policies for improving circulation. The third section includes the Circulation & Mobility Plan, which designates locations and standards for roadways and non-motorized circulation facilities, and states the community's desired level of transportation service. Implementation measures designed to promote achievement of the goals and policies are provided in an Appendix to the General Plan. ORANGE GENERAL PLAN CM-3 limmatisammammmumnsm CIRCULATION AND MOBILITY Relationship to other General Plan Elements California planning law requires that the Circulation & Mobility Element correlate and maintain consistency with the other General Plan elements. The Circulation & Mobility Element relates most closely to the Land Use, Natural Resources, Noise, Economic Development, Housing, and Urban Design Elements. The Circulation & Mobility Element is linked to the Land Use Element because the General Plan land use designations identified in the Land Use Element serve as a basis for the allocation of vehicle trips and establishment of capacity levels for circulation planning. The Land Use Element also provides land use designations that accommodate mixed commercial and residential development, which encourage shorter trips and improve the efficiency of the transportation network. The Circulation & Mobility Plan is established to define and provide for adequate levels of service and facilities to support future land uses. This Element recommends roadway and intersection improvements that may require land acquisition. Location of public transportation facilities will also influence pedestrian activity and transit- oriented development, and the physical size of streets will affect urban land uses and the physical appearance of the City. The Natural Resources Element identifies regional air quality objectives and provides appropriate mitigation efforts that affect the Circulation & Mobility Element. Improving access, encouraging alternative modes of travel, and maintaining air quality and conservation standards are common objectives of the Natural Resources and the Circulation & Mobility Elements. The Noise Element addresses future noise levels associated with roadways, rail, and other transportation facilities. Future volumes of traffic on the circulation system are directly related to future noise levels and mitigation strategies. The Economic Development Element identifies desirable economic conditions and land uses that enhance and promote business activity, employment growth, and economic stability. The goals and policies of the Circulation & Mobility Element will determine road capacity in Orange, which will impact the type and location of uses, and parking and access considerations associated with future uses. Both elements share a common objective of planning for future transportation infrastructure needs. Maintaining roadways, bikeways and bus and rail transit facilities is critical to the success of both current and future businesses in Orange. The Urban Design Element is a framework for shaping the future form and character of Orange. The quality of Orange's physical environment contributes to its identity, attracts new residents, and sets the stage for economic activity. The Urban Design Element builds on the foundation of Orange's already strong sense of place to preserve and strengthen the streetscape environment of commercial corridors and landmarks within the city. The Urban Design Element and Circulation & Mobility Element share a common objective to reinvent City streets as more functional and walkable public places. ORANGE GENERAL PLAN CM-4 k , x CIRCULATION AND MOBILITY 4 ISSUES , GOALS , AND POLICIES The goals, policies, and implementation programs of the Circulation & Mobility Element seek to achieve a better balance between vehicular, pedestrian, and bicycle travel, and to provide a wide range of viable transportation options to Orange residents. The following six issues are addressed: (1) enhancing the local circulation system; (2) maintaining the regional circulation system; (3) maintaining a viable public transportation network; (4) creating a comprehensive system of sidewalks, trails, and bikeways; (5) providing adequate parking facilities; and(6)improving circulation system aesthetics and safety. Local Circulation System The local roadway system serves the community's primary needs for mobility and access,and consists of a hierarchy of City streets to meet those needs. The City's original street system was established as a grid pattern long before a Master Plan of Arterial Highways(MPAH)was adopted. The Old Towne area and many postwar neighborhoods were designed in a classic grid configuration, while in newer parts of the City, physical features such as the Santa Ana River, Santiago Creek, hilly terrain, freeways and the presence of the City of Villa Park have resulted in a system without a definitive pattern. Some major roads do not connect the eastern and western portions of the City and consequently do not provide effective through circulation. A well-designed roadway system will provide convenient access to activities in Orange. GOAL to:Provide a safe, efficient, and comprehensive circulation system that serves local needs, meets forecasted demands, and sustains quality of life in neighborhoods. Policy 1.1:Plan, build, and maintain an integrated, hierarchical, and multi-modal system of roadways, pedestrian walkways, and bicycle paths throughout the City. Policy 1.2:Identify key intersections and streets with historical or projected traffic congestion problems and apply creative traffic management measures to improve overall circulation. Policy 1.3:Consider various methods to increase safety on City arterials and neighborhood streets, including landscaping, provision of bike/transit lanes, and consideration of traffic calming on neighborhood streets in accordance with the City's Neighborhood Residential Traffic Management Program. Policy 1.4:Prohibit on-street parking where possible to reduce bicycle/automobile conflicts in appropriate target areas as recommended by the Bikeways Master Plan. Policy 1.5:Address possible safety and noise effects of increased rail activity on grade crossings throughout the City. Policy 1.6:Maintain and repair roadways and sidewalks as necessary to improve circulation and safety. Policy 1.7:Consolidate driveways along roadways that provide access to commercial uses to minimize side street interruption and promote smooth traffic flows. ORANGE GENERAL PLAN CM-5 4.4 CIRCULATION AND MOBILITY On-street parking is prohibited on commercial access streets to provide adequate curb-to-curb width for travel lanes. Regional Circulation System Mobility in Orange is directly related to the regional transportation network, as the City lies at the confluence of several regional freeways: the Santa Ana Freeway(Interstate 5), Orange Freeway (State Route [SR] 57), Garden Grove Freeway(SR-22), Costa Mesa Freeway (SR-55), Riverside Freeway (SR-91) and Eastern Transportation Corridor (SR-241). In addition to the freeways, other connections to the region include the commuter rail system known as Metrolink, a freight and goods rail transport system, and a regional bikeways system with connections to the Santa Ana River and other locations. Orange is also connected to the region via the Orange County Transportation Authority (OCTA) bus system. City infrastructure must accommodate regional through traffic originating in other communities in addition to providing local residents access to the regional network. GOAL 2.o: Provide an effective regional transportation network. Policy 2.1:Ensure consistency with the County MPAH in order to qualify for funding programs. Policy 2.2: Coordinate with adjacent cities to plan and develop major east/west and north/south arterials and rapid transit to connect the City with the cities of Anaheim, Tustin, Santa Ana, Garden Grove, and Villa Park, as well as developing areas within the City's sphere of influence. Policy 2.3: Cooperate with and support local and regional agencies' efforts to improve regional arterials and transit in order to address increasing traffic congestion. Policy 2.4: Coordinate land use planning with anticipated future development of roadways and other transportation facility improvements as well as the expansion of commuter rail and bus service. Policy 2.5: Ensure that transportation facilities and improvements do not degrade the quality of Orange's commercial and residential areas. Policy 2.6: Encourage the use of regional rail, transit, bicycling, carpools, and vanpools for work trips to relieve traffic congestion. Policy 2.7: Continue to support the use of rail corridors within the City for the movement of freight and goods, and work with rail operators to minimize associated traffic delays. Public Transportation Public transportation is a crucial component of a comprehensive circulation system. In addition to reducing air pollution and traffic congestion, a successful public transit system provides an alternative mode of travel for those with limited mobility, residents who may not have access to a car,and persons who choose not to drive. GOAL 3.o: Connect centers within the City to each other and to the region through efficient and accessible public transportation. ORANGE GENERAL PLAN CM-6 CIRCULATION AND MOBILITY I Policy 3.1:Work with OCTA and other agencies to assess City public transportation needs and to ensure delivery of services when and where they are needed. Policy 3.2: Enhance and encourage provision of convenient and attractive transit amenities and streetscapes to encourage use of public transportation (e.g., benches,trash cans,shelters, and lighting). Policy 3.3: Require incorporation of transit-oriented design features within major commercial and employment areas as well as in medium density residential and mixed-use development areas. Sidewalks , Trails , and Bikeways In addition to offering recreational and public health benefits, non-vehicular modes of transportation offer commuting options. Also, the mixed-use environments advocated by Land Use Element policies will encourage increased pedestrian activity on City sidewalks for both business and pleasure. An effective pedestrian, bicycle, and equestrian network must be safe and accessible, and must connect key activity centers within the City with each other and with the regional trail system. A comprehensive network of on-street bicycle lanes, off- street bicycle paths, sidewalks, and trails should be developed and maintained to increase the safety and utility of the system, with a particular focus on the City's sidewalk deficient industrial areas GOAL 4.o: Provide efficient and accessible modes of pedestrian, bicycle, and equestrian transportation and improved facilities and amenities. Policy 4.1:Create a comprehensive bicycle network that is integrated with other transportation systems by establishing complementary on-street and off- street facilities as identified in the City of Orange Bikeways Master Plan and OCTA Commuter Bikeways Strategic Plan, including Santiago Creek, the Santa Ana River, and the Tustin Branch Trail. Policy 4.2: Install racks and safe storage facilities at parking areas for City facilities, as appropriate, and encourage incorporation of such facilities within privately- developed projects. Policy 4.3: Improve citywide awareness of automobile and bicycle safety. Policy 4.4: Encourage use of the bikeway system by providing adequate signage, trail markings, and other amenities. Policy 4.5: Ensure that pedestrian sidewalks, trails, and bikeways are safe environments through the use of crime prevention-oriented trail design features, lighting where appropriate, pedestrian and bicycle safety improvements at at-grade rail crossings, access for emergency vehicles, and links to the roadway signal system. Policy 4.6: Explore opportunities to convert abandoned rail corridors into segments of the City's bikeway and pedestrian trail system. Policy 4.7: Provide ADA accessible sidewalks and pedestrian amenities throughout the City. ORANGE GENERAL PLAN CM-7 CIRCULATION AND MOBILITY Policy 4.8: Expand and maintain an equestrian trail network and provide for appropriate staging areas and infrastructure. Parking Facilities A shortage of parking can cause circulation problems and could lead to a reduction or loss of business activity. Old Towne Orange has been identified as an area of particular concern. As the City develops, providing adequate parking adjacent to other activity centers is increasingly important. GOAL 5.0: Provide adequate parking to meet the needs of activity centers throughout the City. Policy 5.1:Provide adequate parking to protect and support the economic vitality and diversity of Old Towne. Policy 5.2:Plan for and design parking facilities throughout the City that are adequate to meet demand, but also consider land use-parking efficiencies, and the surrounding natural and built environment. Policy 5.3: Encourage adjacent businesses to consolidate parking facilities and access points. Policy 5.4: Encourage well-designed structured parking in commercial areas where such features would be economically feasible, safe, and visually integrated with existing development. Circulation System Aesthetics Streets that have been made or modified to include visual and pedestrian amenities can improve the overall look and feel of City streets, as well as enhancing functionality for all users. As major commercial corridors are beautified and changed to include a pleasant pedestrian environment, this will have positive effects on the feelings of safety and security for pedestrians, bicyclists,and motorists. GOAL 6.0: Provide roadway corridors that are aesthetically pleasing and contribute to a feeling of safety, security, and comfort for motorists, bicyclists, and pedestrians. Policy 6.1:Supply adequate, clear, and correctly placed signage to direct both motorists and non-motorists toward destinations and away from hazards. Policy 6.2: Provide clear indicators in the right-of-way for where pedestrians and bicyclists are encouraged to walk, bike, or cross safely. These may include special paving, line stripes,and crosswalks. Policy 6.3: Provide lighting, landscaping, street trees, and other appropriately scaled streetscape features that accommodate all users on commercial corridors. Where appropriate, lighting should be scaled for autos as well as pedestrians. ORANGE GENERAL PLAN CM-8 CIRCULATION AND MOBILITY CIRCULATION & MOBILITY PLAN The objective of the Circulation & Mobility Plan is to document existing transportation facilities in the planning area used for the movement of people and goods. The Element addresses the desired future condition of these facilities, and their relationship to future land uses identified in the Land Use Element. The Plan describes the circulation system, including the arterial network and intersections, the public transit system, bicycle paths, recreation facilities, parking, and railroad operations. The City's circulation network includes an extensive system of roadways, bus transit service,commuter rail, and freight rail. Local Circulation System A well-designed local arterial roadway system that connects to a well-developed regional circulation system provides safe and convenient access to employment, housing, recreation, and commercial areas in Orange. City arterial roadways located on the western side of SR-55 generally follow north-south and east-west orientations. On the eastern side of the freeway, arterials are characterized by curvilinear streets due to undulating geographical surroundings. Key north-south arterials include Tustin Street,Glassell Street, Main Street, and The City Drive. Key east-west arterials include Chapman Avenue, Katella Avenue, Taft Avenue, and parts of La Veta Avenue. These arterial roadways are in turn supported by a network of collector and local streets that provide access to homes and businesses throughout the City. Roadway Classification System The City's roadway network is distinguished by a hierarchical classification system that differentiates roads by size, function, and approximate daily capacity based upon Level of Service D (LOS D). LOS is a qualitative measure that characterizes traffic congestion on a scale of A to F with LOS A representing a free-flow condition and LOS F representing extreme congestion. LOS standards can apply to either intersections or links (a section of street between two intersections). Generally speaking, LOS represents the ability of a roadway or an intersection to accommodate traffic. In the City, intersections are used as actual control points. City roadways consist of both divided and undivided roadways. Divided roadways generally contain a physical barrier or buffer, such as a raised median or a continuous two-way left turn lane, between each direction of travel. Divided roadways remove vehicles making a left turn from the travel lanes so as not to impede through traffic and constrict roadway capacity. Undivided roadways do not contain a buffer between each direction of travel, and therefore left-turning traffic can impede through traffic. Undivided roadways may provide turn movement pockets at intersections. The six categories of roadways in Orange are summarized in Table CM-1. Proposed cross-sections for each type of roadway are shown in Figure CM-1. The City's policy is to use a link capacity standard of LOS D. The following paragraphs represent link capacities of each roadway type at LOS D. Eningirrr_ r ORANGE GENERAL PLAN CM-9 0,1612611.11111111111 CIRCULATION AND MOBILITY Table CM-1 Roadway Classifications Classification Facility Type Characteristics Smart Street Smart Street 4-8 lane divided,with possible signal coordination,intersection capacity improvements and/or grade separations Principal Arterial 8 Lane Divided Primarily serves through traffic with limited local access Major Arterial 6 Lane Divided Serves mostly through traffic with some local access allowed Primary Arterial 4 Lane Divided Serves through and local traffic Secondary Arterial 4 Lane Undivided Serves through and local traffic Collector Street 2 Lane Serves mostly local traffic Smart Streets are typically four- to eight-lane roadways with enhanced capacity and smoother traffic flow than standard arterial streets. These streets have enhanced features such as traffic signal synchronization, bus bays, intersection improvements, and the addition of travel lanes by removing on-street parking and consolidating driveways. The traffic carrying capacities of Smart Streets can range from 60,00o to 79,00o vehicles per day, depending on the number of lanes, degree of access control, peak period loading, and the configurations of major intersections. Principal Arterials are typically eight-lane divided roadways with medians or continuous two- way left turn lanes.They can accommodate up to 67,50o vehicles on an average weekday at LOS D conditions, depending on the degree of access control, peak period traffic loadings, and lane configurations at major intersections. Principal arterials prohibit on-street, curbside parking,and connect directly to freeways. Major Arterials are six-lane divided roadways with medians or continuous two-way left turn lanes. They can accommodate up to 50,70o vehicles on an average weekday at LOS D conditions, depending on the degree of access control, peak period traffic loadings, and lane configurations at major intersections. Major arterials facilitate traffic circulation within Orange,and may prohibit on-street,curbside parking. Primary Arterials are four-lane divided roadways with medians or continuous two-way left turn lanes. They can accommodate up to 33,75o vehicles on an average weekday at LOS D conditions, depending on the degree of access control and peak period loadings. Primary Arterials provide for easy circulation in the City, and allow for limited on-street, curbside parking. Secondary Arterials are four-lane undivided roadways without medians. They can accommodate up to 21,600 vehicles on an average weekday at LOS D conditions, depending on the degree of access control and peak period loadings. Secondary arterials allow for on- street, curbside parking. ORANGE GENERAL PLAN CM-10 CIRCULATION AND MOBILITY i 66' 33' q 33' 10' 23' 23' 10' 5 1 I. I Collector Street 86' 43' 43' 8' 35' 35' 8' Centerline Secondary Arterial 100' 50' 50' 8' 42' 42' 8' r-. . r1 1- 11111111111.11aliiMillni.nigiLl Centerline Q Raised Medan Optional Primary Arterial 120' 60' 60' 8' _ _ 52' 52'8' r _ r Lilirfillowsillgrill."1".11-1 Centerline Raised Mid1inOptional Major Arterial 134'(Variable to 144') 67' 67' 8 - - 59' 59' 8 r 7r 7' . 1 jaraNONIMILI Centerline Raised Median Optional Principal Arterial and Smart Street Variable Cross Section) Figure CM-1 Roadway Cross Sections ORANGE GENERAL PLAN CM-11 CIRCULATION AND MOBILITY Collector Streets are typically two-lane roadways without medians that gather and distribute traffic to higher-capacity arterials. They can accommodate up to 10,80o vehicles per average weekday at LOS D conditions, depending on the degree of access control and peak period traffic loadings. Centerline striping is typically not provided on collector streets, and on-street parking is allowed. There are several types of two-lane streets in the City, including divided, undivided, residential, and collector streets. Each type serves a slightly different purpose and may have different capacity thresholds based on various factors. Performance Criteria Evaluating the ability of the circulation system to serve residents and businesses in Orange requires establishing performance criteria. Performance criteria have a policy component that establishes a desired LOS, and a technical component that specifies how traffic forecast data can be used to measure criteria achievement. The LOS definition for intersections is based on a volume-to-capacity(V/C)ratio and provides a more quantitative description of traffic conditions. Table CM-2 presents LOS based on traffic volumes and the design capacity of intersections. Table CM-2 Level of Service Definitions for Intersections Level of Volume-to-Capacity Service Ratio Description A o.00-o.6o Free Flow/Insignificant Delays:No approach phase is fully utilized by traffic and no vehicle waits longer than one red indication. B o.61-0.7o Stable Operation/Minimal Delays: An occasional approach phase is fully utilized.Many drivers feel somewhat restricted within platoons of vehicles. o.71-0.8o Stable Operation/Acceptable Delays: Major approach phases fully utilized. Most drivers feel somewhat restricted. D o.81-o.90 Approaching Unstable/Tolerable Delays: Drivers may have to wait through more than one red signal indication.Queues may develop but dissipate rapidly, without excessive delays. E o.91-too Unstable Operation/Significant Delays: Volumes at or near capacity. Vehicles may wait through several signal cycles. Long queues form upstream from intersection. F N/A Forced Flow/Excessive Delays: Represents jammed conditions. Intersection operates below capacity with low volumes. Queues may block upstream intersections. Source:Highway Capacity Manual,Transportation Research Board,Special Report No.209,Washington DC,2000. Although roadway capacity is generally a function of peak hour intersection performance and the corresponding peak hour volumes, daily arterial segment capacities (link capacities) also provide a measure of the overall LOS of the arterial system. Generally, traffic impact mitigation focuses on peak hour intersection performance, since system performance is typically a function of intersection performance. The City's policy is to use a link capacity standard of LOS D.Table CM-3 presents arterial daily capacities at LOS D and LOS E. ORANGE GENERAL PLAN CM-12 miser CIRCULATION AND MOBILITY Table CM-3 Arterial Daily Capacity Threshold Assumptions Daily Capacity Street Type LOS D LOS E Smart Street-6-to 8-lane divided 71,1oo 79,000 Principal-8-lane divided 67,500 75,000 Major-6-lane divided 50,700 56,300 Primary-4-lane divided 33,750 37,500 Secondary-4-lane undivided 21,600 24,000 Collector-2-lane undivided io,800 12,000 Source:City of Orange General Plan Update Traffic Report,2008. Various LOS policy standards have been established to evaluate observed traffic conditions, future development plans, and circulation system modifications.At the local level, the City of Orange has established LOS D as the lowest acceptable level of service for both roadway segments and peak-hour signalized intersection movements. At the regional planning level, Orange County's Congestion Management Plan (CMP) specifies LOS E as the operating standard for roadways and intersections on the CMP highway system. The CMP Highway System consists of the Orange County smart street network plus the state highway system. Thus, the SR-55 northbound and southbound ramps at Katella Avenue are CMP intersections within the City's jurisdiction. The City does not have an adopted LOS standard for unsignalized intersections. Performance of unsignalized intersections is evaluated on a case- by-case basis. In addition to the LOS standards for roadways and intersections, the California Environmental Quality Act (CEQA) Guidelines (Section 15o64.3), require "vehicle miles traveled" (VMT), to measure transportation impacts on the community. VMT refers to the amount and distance of automobile travel attributable to a project. For purposes of compliance with CEQA, a significant impact would occur if the baseline and/or cumulative project-generated VMT per service population (population plus employment) exceeds the anticipated City of Orange General Plan Buildout VMT per service population. One vehicle traveling one mile would generate one VMT. Additionally, the project's effect on VMT would be considered significant if it resulted in the baseline and/or cumulative link-level boundary citywide VMT per service population increases under the plus project condition compared to the no project condition. Link-level boundary VMT is calculated by summing all weekday VMT on a roadway network within the City boundary and includes all trips including trips that pass through the City's roadway network but do not start and end with in City. These thresholds are designed to reduce the number of miles traveled by automobiles, and are implemented within the City of Orange Traffic Impact Analysis Guidelines. ORANGE GENERAL PLAN CM-13 Amp Not.CIRCULATION AND MOBILITY In order to maximize the efficiency of its circulation system, the City will look at where physical improvements to the circulation infrastructure can be made to expand capacity and increase traffic flow. To maximize efficiency of the road system, the City will support traffic signal coordination and spacing, and will pralsodiscourageon-street parking along arterials. In addition, the City will explore ways to reduce the demand for vehicular transportation, specifically j f through the provision and maintenance of bike lanes, bikeways, and trails, and 4 "`.; will also encourage additional regional transit services and support facilities. The City's Transportation Demand Management(TDM) ordinance(Chapter io.83 of the Municipal Code) further specifies a variety of techniques available to employers with too or more employees to advance the goals of efficiently utilizing the existing and planned transportation system and reducing vehicle emissions. City Master Plan of Streets and Highways Land Use Element policy will allow land use changes and intensification to occur in specific focus areas within the City. The City's Master Plan of Streets and Highways displayed in Figure CM-2 has been developed in close coordination with land use policy to ensure that traffic generated by new development will not compromise the City's goal to ensure that intersections and roadway segments operate efficiently. The map identifies components of the City's roadway circulation system. The map also indicates where augmented roads are needed, and pinpoints locations for enhanced intersections, including the future Meats Avenue interchange at SR-55. Although most of Orange is already built out, most remaining developable land is located in the eastern part of the City. New development in east Orange will require construction of new roads to provide circulation and traffic flow to residents and businesses. Land Use Element policies enabling reuse and redevelopment within established portions of the City, particularly within the focus areas, may also necessitate roadway widening and intersection enhancements. The City will continue to collect funds for necessary circulation system capital improvements through a program that sets up a fee structure for all new development and redevelopment projects. This program will require developers to pay their fair share for transportation system improvements required by new projects. The City will use the annual seven-year Capital Improvement Program (CIP) process to prioritize, fund, and complete improvements required to achieve build-out of the proposed roadway system identified in Figure CM-2. Roadway Widening Roadway widening in specific locations will be necessary to obtain new travel lanes. Additional travel lanes may be acquired either by obtaining additional rights-of-way as necessary or by constructing new lanes within existing rights-of-way. Parking restrictions may be applied to allow additional lanes to be provided within existing rights-of-way. ORANGE GENERAL PLAN CM-14 CIRCULATION AND MOBILITY Old Towne Street Network The Old Towne street network is a clear example of Orange's grid street pattern. Parallel roadways have been established in both the north-south and east-west direction to distribute traffic evenly. The Plaza area at Glassell Street and Chapman Avenue is a unique feature that creates discontinuous traffic flows along these two primary roadways. However, no plans have been made to modify the National Register-listed Historic Plaza to increase its traffic carrying capacity. ORANGE GENERAL PLAN CM-15 l City of I 1 r+T... mi.:: .. e .o. City of Anaheim j f 4Ez _1. Anaheim i i Q Ail ``" L. 1 ;ova p I1 t '` ii i"` f•y / #_moo 1 ! 'ill,: K Cit bf. - likky- Meats •nue j a } j pO`" Interchange_. Villa ark IC re,":" 7 41 k ..,,,,,,,* ./.../ 41111:Witork, _. • e, ._-iii, I TNT 1‘ 11: 1411111111 11 it fl '. t1 t a..AV. 4 1 tf t „ - :vt LIlidriet1Itys I_ c ems c: - :,.. t.1 iiiimill 1 i 1114.‘../..\. ,,..(-.7 .-,,. .,411. i .: • s... 1 d '• '",---.-- pp..,' -„,---:.- --,„ wilco r... , / I e o e,6f,.o,e„.K.l f tI City of I _ 55 1 J P A T 4 1 Santa Ana ' 1 f_ I j i s t LEGENDk.Proposed Roadways r! y L_._i Planning Area Critical Intersections i/ i••1• •• Smart Street(6-8 lanes divided) L=7 Sphere of Influence t.V. •N.• Principal Arterial(8 lanes divided) rCityBoundaryf t Surrounding Cities Major Arterial(6 lanes divided) I[ i ` Highways Primary Arterial(4 lanes divided) 7F Meals Avenue Interchange V 7/ i Secondary Arterial(4 lanes undivided) 0 Critical Intersection i' Railroads Collector Street(2 lanes undivided) 1Q] H 0.--, ~Mras Roadways Outside of Planning Area 1 JJ a 02 0.A 0.e 0.S Figure CM-2 City Master Plan of Streets and Highways GPA 2014-0001 (12/8/15) GPA 2010-0001 (8/10/I0) CM-15 This Page Left Intentionally Blank) CM-16 ter CIRCULATION AND MOBILITY In light of these conditions, parallel roadways such as Almond Avenue, Palmyra Avenue, Lemon Street, Olive Street, Shaffer Street, Grand Street, Palm Avenue, and Maple Avenue will continue to serve as local collectors around The Plaza. Metropolitan Drive Extension Extending Metropolitan Drive behind the University of California, Irvine(UCI) Medical Center will help facilitate the movement of north-south traffic near The Outlets at Orange shopping area, improve access to Interstate 5 (1-5), and relieve congestion on The City Drive. Metropolitan Drive will be extended from The City Drive/State College Boulevard to the Metropolitan Drive/Rampart Street connection. Critical Intersection Program Intersections serve as traffic control points for the circulation system, regulating the flow of vehicles along City streets and sometimes limiting the capacity of the system. In the long term, system capacity and efficiency can both be increased if intersections are designed to handle future anticipated traffic volumes. Typically, the design of the roadways forming an intersection dictates the intersection configuration. Department of Public Works standards indicate that a left-turn pocket may or may not be provided, depending on traffic volumes through the intersection. However, one pocket may not be adequate to handle vehicles during peak hours. Traffic may back up into a through travel lane, resulting in congestion at the intersection and at other locations along the roadway. One way of providing additional intersection capacity at critical locations is through the use of special intersection configurations known as "critical intersections." Critical intersections deviate from typical City design standards by increasing the number of lanes at an intersection beyond what typically would be required. By increasing capacity at the intersection,the circulation link increases overall system capacity. The Master Plan of Streets and Highways (Figure CM-2) identifies the locations of critical intersections within Orange. A list of these intersections and diagrams depicting their geometries are on file in the Public Works Department. Regional Roadway System The City's local circulation network is connected to an efficient regional circulation system. Figure CM-2 shows the freeways that traverse the Orange planning area. The Santa Ana Freeway (1-5) provides interstate and regional access to the City. In addition, SR-57, SR-55, and SR-22 all provide connections to the City from northern Orange County and neighboring Los Angeles County, San Diego County, Riverside County, and San Bernardino County. SR-91 and SR-241 provide additional, more limited freeway access. SR-241 is a toll facility controlled by the Transportation Corridor Agency(TCA). 1-5 is a northwest-southeast freeway that passes through the southwest corner of the City, and provides direct access to Los Angeles County to the north and San Diego County to the south. 1-5 has two interchanges within Orange—one located at its junction with SR-57 and SR-22 (commonly known as the Orange Crush) and the other at State College Boulevard/The ORANGE GENERAL PLAN CM-17 CIRCULATION AND MOBILITY City Drive.The junction at the Orange Crush currently has the most severe congestion,which directly affects the roadway system in the City. With projected future growth in Orange and in the region, traffic flow at this junction is expected to worsen. The City will continue to work with and support the efforts of local and regional agencies to mitigate the increased traffic congestion in this area. SR-9i is an east-west freeway that provides access to key arterial facilities in Orange, including interchanges at Tustin Street and Glassell Street. SR-91 also provides regional access through interchanges with SR-S5 and SR-57 and SR-241. SR-22 is an east-west freeway that crosses through the southern portion of the City. Five SR- 22 interchanges are located in the City, at Tustin Street, Glassell Street, Main Street/La Veta Avenue, Bristol Street,and The City Drive. SR-55 is a north-south freeway that passes through the center of Orange, and provides access to the coastal communities of Orange County. SR-55 has four interchanges in Orange, located at Lincoln Avenue, Katella Avenue, Chapman Avenue, and SR-22. An additional future interchange at Meats Avenue is contemplated within this General Plan. SR-S7 is a north-south freeway that originates at the junction of 1-5 and SR-22 and extends to San Dimas in Los Angeles County. It provides access for the eastern parts of Los Angeles County, and central and northern parts of Orange County. SR-57 has three interchanges in Orange, at Chapman Avenue, Orangewood Avenue,and the junctions of 1-5 and SR-22. The Eastern Transportation Corridor (SR-241) is a north-south toll facility located in the eastern portion of the planning area. This facility provides direct access to east Orange. SR- 241 has three toll lanes in each direction and provides regional access through an interchange at Santiago Canyon Road. Consistency with County Master Plan of Arterial Highways Maintaining consistency with the County's Master Plan of Arterial Highways (MPAH) is required in order to ensure that the City's circulation system develops in a manner that promotes regional mobility. At a practical level, consistency is also required in order for the City to receive transportation funding under Measure M, also known as OC Go. Orange's Master Plan of Streets and Highways(Figure CM-2)is generally consistent with the MPAH. While the City's Master Plan of Streets and Highways has been consistent with the County MPAH to maintain funding eligibility, both the City of Orange and OCTA have the goal of a realistic and implementable MPAH. A desire of the City is to work with OCTA to downgrade La Veta Avenue between Glassell Street and Cambridge Street from a Secondary Arterial to a Collector Street to reflect physical constraints related to historic buildings and features in the Old Towne National Register Historic District. To initiate the MPAH amendment process, a local agency must submit a written request to OCTA describing the amendment requested and provide documentation to support the basis for the request. A copy of the request must be submitted concurrently to the City Managers of adjoining cities. For the facilities under consideration, this would require a letter to be forwarded to the City of Santa Ana. ORANGE GENERAL PLAN CM-18 terAose CIRCULATION AND MOBILITY Once the initial request is forwarded to OCTA, a conference between the City of Orange, OCTA, and potential affected jurisdictions is held to determine whether mutual agreement exists for the MPAH amendment. If mutual agreement exists, then Orange is expected to proceed with adopting this revision to the Circulation & Mobility Element. Upon adoption, the City of Orange would submit the Circulation & Mobility Element to OCTA and request OCTA Board approval of the Orange County MPAH amendment. Public Transportation Effective regional transportation strategies are required to successfully implement City and County plans for accommodating future growth. Such strategies must link the City of Orange with other regional employment and commercial centers, as well as airports and other transportation hubs, and should fully integrate alternatives to the automobile. Alternative modes of transportation, including public transportation, bicycling, and walking, are important components of a comprehensive circulation system. These modes of transportation also help reduce air pollution and road congestion. Public transportation plays a key role in future land use development and mobility. As the roadway system reaches capacity, alternative modes of transportation provide additional capacity as well as an enhanced degree of mobility for residents, workers, and visitors. Existing services are expected to continue while enhancements, many of them currently in the planning stages, will increase the viability of alternative modes of travel. The integration into the circulation system of alternative modes of transportation, such as bus, rail, bicycle, and pedestrian, is essential to maximizing mobility opportunities for residents, workers, and visitors. Bus Service OCTA provides public bus service for the City of Orange. In addition, the Riverside Transit Agency (RTA) provides long-distance service between The Village at Orange and the Downtown Terminal in Riverside. Table CM-4 identifies local bus routes that connect various activity centers in Orange to each other and to the region. Table CM-5 shows the different community,station link, and inter-or intra-County routes that serve Orange. Community routes are express bus routes that provide faster connections to activity centers within and outside Orange County. Station link shuttles provide services between the Orange Transportation Center(OTC) and Orange. Both community and station link routes operate only at peak commuter times. In addition to the fixed-route service, OCTA also offers several types of specialized community transportation services, such as standard service (curb-to-curb service), door-to- door service, subscription service, and same-day taxi service. Some of these services cater to senior citizens and people with disabilities residing in the City. OCTA has forecast bus ridership to increase by approximately 75 percent by 2o3o. Some of this ridership increase will be the result of enhanced services, including express bus routes and introduction of bus rapid transit service. Much of the increase will be driven by increased arterial and freeway congestion levels in conjunction with improved local bus service. EMPLIR ORANGE GENERAL PLAN CM-19 AM IOW CIRCULATION AND MOBILITY Convenient, accessible, frequent, and easy-to-use public transit is a cornerstone element of the proposed land use plan. Planned mixed-use residential and commercial areas and intensified commercial and professional office corridors must be coupled with increases in transit service. Orange's land use plan features mixed-use districts that strategically concentrate population density near alternative transit facilities, such as the OTC in Old Towne, transit hubs at The Outlets at Orange and South Main Street, and the Anaheim Regional Transportation Intermodal Center (ARTIC) station in Anaheim near the City's western boundary at Katella Avenue. Table CM-4 Local Bus Routes Route# Route Type Route Service Service Corridors Key Orange Activity Centers Served 24 Local Fullerton-Orange Malvern Ave./ The Village at Orange Chapman Ave./ Lincoln Park and Ride Tustin St.. 42 Local Orange-Seal Beach Lincoln Ave./ The Village at Orange Los Alamitos Blvd./ Lincoln Park and Ride Seal Beach Blvd. 46 Local Los Alamitos-Orange Ball Rd./ The Village at Orange Taft Ave. Lincoln Park and Ride 47 Local Brea-Newport Beach Brea Blvd./ Theo Lacy Jail Anaheim Blvd./ Orangewood Children's Home Fairview St. UCI Medical Center The Block at Orange 5o Local Long Beach-Orange Katella Ave. The Village at Orange Lincoln Park and Ride 53 Local Brea-Irvine Main St. Batavia Industrial Parks Children's Hospital-CHOC St.Joseph's Hospital OCTA Offices 54 Local Garden Grove-Orange Chapman Ave. Orange Civic Center Orange Transportation Center The Plaza UCI Medical Center The Block at Orange Rancho Santiago Community College 56 Local Garden Grove-Orange Garden Grove Blvd. Orange Transportation Center OCTA Offices Children's Hospital-CHOC St.Joseph's Hospital 57 Local Brea-Newport Beach State College Blvd./ The Block at Orange Bristol St.UCI Medical Center Theo Lacy Jail Orangewood Children's Home 59 Local Brea-Irvine Kraemer Blvd.I Orange Transportation Center Glassell St./ Chapman University Grand Ave./ Orange Plaza Von Karman Ave. ORANGE GENERAL PLAN CM-20 CIRCULATION AND MOBILITY Table CM-4 Local Bus Routes Route# Route Type Route Service Service Corridors Key Orange Activity Centers Served 7 Local Yorba Linda-Balboa Tustin St./ The Village at Orange Red Hill Ave./ Lincoln Park and Ride Newport Blvd. Source:Orange County Transportation Authority,zoo6 Table CM-5 Community,Station Link, Intra-and Inter-County Bus Routes Route# Route Route Service Service Corridors Key Orange Activity Centers ServedType 131 Community Yorba Linda-Orange Lakeview Ave./ The Village at Orange Riverdale Ave./ Lincoln Park and Ride Tustin St. 147 Community Brea-Santa Ana Raiit St./UCI Medical Center Greenville St./ The Block at Orange Fairview St. OCTA Offices St.Joseph's Hospital Children's Hospital-CHOC 167 Community Anaheim-Irvine Santiago Blvd./ The Village at Orange Hewes St./ Lincoln Park and Ride Bryan Ave. 453 Station Link Orange Transportation Chapman Ave./ Orange Transportation Center Center St.Joseph's Hospital Main St./ Children's Hospital-CHOC La Veta Ave. St.Joseph's Hospital OCTA Offices 213 Intra County Brea-Irvine Express SR-55 Lincoln Park and Ride The Village at Orange 757 Inter County Diamond Bar SR-57 UCI Medical Center Santa Ana Express The Block at Orange RTA 149 Inter County Riverside-Orange SR-91 The Village at Orange Operated by RTA) Downtown Riverside Source:Orange County Transportation Authority and Riverside Transit Agency,2o06. The City recognizes that ridership of both the bus and rail transit systems will increase, and has designed a land use plan that both enables and accommodates increased transit use. A large part of the City's role in accommodating additional transit use includes providing convenient and attractive transit amenities and streetscape features that improve user ememummistaw rum. s ORANGE GENERAL PLAN CM-21 r CIRCULATION AND MOBILITY comfort and perception of safety, thus encouraging transit use. Transit-oriented Development (TOD) design features will be encouraged in major commercial and employment areas within the City, such as the Town and Country Road corridor, South Main Street, Katella Avenue, Uptown Orange, and Old Towne. Such TOD features may consist of streetscape measures such as bus turn-outs, benches, trash receptacles, shelters from wind and rain, and lighting. TOD features may also be more fundamental to the permitted uses and design within projects, such as incorporating child care centers, convenience stores, or personal services within the retail component of mixed-use projects, or near professional office concentrations. These and other measures help to make the transit system more accessible to a wide range of people. The City will continue to work with OCTA to pursue expanded community circulators, such as the current Station Link service, that will connect people to rail transit, employment centers, residential areas, and commercial corridors. Additional options, such as jitney services that function as group taxis,will also be explored. The City will also continue to support OCTA initiatives and services that promote the mobility of Orange's senior, disabled, and youth populations. To accommodate the needs of these groups, the City will continue to work with OCTA to offer para-transit services, and will seek ways to improve mobility for Orange youth through transit. The City of Orange will continue to cooperate with OCTA and other regional providers to establish new bus routes and stops, and to provide transit amenities. New subdivision plans will be reviewed by OCTA to assess impacts on bus services, and to examine the need to provide bus stops or bays. Orange will also work with OCTA to maintain and, if needed, expand successful transfer stations in Old Towne, the Village at Orange, and The Outlets at Orange. Rail Transit Many current passenger and commuter fixed-rail transit options in the City will be expanded in the future, offering significant alternatives to automobile transit for many individuals who commute to or from the City for housing or employment. Rail transit now has a proven track record in Orange, and Metrolink seeks to expand rail services in support of land use transformations near current and future rail stations. Metrolink Metrolink operates seven commuter rail lines in Southern California, two of which pass through Orange. The Orange County Line offers direct connections to Union Station in Los Angeles to the north and to Oceanside to the south. The Inland Empire—Orange County Line provides direct connections to Riverside/San Bernardino to the east and San Juan Capistrano to the south. Roughly 3o Metrolink trains pass through the City on a daily basis. The Metrolink station in Orange is located three blocks from The Plaza at the OTC, close to a variety of stores and civic uses in Old Towne. A much-anticipated rail service improvement is intra-county rail service along the County's core transit corridor. This service, which will be provided by Metrolink on behalf of OCTA, is an attempt to provide intra-county trips with a high degree of reliability. This 3o-minute moommoutav ORANGE GENERAL PLAN CM-22 ams. CIRCULATION AND MOBILITY service is planned to operate between the Irvine Transportation Center(and possibly Laguna Niguel) and the Fullerton Transportation Center throughout the day to supplement Metrolink's peak period commuter service. The City recognizes that plans to increase daily service on the current Metrolink lines, improvements to the OTC, and future expansion of Metrolink services to new destinations would be beneficial to Orange by providing multi-modal transportation options for people living and working in the community,thus reducing auto dependence for business and leisure purposes. Anaheim Regional Transportation Intermodal Center The Platinum Triangle, which borders Angel _ Stadium in the City of Anaheim, proposes a variety of high-density multiple-family high-rise 61 I ink 1 housing, office space, and commercial uses. r. 4,14 4 *. ARTIC is located adjacent to the proposed ` fl ;/ j # (/ development, between Angel Stadium and the r sf, Honda Center. ARTIC is a major regional rh I transportation center similar in scale to Union Station in Los Angeles and Ontario International Airport in Ontario. The intermodal center is be a stopping point for r Amtrak, Metrolink, buses, and future high- speed rail systems that connect to Ontario Airport, Las Vegas,and the Bay Area. The City of Orange will coordinate with the City of Anaheim, OCTA, and others to ensure that the City is able to take full advantage of the regional mobility benefits offered by ARTIC. Potential benefits offered to the City by ARTIC include: a dynamic mixed-use commercial and residential center at the westernmost end of Katella Avenue; and bicycle and pedestrian connections to the Santa Ana River. California High Speed Rail Corridor The California High-Speed Rail Authority was established as a state agency in 1996 to direct the planning, design, construction, and operation of a future high-speed train system extending from Sacramento, San Francisco, and Oakland in the north to Los Angeles and San Diego in the south. This high-speed train is proposed to stop at ARTIC. OCTA estimates that by 2025, the California High Speed Rail Corridor will serve between i5o,000 and 230,000 passengers each week. Sidewalks , Trails and Bikeways Walking and biking contribute to a healthy community, and play increasingly significant roles as alternatives to the automobile. The City recognizes this by providing and maintaining sidewalks,trails, and bikeways to support pedestrians and cyclists. Ammararifftworardsz ORANGE GENERAL PLAN CM-23 7sormimir te CIRCULATION AND MOBILITY Pedestrian Facilities In addition to providing basic transportation routes, sidewalks and pathways offer the opportunity to create appealing public spaces that reflect community pride and invite people to walk. Proposed mixed-use areas and reinvigorated commercial areas throughout the City will provide new and reinvented spaces for people to walk and shop. Walkability and access are essential components of a circulation system that easily and specifically accommodates pedestrians. Features that contribute to walkability include wide sidewalks, safe street crossings, design elements that encourage cautious driving, and a pleasant and safe walking environment. Sidewalks, walkways, well-designed pedestrian crossings, pathways, and pedestrian short-cuts allow people to get from one destination point to another with ease. Dedicated pedestrian paths can provide access between residential and activity areas, especially if streets do not connect. Access strategies for school children, seniors, and people with disabilities should also be incorporated into street and sidewalk plans. The City supports proactive integration of pedestrian improvements and amenities within the circulation system to improve walkability. The City will create and implement a pedestrian-oriented streetscape master plan addressing key commercial corridors, including Tustin Street, Chapman Avenue, Main Street, Lincoln Avenue, and Katella Avenue. The master plan will address all functional aspects of the pedestrian environment. It will identify pedestrian links that need improvement and strengthening, determine new pedestrian links to underserved areas, ensure adequate sidewalk widths to accommodate lighting and street trees, develop sidewalks in the industrial area that create links between bus stops, encourage safe routes to schools and recreation facilities, and minimize barriers to pedestrian and bicycle access. Recreational Trails and Bikeways A comprehensive network of recreational trails and bikeways greatly benefits Orange residents and visitors by providing popular modes of transportation for recreation. In addition to recreation activities, the City also supports walking and bicycling as viable commute alternatives to the automobile. The City's plan for recreational trails and bikeways is shown in Figure CM-3. The plan includes trails maintained by the County and private homeowners associations, and is consistent with the OCTA Commuter Bikeways Strategic Plan. It is also consistent with the County's major riding and hiking trails and off-road paved bikeways. As described in the Vision for the Future, the plan will enable the City to connect parks to activity centers and residential areas using a combination of recreational trails and bikeways that truly allows people to travel from place to place within the City without needing an automobile. Recreational Trails As shown in Figure CM-3, over 7o miles of existing recreational trails are located within the City, connecting a large number of neighborhoods and community parks. In addition, io4 miles of proposed future trails are planned throughout Orange on land currently utilized for a variety of purposes, including flood control, railroad rights-of-way, and roadways. ORANGE GENERAL PLAN CM-24 k CIRCULATION AND MOBILITY The City will use the annual five-year Capital Improvement Program (CIP) process to prioritize, fund, and build proposed trail segments identified in Figure CM-3.These trails have been and will continue to be constructed and administered through cooperative efforts of the City, County, developers,and private homeowner associations. Desired cross-sections for recreational trails are identified in Figure CM-4. The City may require construction of portions of proposed trails identified in Figure CM-3 as a condition of development approval for projects located adjacent to the proposed trail alignments. Funding for recreational trails and associated restoration projects comes from a variety of federal,state, and regional sources. Priority for funding of trail improvements will be given to projects that complete loops within the system, provide missing links for regional and local trail systems, or serve as destination links to schools, parks, retail businesses, or regional trails. Priorities for the recreational trail system include: trail connections to the Santiago Oaks Regional Park extension west of Cannon Street, consisting of a connection between Calle Grande and Cannon Street,and the Jamestown trail from the Orange Park Acres equestrian arena to Cannon Street; trail connection from Serrano Avenue near Fred Barrera Park to Santiago Oaks Regional Park; Mabury Ranch Trail connection from the proposed Cerro Villa Park to the Santiago Oaks Regional Park; Serrano Avenue connection near Cannon Street;and Additional trail connection into Santiago Oaks Regional Park from Orange Park Acres. To increase the number of people using non-vehicular means of transportation, the City will encourage putting in place a safe network of crosswalks, grade separations,and walkways to ensure the safety of pedestrians, bicyclists, and equestrians. Where appropriate, traffic calming devices and methods such as median landscaping and provision of bike or transit lanes should be used to slow traffic, improve roadway capacity, and address potential safety issues. The City will continue to work towards improving the overall condition, appearance, and safety of both medians and sidewalks in Orange. Bikeways Orange's relatively mild climate permits bicycle riding year-round, and the growing popularity of bicycling has drawn enthusiasts onto the streets and bike trails throughout the City.The plan for recreational trails and bikeways (Figure CM-3) shows the .-- planned system of bikeways within the City. The Orange Bikeway Master Plan has established three classes of bicycle 1 ORANGE C'- CIRCULATION AND MOBILITY routes that adhere to California Department of Transportation(Caltrans)standards: Class I Off-road bike paths are located on vacated rail lines,water corridors,or areas otherwise separated from streets. Class II On-road bike lanes are located along arterial roadways that are delineated by painted stripes and other features. Class Ill On-road bike routes share use with motor vehicle traffic.They provide a route that is signed but not striped. ORANGE GENERAL PLAN CM-26 44 CULTURAL RESOURCES and demolition permits. To increase awareness of historic resources and reduce potential harm to such resources, the City will establish a system to ensure that review and approval by Community Development Department staff and/or the DRC must take place before the whole or partial demolition of certain types of buildings. Such buildings would include those surveyed as potential historic resources in the Orange Inventory, those listed in the Historic Register, or those previously unevaluated properties within a designated historic district or Neighborhood Character Area that are more than 45 years old. Current ordinances may require amendment to incorporate preservation goals. Maintenance and Rehabilitation The City will work with property owners to ensure that potential historic resources in the Orange Inventory and listed historic resources in the Historic Register are maintained in good repair and that property owners take steps to prevent severe deterioration or demolition caused by neglect. Incentives for maintenance and rehabilitation may include grants and low interest loans, property tax relief, and other benefits to owners of listed historic resources to encourage affirmative, active maintenance. The Mills Act program will be expanded to include listed historic resources in the Historic Register, Eichler tracts, and other potential historic resources when those properties are designated. The City will also develop disincentives for not maintaining inventoried potential historic resources or listed historic resources, including penalties and fines for lack of maintenance upon serving of notice. Additional provisions may also be made for vacant and vandalized inventoried potential historic resources or listed historic resources. Such provisions may include barricading and protection. The City supports contemporary uses that require minimal change to defining physical characteristics of potential or listed historic resources, especially adaptive reuse projects that meet contemporary needs, including housing or commercial uses. To achieve these objectives, the City will prepare, implement, and update design guidelines and/or standards for districts containing potential or listed historic resources. The City will identify smaller character areas where concentrations of potential or listed historic resources reflect unique senses of time and place. In some instances this character may be manifested in utilitarian or decorative features, such as agricultural irrigation implements, decorative curbing, and stone neighborhood monuments. The City will develop guidelines for preservation of that character in buildings,structures, landscape,and other site features.The City will also continue to maintain publicly-owned potential and listed historic resources. Alternatives to Demolition The City will work with local preservation organizations and property owners wishing to demolish potential or listed historic resources to identify potential alternatives to demolition, and will explore alternatives, including building relocation and sale or transfer of ownership, prior to demolition of privately- or publicly-owned historic resources. Furthermore, the City will consider updates to current demolition ordinances to protect potential or listed historic resources. Ervi ORANGE GENERAL PLAN CR-32 IVCULTURAL RESOURCES Orange Register of Historic Resources The City will create a Local Register of Historic Resources (Historic Register)which will serve as a local register of historical resources under CEQA. The criteria for listing in the Historic Register will be the same as for listing in the CRHR, as such criteria may be updated from time to time by the State of California. To be listed in the Historic Register, a property or district must demonstrate eligibility under one or more of four basic significance criteria, be representative of at least one theme identified in the Historic Context Statement, and retain substantial integrity. Upon establishing the Historic Register, all previously evaluated resources that have been designated or officially determined eligible for listing in the NRHP and/or CRHR will be automatically listed in the Historic Register. The Historic Register will include all contributors to NRHP- and/or CRHR-listed historic districts, as well as individual resources listed on the Historic Register and contributors to listed local historic districts. Notwithstanding the foregoing, "historical resource" for the purposes of CEQA means "historic district" in the case of a contributor to an historic district. The City will expand upon existing procedures for designation of local resources to expressly include separate or individual resources, structures, objects, sites, as well as districts and archaeological resources. Resources identified as potentially eligible in the Orange Inventory may be listed in the Historic Register if they meet the criteria noted above. Specifically, the City intends to pursue Historic Register listing for the approximately 6o potential individually eligible resources identified in the reconnaissance survey accompanying the General Plan update and shown on Figure CR-2. The City will also expand upon the existing procedure for designation of local historic districts. The procedure for designation of such districts should be interactive with property owners, should encourage participation in the listing process, and should include at least one mailing to property owners of record inviting them to public workshops to discuss proposed Historic Register listing. Alterations to or new construction on sites with listed historic resources shall be subject to City staff and/or DRC review and approval as outlined in Section 17.10.090 (Demolition Review) of the Municipal Code, in the Historic Preservation Design Standards for Old Towne updated 2017), the Eichler Design Standards (adopted 2o18), in the City's Local CEQA Guidelines(updated 2020), or in other adopted design standards. Until such time as an Historic Register is established, the City will use the Orange Inventory only to the extent that potential historic resources surveyed, listed in, or eligible for listing in the CRHR have been identified. Once the Historic Register is established,the City will use the Historic Register to identify historic resources for purposes of CEQA, NHPA, and National Environmental Protection Act (NEPA) review of proposed projects. Historic resources listed in the Historic Register shall have a presumption of significance pursuant to CEQA Section 21o84.1 and shall be treated as historic resources under CEQA. Historic Resource Management The City will expand DRC and Community Development Department staff authority to administer the Orange Inventory survey, Historic Register listings, design review procedures, ORANGE GENERAL PLAN CR-31 Note:Information about Individual resources is available in the City of Orange zoio Historic Resources Inventory at the Community Development Department CR-31 Figure CR-2.Resources Recommended for Designation This Page Left Intentionally Blank) CULTURAL RESOURCES r-tn:e - l,• •" N. 1.. Anaheim t 41 1 g If %, I..1.f.11~ MINI AVE 1'* I vl t— I I /\\ / 1.147 l':".161s E l City of R I\f,, %l f 1, Vi la Park irnME 1.-- 3—• ,...••••' ,—.. j..'7 FAA.. I 1 1w_, -.....srJ. 1_ i`i, '`c i I'. 'AR 55 ram. • o .; r I 241 to J , I 1 ----• s 1.42 J i a1lFIt Li I b . j r u1n•+w.l ..I 6,; v u1n1 e. 1 I f,` . v .`•Y. wt.+ 1`f 2/:el r T I pp.t M.' vriuturuni .:1%, • • '`•\''> f.'-- - A` 22 •,r••i L• 1/ J M I. w,.,..e. 11 ICJ' 5 r l I wnn" y 1 z c: li- yof ME ir-. - 11 lif/ I Santa Ana ! ', I I E a l fi za moo . 1 f'; I-i i/261 1 1•. LEGEND Currently Designated Resources Potentially Eligible Indvidual Resources Proposed Local Historic Districts J Planning Area National Register of Historic Places a National.State.and Local Register Eichler Fairhaven Tract t E 1 Sphere of Influence Old Towne Orange Historic District State and Local Register Eichler Fairhilis Tract i City Boundary Eichler Fairmeadow Tract t% tt8 Q Plaza Historic District I 1 Surrounding Cities Pr N hborhood Conservation Areas(NCAs) Highways II Individual National Register Listed Resources oP°S B Cypress Street Barrio 1 / F Railroads Local Historic District ir H 7==_—'l=emu.. El Modena Neighborhood i L—Old Towne District o an as ate t Railroad/Packinghouse Neighborhood I. r 1 iiMMMININIIIMIIIIIMMI I. reira.-Zc ORANGE GENERAL PLAN CR-30 1-67:1i91 a ; L 413.t /` / ..MN4 t City of i t ,t PtwN i. Anaheim 1 it if c_y i \ ‘1, s.,:„ r-.•w F City of j\ 1` Villa Park j r''''1 i ; Ill TNT AWL i Mi ,J'-,.-,.. ,y,s . . t i t wm"°°°"" vos^o , ,., tE s. r ll PIM di t., (i imam ram- f' ? I 1 oausp<a „ i fI d a yL 1 V rniE ••AVE____I 1 re t i.. OAR I i .. 1. .... L.....N..4 3 ...,,,::...."-----..,.-.'''.•- . • to- L y i / 1/.' ' cr,re I r.'-'j n gyp;/ 1.;" i l. l 1.ur' wnAa w Avr. 4.1 1 loAr,rAcwu•vc. t II i r// If City of 5 I• I— n f ?1 I 1 k Santa Ana LJ i 1 $ r w LEGEND Currently Designated Resources Local Historic District Potentially Eligible Individual Resources V CD Planning Area National Register of Historic Places I Old Towne District National,State,and Local Register r@;\` S l__1 Sphere of Influence Old Towne Orange Historic District l-1 Eichler Fairhaven Tract State and Local Register d' City Boundary O Plaza Historic District Q Eichler Fairhills Tract Proposed Neighborhood Conservation Areas(NCAs)N i•"• Surrounding Cities individual National Register Eichler Fairmeadow Tract 0 Cypress Street Barrio Highways Listed Resources Q EI Modena Neighborhood la... 1 Railroads Q Railroad/Packinghouse Neighborhood OI!I I: I :Maas: 0 0.25 0.5 0.75 I Note:Information about individual resources is available in the City of Orange 2010 Historic Resources Inventory at the Community Development Department Figure CR-2. Local Historic Districts and Resources Recommended for Designation CULTURAL RESOURCES statements document themes significant to community history and culture, and can be used both to educate the community regarding the significance of places and times in Orange's past and to identify,document,and evaluate the significance of historic resources. The City will formally recognize the historic context statement prepared in conjunction with the Cultural Resources & Historic Preservation Element, and will use the statement as a tool to evaluate potential historical resources. The City will also update the statement on an ongoing basis through collaborative partnerships with local organizations and universities. ORANGE GENERAL PLAN CR-27 44, CULTURAL RESOURCES uses. According to previous historic resource surveys, several late 19th century farmhouses still exist in areas that would have been the outskirts of the original City core and in dispersed locations throughout Orange. These farmhouses, and any original outbuildings that remain on each property, are among the only tangible resources that remain to denote Orange's significant history as an agricultural community. While the City has surveyed many of the individual farmhouses, regulations tailored to preservation of these resources are needed to ensure that these remnants of Orange's early citrus history retain their integrity and receive appropriate community recognition La Morenita Around 1929, a small western false-front market was constructed by the Moreno family, one of the oldest families currently living in El Modena.The market, called La Morenita, still exists on the corner of Washington Avenue and Earlham Street. The building was constructed at a time when many Mexican-American El Modena families worked in packinghouses and orchards in the nearby neighborhoods of Villa Park, Placentia, and Orange. A market like La Morenita provided necessary household and personal items for the surrounding Mexican- American community.As an important symbol of El Modena's Mexican-American heritage, La Morenita is also eligible for listing on a local register. Preservation Tools A variety of preservation tools are available to assist the City in identifying and preserving potential and listed historic resources. Orange Inventory The City will continue to maintain an accessible and periodically updated inventory of potential historic resources.All surveyed properties will be included in the City's Inventory of Historic Resources (Orange Inventory), and the Orange Inventory will be a valuable planning tool to be used in evaluating possible impacts a proposed project might have on previously evaluated potential and identified historic resources. Properties to be included in the Orange Inventory include those that have been surveyed, but that may not have complete documentation as to their historical,cultural, or architectural significance. The City will formally recognize the architectural and archaeological reconnaissance survey prepared in conjunction with the Cultural Resources&Historic Preservation Element, and will incorporate the findings into the existing Inventory. The Orange Inventory serves as a valuable resource for consideration of potential historically significant resources when undertaking environmental review for projects. Historic Context Statement Historic context statements have been prepared for the City, as well as for several individual neighborhoods within Orange, in tandem with this General Plan update'. Historic context statements document themes significant to community history and culture, and can be used both to educate the community regarding the significance of places and times in Orange's past and to identify,document, and evaluate the significance of historic resources. These historic context statements are on file in the Community Development Department and are available on the Historic Preservation page of the City website. ORANGE GENERAL PLAN CR-26 CULTURAL RESOURCES jigsawn ornamentation, particularly around the porch, windows and entry. Prior to World War I, residential styles evolved to include Classical Revival, Craftsman and Bungalow, and Mediterranean Revival examples. Eichler Homes Between 1949 and 1974,Joseph Eichler built about 11,00o homes in California, including 575 in Southern California, of which 339 are in Orange. Once a successful butter-and-egg wholesaler in New York, Eichler drew inspiration for his change in profession from his time renting Frank Lloyd Wright's Bazett House.Wright's Usonian building principles,which included integration with the natural landscape,the use of indigenous materials,and an aesthetic to appeal to the common man," inspired Eichler to incorporate similar principles into his suburban tract homes. For over two decades, Eichler Homes would employ streamlined production methods, specialized construction materials, an innovative marketing campaign, and one of the first non-discriminatory suburban housing policies in the country to change the shape of America's suburbs. The 339 Eichler homes in Orange provide a unique opportunity for the City to recognize some of its lesser known historic neighborhoods. The three Eichler tracts (see Figure CR-2) include Fairhaven, constructed in southeast Orange from 1960-1962; Fairmeadow, constructed in north Orange in 1963; and Fairhills, constructed in east Orange from 1963-1964. They typify the eclectic mix of Eichler's California-modern aesthetic, and his affinity for high-quality, architect-designed "modernism for the masses." The residences in all three tracts remain largely unaltered and are a source of great pride for residents. Orange's Eichlers attest to the high quality of materials and craftsmanship California and Local Register Criteria used in Eichler homes, and serve as a 1) The resource is associated with events that reminder of early suburban integration in have made a significant contribution to Southern California. Due to their broad patters of local or regional history or architectural significance and integrity, the cultural heritage of California or the these three tracts appear to be eligible for United States. listing as historic districts in local, state, and 2) The resource is associated with the lives of national registers. In 2018, City Council persons important to local,California or designated the three tracts as local historic national history. districts. 3) The resource embodies the distinctive characteristics of a type,period,region,or Individual Resources method of construction or represents the work of a master or possesses high artistic Certain resources are worthy of protection value. as individual resources. These properties 4) The resource has yielded,or has the may be significant because of their relative potential to yield,information important to rarity, notable architecture, links to cultural the prehistory or history of the local area, California or the nation. history, or their association with significant people.Two examples are discussed below. Farmhouses In its early years, Orange flourished as a farming community. The Plaza and downtown were dwarfed by surrounding expanses of citrus groves. Many residents lived on farms that stretched in all directions. With modernization and growth, most of the area's citrus groves and associated farms have been subdivided and redeveloped for residential or industrial ORANGE GENERAL PLAN CR-25 CULTURAL RESOURCES Illit•gair not have a Historic Preservation Ordinance. By combining historic district designation with design standards, design review, and preservation incentives, the historic character of Old Towne has been maintained and preserved. As part of this effort, the City has developed public programs that provide City residents with a variety of informational tools advertising different options for historic preservation. The City actively promotes the Historic Preservation Design Standards for Old Towne, educates the public regarding architectural styles found in Old Towne, and provides public information on the Mills Act program, which provides incentives that may reduce property taxes on historic buildings in exchange for rehabilitation and maintenance of the owner's historic resource. The Community Development Department makes all of this information available, in addition to preservation maps and brochures, and City staff includes experts who work on historic preservation projects throughout the City. A Design Review Committee reviews building projects throughout Old Towne. Achievements of the Old Towne preservation program have been recognized by the community, and throughout the region. However, other potential historic districts and individual resources within the City do not receive the same attention. The City has a unique opportunity to examine and learn from the Old Towne experience, and to redefine the goals of its preservation program.This Cultural Resources& Historic Preservation Element includes issues, goals, and policies directed at facilitating a comprehensive preservation program. Figure CR-2 presents additional resources recommended for designation within the City. Subsequent portions of the Plan describe intended programs and objectives associated with these resources. Architecture and Community Character The City's original Preservation Element and current historic preservation program focus on preservation of neighborhoods, specifically Old Towne. This approach, which has been extremely successful, does not address the full extent or quality of architectural resources in Orange.The City of Orange, which has evolved and developed over the course of more than too years, contains significant concentrations of properties that reflect a variety of architectural styles,patterns of development,and important cultural history. Old Towne Orange Old Towne Orange, comprising the central Plaza,surrounding commercial buildings, and four adjacent residential quadrants, represents the period of development when the City evolved from pioneer settlement into thriving center of the Orange County citrus industry. Originally settled in the mid- to late-1800s, after the dissolution of Rancho Santiago de Santa Ana, Orange emerged as a robust industrial and commercial center between 1888 and 194o. Citrus and construction-related materials yards, packinghouses, and shipping and receiving businesses all flourished within the three short blocks between the Plaza and Santa Fe rail lines. Development over this 50-year period is represented by distinct styles of architecture, methods of construction, and details of craftsmanship, examples of which have been substantially retained over the ensuing years. Many commercial, residential, civic, and religious buildings from Orange's early settlement years remain today, in addition to Plaza Square, developed in the 188os. Early homes were built in the Victorian or Queen Anne style, characterized by a vertical emphasis with simple, mommftmeitaw ORANGE GENERAL PLAN CR-24 CULTURAL RESOURCES Policy 4.4: Celebrate the cultural history of the community by increasing community awareness through the design features of public projects and facilities such as parks, plazas, and community buildings. Policy 4.5: Encourage private development to celebrate the cultural history of the community through project design. Policy 4.6: Provide additional resources and promotion for the Orange Public Library Local History Collection. Library Services The Orange Public Library has been providing library services to residents since 1885. The Library has always played a central role in the development of civic life in Orange, and continues to do so today and in the future through its presence as both a formal and informal community gathering place.This role will become increasingly important as the population of Orange continues to grow and diversify. GOAL 5.o: Meet the educational, cultural, civic, information, recreation, business, and life-long learning needs of residents through the provision of library resources. Policy 5.1:Continue to expand, coordinate and modernize the City's public library system, ensuring that it becomes the premier information and learning resource for the City to meet the needs of Orange's growing and diverse population. Policy 5.2: Support the strategies and recommendations of the Public Library Facilities Master Plan 2002-2020, and continue to explore new strategies that make the library accessible to all members of the community. Policy 5.3: Work with the community to assess, select, organize, and maintain desired collections of library materials and information sources and make these materials available to the public free of charge to promote information literacy. Policy 5.4: Promote collaborations among community groups, educational institutions and the Library to enhance sharing of information, resources and financial support for library facilities,services and programs. Policy 5.5: Provide friendly and welcoming library facilities that support the creation of both formal and informal neighborhood commons. CULTURAL RESOURCES & HISTORIC PRESERVATION PLAN Orange has traditionally focused its historic preservation efforts primarily on Old Towne. Since 1982, when the City of Orange undertook its first historic resources survey, enacted its first historic preservation element, and established the Old Towne Historic District through a zoning overlay, historic preservation has been a significant factor in the revitalization and economic vitality of Orange's historic downtown. The current process of establishing an historic district is through a zoning overlay as outlined in the Zoning Ordinance;the City does 111111111 ORANGE GENERAL PLAN CR-23 CULTURAL RESOURCES Policy 2.2: Promote community and visitor awareness and education concerning the unique and special history and architecture found in Neighborhood Character Areas. Policy 2.3: Ensure that those qualities that contribute to the historic character of designated Neighborhood Character Areas are retained through application of design guidelines consistent with the local context and key physical attributes of each neighborhood. Incentives and Education Historic resources throughout the City provide opportunities for both rehabilitation and adaptive reuse as commercial,residential, or office spaces. Encouragement and incentives to achieve long-term preservation and context-sensitive reuse of historic buildings will be provided through financial, planning, and zoning tools that assist property owners seeking to rehabilitate and preserve their homes and buildings. Many of these resources also provide opportunities to promote community awareness and support for historic preservation through public education. GOAL 3.o: Provide incentives and expand education efforts for historic preservation. Policy 3.1:Expand education efforts to facilitate and encourage historic preservation and recognition of the City's historic resources. Policy 3.2: Provide incentives to encourage and support historic preservation. Policy 3.3: Actively seek funding for historic preservation activities. Policy 3.4: Leverage recognition of the City's historic preservation program, participate directly in federal and state historic preservation programs, and gain access to designated historic preservation funding. Policy 3.5: Explore additional funding sources for maintenance and rehabilitation of historic resources. Archaeological and Cultural Resources Orange County is rich in human history, with a record of occupation by many cultures. The City recognizes the importance of preserving archaeological resources and making them accessible for educational purposes as a means of understanding our cultural heritage. GOAL 4.o: Identify and preserve archaeological and cultural resources. Policy 4.1:Identify, designate, and protect historically and culturally significant archaeological resources or sites. Policy 4.2: Recognize the importance of Santiago Creek as an archaeological resource. Policy 4.3: Encourage curation of any cultural resources and artifacts recovered in the City for public education and appreciation. ORANGE GENERAL PLAN CR-22 v;* CULTURAL RESOURCES historic resources in Orange. The City seeks to build upon the successes of Old Towne, the Eichler Homes Tracts, and the existing historic preservation program, to use new techniques and technologies to assist in historic preservation, and to prepare for a future wherein an increasing number of resources will qualify as potentially historic. GOAL to:Identify and preserve potential and listed historic resources, including buildings, structures, objects, sites, districts, and archaeological resources citywide. Policy 1.1:Maintain an accessible inventory of designated and potential historic resources. Policy 1.z:Promote community education and awareness of the significance of Orange's potential and listed historic resources. Policy 1.3:Provide long term assurance that potential and listed historic resources will be used, maintained, and rehabilitated in conformance with Secretary of the Interior's Standards for the Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating, Restoring and Preserving Historic Buildings Secretary's Standards). Policy 1.4:Encourage alternatives to demolition such as architecturally-compatible rehabilitation, adaptive re-use, new construction,and relocation. Policy 1.3:Require that no permit for alteration or demolition of properties identified in the Orange Historic Resources Inventory as potential historic resources shall be issued until alternatives to demolition have been duly considered. Policy 1.6:Promote the preservation of cultural and historical resources controlled by governmental agencies, including those related to City, School District, and other agencies. Preserving Historic Neighborhood Character Historic preservation goes beyond protecting a select number of buildings. The overall goal of historic preservation is to link current residents to the City's rich heritage, create a sense of place, and protect architectural context and diversity. Preservation efforts should enhance neighborhoods by rehabilitating individual structures and addressing neighborhood character in areas that are rich in history but that may not retain enough integrity to qualify as local, state, or national historic districts. While they may not have high integrity, these neighborhoods are culturally, historically, and architecturally significant and feature distinct physical and/or architectural characteristics. GOAL 2.o Identify and preserve neighborhoods that are culturally and historically significant but do not retain sufficient integrity for eligibility as a local, state,or national district. Policy 2.1:Encourage identification and listing of Neighborhood Character Areas within the El Modena, Cypress Street Barrio, Railroad/Packinghouse Corridor, and Orange Park Acres neighborhoods. ORANGE GENERAL PLAN CR-21 4 CULTURAL RESOURCES w kt,:; Orange' s Public Library System Orange's Public Library was founded prior to incorporation in -1885, making it one of the oldest public libraries in Orange County. Postmaster Robert E.Tener donated his collection of about 30o books and ran the library as a private organization, using dues from the members to build and maintain the collection. The library itself was housed in the Post Office Building on South Glassell Street. It remained as a private organization until 1894 when it was turned over to the newly-formed City. In igo5, the collection needed a new building and was granted a Carnegie building to house the library on the corner of Center Street and Chapman Avenue, where the Orange Public Library & History Center is located today. In 1961, the original Carnegie building was demolished and a 17,00o square foot building was erected, increasing in size to provide service to an anticipated population of 40,000. An expanded Orange Public Library& History Center opened in 2007. At 45,00o square feet, the library building includes a Children's Library,Teen Zone, Homework Center and a History Center. ISSUES , GOALS , AND POLICIES The goals and policies of the Cultural Resources & Historic Preservation Element address five issues: (1) identifying and protecting historic resources, (2) protecting neighborhood character, (3)providing incentives and expanding education efforts for historic preservation, 4) recognizing and protecting archeological and cultural resources within the planning area, and (5) meeting life-long learning needs of residents through provision of library services. Implementation programs related to these goals and policies are contained in the General Plan appendix. Architecture and Community Character One of the most distinguishing features of Orange is the community's dedication to recognizing, acknowledging, and preserving its past. The NRHP-listed Old Towne Historic District is one of the largest historic districts in California, and provides a strong sense of place in the City and a unique identity within Orange County as a whole. The City recognizes that the architectural strength of Old Towne results from the contextual environment of historic structures, and further recognizes that in some cases, individual structures are best appreciated in a neighborhood context. The City also realizes that some individual structures worthy of protection may not be located within an intact historic neighborhood (for example, historic farmhouses located throughout the City or La Morenita market in El Modena). Historic preservation in Old Towne has been a significant factor in the revitalization and economic vitality of downtown Orange, resulting in increased property values and low vacancy rates. Old Towne preservation serves as a model for other locations within the City. Three mid-century modern Eichler Homes Tracts designated as local historic districts have a distinctive identity and sense of place of their own. As with Old Towne,these neighborhoods have enjoyed strong property values and stewardship, and further enrich the collection of Astomatiew ORANGE GENERAL PLAN CR-20 CULTURAL RESOURCES individual hook ups into the system, it was up to the landowner to install flushing toilets and sinks, and some residents continued to use outhouses for many years after the main sewer line was installed. As outhouses were abandoned, they were often filled in with discarded household debris, creating sealed deposits. These 19th century refuse deposits often contain information on household demographics, cultural heritage traditions, economic status, and other research topics that is not available through written documentation. In Orange, deposits associated with early Hispanic communities, Chinese settlers, German immigrants, religious organizations, and other heritage or belief groups have the potential to provide glimpses of the daily lives of Orange's early settlers. In Cypress Street Barrio's and El Modena's early settlement period, deposits associated with Quakers can provide artifacts and other organic material useful in interpreting the influence of religious beliefs on material culture, the everyday practice of a religious philosophy, status, the role of women and children in the household,and other topics not always addressed in the written record. Archaeological deposits associated with warehouses, ditches, and workers' camps are potentially present at any 19th and early zoth century packinghouse location within the City. As with residential areas, industrial work sites established outhouses, waste disposal areas, and residential areas for workers. Often, large organizations employed on-site blacksmiths to maintain freight wagons and shoe stock, and fix machinery and tools. Analysis of functional use areas can aid in reconstructions of 19th-century technology, industrial design and layout, and technological changes, innovations, or modifications made at individual company sites. Household debris discarded at workers' camps allows a comparison of the economic and social status of foremen, managers, owners, and laborers (as interpreted through the material culture). Such debris also allows insights into division of labor camps based on cultural heritage, comparisons of conditions at camps owned by different companies, and other research topics that can enrich the known history and interpretation of Orange's important agricultural and industrial development. New developments and existing urban areas of the City continued to tie into the City's ever- expanding sewer system in the Interwar Development period, eliminating the potential for hollow-filled significant archaeological deposits associated with individual households. Rural areas, however, relied on outhouses or septic systems and were often responsible for disposal of their own household trash. Deposits associated with farmhouses, small scale orange growers, and agricultural enterprises have the potential to allow interpretation of individual farm and household response to the Depression, adaptations in diet and material culture in light of reduced economic status, changes in farm technology or equipment in light of the Depression,and other topics related to interpreting this era of Orange history. The explosive growth of Orange and establishment of planned subdivisions in the Postwar Development period is unlikely to have resulted in significant archaeological deposits. By the end of World War II, new developments included installation of sewer, water, and electrical utilities. New homeowners and tenants were provided with garbage collection services, and the likelihood of encountering significant archaeological deposits associated with this period is considered low. ORANGE GENERAL PLAN CR-19 CULTURAL RESOURCES r;,J;r; 4 ap either permanent or semi-permanent villages. Known settlement locations seem to have favored two different locales; coastal estuaries and major inland watercourses. Villages are thought to have been the focus of family life, with each individual group linked to others by paternal kinship relations. Coastal Gabrielino exploited bay and kelp-bed fish, shellfish, and occasionally sea mammals. Inland groups collected and processed plants and hunted deer, bear, quail, and other terrestrial game. Gabrielino culture was heavily affected by colonial Spanish missionary efforts long before systematic ethnographic studies could be conducted, indeed before there was such a discipline as ethnography. Disease and forced participation in the mission system disrupted most traditional cultural ways of life and resulted in a catastrophic reduction of the native population. Information about their material culture and lifeways is very limited and derived largely from historical sources, such as the diaries and records of early missionaries, soldiers, and explorers. While traveling through the area in 1769, Father Juan Crespi, a missionary, noted the presence of a large village, Hotuuknga, upstream from present day Olive on the north side of the Santa Ana River. Crespi wrote that 52 Indians came to greet them and accepted blankets, beads, and other goods. When he returned two years later, the group was hostile and the Spaniards quickly continued on their way. As late as the 187os, a small Indian camp"was visible on the north side of Santiago Creek just west of the Glassell Street crossing. What little ethnographic information is available suggests that the Late Prehistoric Gabrielino settlement pattern may have been characterized by a complex of central villages occupied by family lineages and smaller special-purpose sites where specific resources were extracted or where food or other resources were collected for transportation back to central villages. Such a pattern is consistent with the "collector" economic model for complex hunter- gatherer societies such as the Gabrielino. Historical Setting As mentioned previously, major themes and eras in Orange's history include colonization, early settlement, agriculture and industry, immigration and ethnic diversity, interwar development, and postwar development. Considered in light of these themes and eras, places of particular archaeological interest include rancho sites, Old Towne, El Modena, McPherson, and Olive. Physical developments of particular interest include the railroad, packinghouses, private homes, and civic buildings. Social developments of particular interest include ethnic settlement,labor issues, and segregation. Orange's early settlers, commercial enterprises, and public facilities had no modern-day waste disposal facilities. Typically, outdoor sanitation facilities (privies or outhouses) were placed within private property at the rear of the properties, close to alleys. Household trash items (discarded bottles and dishes,food remains, and broken objects)were often disposed of by spreading across the back or side yards and then covering with dirt(creating horizontal layers of discarded refuse)or by digging pits to hold garbage and then covering with dirt. According to City sanitation records (these records do not extend to El Modena, Olive, etc.), sewer lines were installed in the streets and into parcels within Orange and the general area of the Cypress Street Barrio between 1911 and 1914(after 1915, almost all new development in Orange included provision of sewer lines). While the City provided the pipes necessary for ORANGE GENERAL PLAN CR-18 CULTURAL RESOURCES the bone were submitted for chemical and radiocarbon analysis. The resulting estimate of the age of the remains suggests the individual was buried approximately 13,00o years ago, making the Arlington Springs Woman one of the oldest finds of human remains in the Americas. Millingstone Period Sites dating from around 8,00o years before present(B.P.) are far more common than those from the Paleo-coastal Tradition period. They typically include groundstone assemblages, indicating a probable dependence on hard seeds. At coastal sites, there is continued evidence of a wide variety of marine resource exploitation, most commonly shellfish. Some archeologists believe that terrestrial game still provided the foundation of the diet. Others note that the abundance of Millingstone Horizon sites suggests a sedentary settlement system, rather than a mobile foraging pattern. Under the sedentary settlement system, central settlements would be supplied from special purpose camps and task sites. Sites of this time period typically yield large numbers of metates and manos, as well as unique artifacts of unknown use,called cogged stones or discoidals. The Intermediate Period At about 3,00o years B.P., important changes began to occur in settlement, technology, and subsistence intensification caused by a growing population. Changes included increased use of acorns, elaborate fishing technology, and a diverse arsenal of hunting tools. The apparent disuse of the Newport Coast area during this period is thought to have indicated the arrival of Shoshonean-speaking groups from the deserts to the east. Archaeologists believe these people were proto-Gabrieleno and Luiseno who were not yet familiar with marine resources. Late Prehistoric Period By the Late Prehistoric Period, beginning approximately 1,350 years B.P., high population densities and complex political, social, technological, and religious systems existed throughout the Los Angeles Basin. Economic systems, based primarily around growing marine fisheries, became more diverse and intensive. The growing geographic complexity of trade networks is reflected in shell-bead currency and a variety of materials traded to or acquired from remote locations. Technological improvements are apparent in the appearance of the bow and arrow, the plank canoe in coastal sites, and evidence of a broad variety of marine resources, including mammals and fish taken in deep sea environments. Settlements became permanent towns supported by temporary camps set up at resource procurement sites. Archaeological evidence of this time period includes the presence of arrowheads, soapstone bowls, callus shell beads, steatite effigies, and cremations. This period ended abruptly when Spanish colonists began establishing missions along the California coast. Ethnographic Setting The planning area is situated within the ethnographic territory of the Gabrielino Indians of California. Gabrielino lands included most of present-day Los Angeles and Orange Counties, and several offshore islands. The Gabrielino spoke a Cupan language in the Takic family, which in turn is a member of the Uto-Aztecan linguistic stock. The Gabrielino people lived in WINENI _._... ORANGE GENERAL PLAN CR-17 CULTURAL RESOURCES ram Z,; 1 S01). This new development, consisting of approximately 4,00o homes, is known as Santiago Hills II and East Orange. The development area is located adjacent to the Irvine Ranch Land Reserve, and has significantly expanded the boundaries of Orange towards the east. Archaeological Resources The context statement for archaeological resources in the City of Orange represents The full text of the Archeological Historic Context Statement for the City of Orange,including a synthesis of over 5o years of surveys, citations and maps indicating portions of the excavations, and analysis of material planning area with potential for prehistoric and culture, written documents and records, historic archeological resources,is provided in the and oral histories undertaken by Cultural Resources Technical Report,which archaeologists at federal, state, and local accompanies the General Plan EIR. agencies and in the private sector.To date, over 5o surveys have been conducted within the City or its surrounding unincorporated areas. Most of these have been small in size (less than 10 acres), although a few have investigated hundreds or thousands of acres. These larger projects have been confined to relatively undeveloped areas, such as Burruel Point, Santiago Creek, or the unincorporated east Orange hills within the City's sphere of influence (S01). These surveys have resulted in the recording of only 25 or so sites within the City, although others have been documented along the coast or in other portions of Orange County. Prehistoric Setting Orange County falls within the San Diego sub-region of the southern coast archaeological region of California.The history of the archaeology of this period in Southern California reads like a novel, with accounts of nationalism and competition between ambitious institutional collectors (e.g., museums, universities, public institutions). Intense and competitive, but unsystematic institutional collecting persisted in the region into the twentieth century. An initial framework of regional prehistory was in place by the 195os. This framework is not specific to Orange County; however, elements of it are derived from work at Newport and Laguna Beaches. The generally accepted framework recognizes four broad temporal periods or cultural horizons. These are the Paleo-coastal or Early Man Period dating to more than io,000 years ago; the Millingstone Period, falling between io,000 years ago and 3,00o years ago; the Intermediate Period from 3,00o years to 1,350 years ago; and, the Late Prehistoric Period from i,35o to 65o years ago. Paleo-coastal Tradition Initial occupation is thought to have occurred more than io,000 years ago in Southern California. The view is that early occupants were mobile foragers primarily dependent on hunting terrestrial game. Recent archaeological evidence from some coastal sites indicates the systematic and intensive use of marine resources, including shellfish,during this period. One immensely important find was the partial remains of a woman on Santa Rosa Island Channel Islands) in 1959. Now known as the Arlington Springs Woman,the find consisted of two femurs recovered at a depth of approximately 3o feet. The discovery was excavated in a block and transported to the Santa Barbara Museum of Natural History. In 1989, samples of ORANGE GENERAL PLAN CR-16 44 1+;6. CULTURAL RESOURCES 1995.As a result of its academic development,Chapman College became Chapman University in 199i. Throughout the 199os, enrollment grew by more than 4o percent and the University has constructed new facilities, including a building for the new College of Film and Media Studies and an athletic complex. Physical Development The surge in Orange's population in the 19505 and i96os created a need for new government buildings to replace the early City Hall, Fire Station, and Carnegie Library. The Orange Public Library (then addressed as ioi North Center Street, but now as 407 East Chapman Avenue) was completed in 1961, replacing the original 1910 Carnegie Library. Welton Becket and Associates designed a new civic center completed in 1963 on the site of the 1921 City Hall. Several fire stations were constructed during the 196os, including new headquarters on South Grand Street in 1969.A new main post office was constructed on Tustin Street in 1971. New business districts were also created during the mid-195os, diminishing downtown Orange's importance as the city's major commercial center. Major shopping centers opened on the corners of Tustin Street, Chapman Avenue, Collins Avenue, Glassell Street, North Batavia Street, East Katella Avenue, Meats Avenue, Main Street, and La Veta Avenue, attracting supermarkets, restaurants, hardware stores, banks and gas stations. Shopping centers built during the 196os and 197os include Town and Country Village Shopping Center, the Mall of Orange (now the Village at Orange), and The City Shopping Center (now the Outlets at Orange). In the 196os and 197os, the ever-growing City of Orange annexed surrounding areas and towns, including portions of El Modena. The majority of construction from the postwar period remains largely intact, including the three Eichler tracts, Chapman University, Orange Civic Center, and numerous other commercial,residential,and civic buildings. 1975-Present During the postwar suburban construction boom, the most desirable land for subdivisions was the flat coastal plain where cities such as Garden Grove, Westminster, and Costa Mesa developed. By the late 196os, construction slowed. Further development stalled with the energy crisis of 1973. By the 198os, however, the foothills to the east of El Modena became prime real estate. Orange Park Acres, which lies between Chapman Avenue and Santiago Canyon Road, was first subdivided in 19z8, but most of the area was annexed by the City of Orange during the 199os. In 1989, the City of Orange and the Irvine Company adopted the East Orange General Plan, a proposal that encouraged a mix of residential, commercial, and recreational uses for the area east of Orange Park Acres towards Irvine Park and Peters Canyon.The Orange campus of Rancho Santiago Community College was constructed in 1985 and became Santiago Canyon College in 1997. Most construction from this period remains intact. Once the flatlands were fully developed, the remaining undeveloped lands that were previously thought to be too expensive or complicated to develop, including the hillsides, became much more desirable. In zoos, the City approved a development proposal for the remaining undeveloped hillsides to the east of Orange and within its sphere of influence immommominummesmm ORANGE GENERAL PLAN CR-15 CULTURAL RESOURCES i,n 4 Postwar Development(circa 1945-1975) World War II brought prosperity to Southern California's economy and ended the ravages caused by the Great Depression, which had devastated fruit prices. After World War II, returning soldiers and a massive influx of new residents to the state changed the face of California forever. Orange was no exception; its remaining open and agricultural space attracted developers of bedroom communities. By the 195os, many ranchers readily sold their acreage; orange groves were succumbing to the "Quick Decline"disease and the demand for real estate for housing construction soared. Orange's explosive suburban residential growth began in 1953 and peaked in 1962, when thousands of acres of land were sold for development. Between 1950 and 196o, the local population swelled from io,000 to 26,00o as former orchards were torn out and replaced with subdivisions of single-family homes. Most of the larger tracts(50-ioo homes)were built by outside developers, though a few local developers worked on a smaller scale. One of the more notable developers working in Orange during this period was Joseph Eichler, who built three tracts to the north and east of Old Towne.These Eichler developments brought distinct elegance,originality,and modern design principles to suburban homes. Eichler Homes Between 1949 and i974,Joseph Eichler built about 11,000 homes in California, including 575 in Southern California, of which 339 are in Orange. Frank Lloyd Wright's Usonian building principles, which included integration with the natural landscape, the use of indigenous materials, and an aesthetic to appeal to the "common man," gave Eichler ideas for his own suburban tract housing. Eichler hired a series of progressive firms, including Anshen &Allen, Jones & Emmons, and Claude Oakland Associates, to design innovative, modern, and affordable homes for California's growing middle class consumers. For over two decades, Eichler Homes would utilize streamlined production methods, specialized construction materials, an innovative marketing campaign, and one of the first non-discriminatory suburban housing policies in the country to change the shape of California's suburbs. Chapman University Chapman College was founded in 1861 as Hesperian College in Woodland, California by the Disciples of Christ. By 192o, Hesperian College merged with the new Los Angeles-based California Christian College. The major benefactor to California Christian College was Fullerton citrus rancher Charles Clarke Chapman, and in 1934 the college was renamed Chapman College. After World War II, as returning veterans with G.I. Bill funding filled college classrooms across the nation, Chapman College required a larger campus to accommodate the increased student population. When the Orange Unified School District proposed building a new high school, Chapman College purchased the old Orange Union High School campus at Glassell Avenue and Palm Street. Chapman College moved to this site in 1954 and became the first four-year,accredited college in Orange County. Over the years, Chapman has continued to expand its education programs, enrollment, and campus facilities. In 1977, a School of Business and Management (now known as the George L.Argyros School of Business and Economics)was established. The Law School was added in ORANGE GENERAL PLAN CR-14 CULTURAL RESOURCESralonnevatesseigurmar residents coming from the same villages in Mexico. Today, some residents can trace their family's neighborhood roots back four generations. To support this population, Cypress Street Barrio's small businesses included grocery stores, bakeries, tortillerias, restaurants, bathhouses, automobile shops, barbershops, and pool halls. The Friendly Center, Inc., one of the oldest non-profit family resource centers in Southern California, offered "Americanization" courses, homemaking classes, health clinics, and childcare services to Cypress Street Barrio residents. In addition, the popular jamaicas, or church street fairs,were held in front of the Friendly Center during the late 194os. The Cypress Street Barrio still retains some of its original early loth-century character in the form of small bungalows, commercial buildings, and packinghouses. The Mission Revival style Friendly Center, Inc. building was built at 424 North Cypress in 1922; the original structure has been remodeled for commercial and residential use. Among the long-standing businesses along North Cypress Street were the Cayatano "Pete" Cruz grocery store (44o North Cypress), Filiberto Paredes/Simon Luna/Emilia Luna's grocery store(418 North Cypress) and Pete's Pool Hall(4o5 North Cypress). Very little physical evidence remains of Orange's segregation history. The most prominent example is the formerly segregated Cypress Street School at 544 North Cypress Street,which today houses Chapman University's Human Resources Development Research Program. The Colonial Theatre, located at 138 South Glassell Street, which was one of the few movie houses in Orange County where attendees of all races could sit side-by-side, still exists in a highly modified form. Interwar Development(circa 1920-1941) As the citrus economy continued to flourish into the 1920s,the demand for housing grew and residential styles evolved. The California-oriented Craftsman houses were followed by European-influenced Tudor, Provincial, Mediterranean, and Norman Revival styles. The Mediterranean Revival style was by far the most popular in Orange, and houses in this style that remain exist primarily on the outskirts of the Old Towne boundaries. Beginning in the 193os, Ranch and Minimal Traditional style homes became dominant due to the economic constraints created by the Great Depression. Minimal Traditional homes tend to be boxy, with flat wall surfaces and little ornamentation or other detailing; they often feature simplified features of Tudor and Colonial Revival styles. Ranch homes became the most predominant type of housing built in the United States between the 193os and the 196os. In addition to many existing homes in the Old Towne area, a number of Works Progress Administration (WPA) projects were built in Orange during this period. The State Emergency Relief Agency (SERA) and the WPA sponsored the construction of several structures, including the Bandshell and Bath House/Plunge in Hart Park(1933-1935), the downtown post office at Chapman Avenue and Lemon Street (1934-35), a new fire station at 153 South Olive Street, a $45,00o stadium at Orange Union High School (1935), and new bridges on both the Santa Ana River and Santiago Creek. The Orange-Olive school buildings at 303o N. Magnolia Street(also known as Olive Community Center)were also constructed by the WPA in the late 192os. Of these structures,the fire station and bridges no longer remain. ORANGE GENERAL PLAN CR-13 CULTURAL RESOURCES Immigration and Ethnic Diversity(circa 1910-1980) Two international events had significant effects on El Modena and Orange in the 191os: the Mexican Revolution and World War I. Beginning around i9io, many Mexican families came to the U.S., seeking refuge from the chaos sparked by the Mexican Revolution. When the U.S. entered World War I in 1917, men across the country were drafted into the war effort. As a result,the fruit harvesting workforce dwindled, creating employment opportunities for these new immigrants. The increased demand for workers and the influx of Mexicans supported two vibrant communities:the Cypress Street Barrio and El Modena. El Modena By the 192os, El Modena began to take on a distinctly Mexican character. Many Mexican- American El Modena families worked in packinghouses and orchards. The area was surrounded by fruit tree groves, isolating it from the rest of Orange. Isolation and segregation from white residents of Orange were facets of life for the residents of El Modena and the Cypress Street Barrio. Many popular recreational activities were segregated, including movie theaters. Mexican-Americans were restricted from playing ball in public parks and their use of the community pool was limited to Mondays, because the pool was drained on Monday night.The impact was felt even at the schools,where Mexican- American student enrollment was restricted to "La Caballeriza" ("The Barn"), a two-room wooden schoolhouse behind the Lemon Street School. The breakthrough came in 1947 when the U.S. Supreme Court ruled in favor of League of United Mendez v.Westminster sought a court injunction that would order integration of Latin American Citizens in the case Mendez v. schools in the Westminster,Santa Ana, Westminster, ordering that "school districts not Garden Grove,and El Modena school segregate on the basis of national origin." In the districts. Basis for the suit was provided by wake of Mendez came the landmark Brown v. conditions in El Modena where the Board of Education decision in 1954. As integration segregated Lincoln and Roosevelt schools slowly commenced, many disgruntled Anglo sat side-by-side on Chapman Avenue, families moved away, settling in newly drawn making an easy comparison of separate school districts that were often "re"-segregated. and unequal educational opportunities for Mexican-American children.The original Some of the small bungalows from this period still site of these two schools has since been exist in largely modified forms, typically with redeveloped. clapboard siding, gabled roofs, and small entry porches. The most significant commercial building from this period is "La Morenita," a market that still exists on the corner of Washington Avenue and Earlham Street. Around 1929, the Moreno family, one of the oldest families in El Modena, constructed the small, western false-front building. Cypress Street Barrio Mexican citrus workers settled on Cypress Street beginning in 1893 when a packinghouse was built on the 30o block of North Cypress. Growers realized that having an easily accessible, stable, and permanently housed workforce assured a lessened chance of labor problems. Residents of the Cypress Street Barrio were a tight-knit group with many new AMIIIMIENNINNeliktfir ORANGE GENERAL PLAN CR-12 CULTURAL RESOURCES The citrus industry continued to grow until the Great Depression. Between 1933 and 1935, unemployment in Orange County grew to 15 percent.This led to labor issues that culminated in a farm workers strike in 1936. Another blow to the citrus industry occurred in the i95os with the spread of"Quick Decline" disease, which resulted in reduced crops and loss of trees. This, combined with the strong demand for housing after World War II and the need for developable real estate, began to diminish the once-powerful role of the citrus industry. By the late i99os, the citrus packing industry had steadily moved out of Orange County. Three historic packinghouse complexes survive within Old Towne. The oldest existing packinghouse is the former Red Fox Orchards packinghouse, built in 1909, a Pueblo Revival, wood frame building at 128 South Cypress Street. The Villa Park Orchard Association's packinghouse complex, built in 1919, is located at 35o North Cypress Street. This former Santiago Orange Growers Association packing plant was built to take advantage of the Santa Fe Railway on the west side and the Pacific Electric on the east. The Villa Park Orchards Association's offices are located one block north of the packinghouse at 544 North Cypress Street. This building was formerly the segregated Cypress Street School, built in 1931 to educate the Mexican and Mexican-American children of Cypress Street Barrio and El Modena. SAVI's i93i headquarters are located at 154 North Glassell Street. Another building of agricultural importance is the Orange County Fruit Exchange, or Sunkist Building, located at 195 South Glassell Street. From the late 192os through the 194os, the Orange Mutual Citrus Association operated a packinghouse at 426 West Almond Avenue adjacent to the Atchison, Topeka and Santa Fe tracks. In later years, the Orange Cooperative Citrus Association occupied the building. Numerous other industrial buildings remain throughout Orange, concentrated around the railroad tracks running north-south parallel to Cypress Street. In 1927, the Western Cordage Company, a rope manufacturer established in 1923, moved into what had been the Richland Walnut Association Building at 501 West Palm Street. In 1928, the California Wire Company renamed the Anaconda Wire Company in 193o) built a complex of industrial buildings adjacent to the rail line between Palm Avenue and Maple Avenue at 2oo-296 North Cypress Street. The Chapman University Film School currently occupies a portion of the original complex. The buildings feature industrial steel windows and skylights to light the interior work areas. In 1914, the Orange Contracting and Milling Company built their yard and mill at 225 North Lemon Street. The false front industrial building consists of a wood frame sheathed with corrugated sheet metal panels. Another false front industrial building within the district is the structure at 145 North Lemon Street, which features pressed metal panels on the wall of the street façade. Residential construction associated with industry in Orange centered on bungalows, which became popular, affordable housing for workers. Imitating large, high-style Craftsman homes, these homes were decidedly smaller, usually one story, and were less expensive to construct. Storekeepers, bakers, contractors, packinghouse operators, teachers, carpenters, and laborers occupied many of the bungalows that remain throughout Old Towne. ORANGE GENERAL PLAN CR-11 CULTURAL RESOURCES 11111V-cacimii,,,z include the First Baptist Church (1893), St. John's Lutheran Church (0914), and Trinity Episcopal Church (i908). Later buildings in the Plaza Square area include Watson's Drug Store (i9oo), the former First National Bank (1928), and the W.O. Hart Post Office (i926). Early homes were built in the Victorian or Queen Anne style, characterized by a vertical emphasis with simple, jigsawn ornamentation, particularly around the porch, windows, and entry. During the years before World War I, residential styles evolved to include Classical Revival and Craftsman homes. El Modena Paralleling the early settlement of Old Towne was the establishment of another town located approximately three miles to the east. Known as El Modena, this small enclave evolved from a Quaker village into a citrus-farming Mexican-American barrio over the course of its nearly izo-year history. San Francisco millionaire and philanthropist David Hewes became one of the primary developers in the area when he bought hundreds of acres around 1885. By 1886, there were 40o people living in El Modena. In i888, a horse drawn streetcar connected El Modena to Orange. By 1889, the building boom was over and the population declined. The area re- established itself as a fruit growing area and became known for its mild climate and rich capacity for farming. A number of relatively unaltered, small,wood-framed bungalows are scattered throughout El Modena, including an eight-building bungalow court on Hewes Street at Montgomery Place. Friends Church, the anchor of the original settlement of El Modena, still exists on Chapman Avenue at Earlham Street, although it has been converted into a restaurant. The footprint of Hewes Park remains at the intersection of La Veta Avenue and Esplanade Street, although the park has since been sold as private lots. Small expanses of unaltered open space still exist to the south and east of El Modena, although almost all of the former agricultural areas have been developed. Agriculture and Industry(circa 188o-1950) Water became the critical element for ongoing prosperity. In i87i, the A.B. Chapman canal began bringing water from the Santa Ana River to the townsite, with ranchers digging lateral ditches to their farms. By 1873, settlers began to develop wells, tapping into a water table only i8 feet below ground. A drought in i877 motivated local ranchers to buy out the water company and form the Santa Ana Valley Irrigation Company(SAVI). As a cooperative water venture, SAVI was vital to the agricultural development of the arid Southern California region. Beginning in the i88os, the transcontinental railroad system granted growers in Orange County access to markets across the nation. The introduction of reliable irrigation and transportation systems was accompanied by a surge in agricultural production and productivity in Orange County. This was particularly true in Orange, where from i88o to i95o, citrus and other agricultural industries were the predominant influences on the economic, political,and cultural development of the City. By i893, citrus had become so dominant that the Orange County Fruit Exchange(now known as Sunkist) was organized and incorporated. This organization constructed its headquarters building at the northeast corner of Glassell Street and Almond Avenue. ORANGE GENERAL PLAN CR-10 4 mis CULTURAL RESOURCES Old Towne When Rancho Santiago de Santa Ana was subdivided in the late 186os, a Los Angeles lawyer, Alfred B. Chapman, represented several parties in the partition suit. As payment for his fees, Chapman acquired approximately 4,00o acres. In 187o, Chapman hired another lawyer, William T. Glassell, to survey and subdivide his land holdings into farm lots ranging in size from io to 4o acres. With an eye to the future, the founders set aside eight lots in the center of the newly subdivided blocks of land,to be used as a public square.This public amenity is now known as Plaza Square, or simply the Plaza. In honor of the founders, the two main streets, which intersected at the public square, were named Chapman Avenue (running east-west) and Glassell Street(north-south). Orange grew rapidly during the Great Boom of the 188os. New settlers flocked to the region due to the cross-country expansion, inexpensive rail fares, and the balmy Southern California climate. Many of the new settlers entered Orange via the Santa Fe Railroad (later called the Atchison, Topeka, & Santa Fe) Depot four blocks west of the Plaza (currently the site of Orange Metrolink Station, Depot Park, and Veterans Memorial). Much of the real estate boom of the 188os was driven by landowners subdividing their ranches in order to sell individual lots,which were often bought by speculators. By 1887, dozens of new subdivisions and four new townsites were laid out. Connecting these new communities were two horse- drawn streetcar systems: the Orange, McPherson and Modena; and the Santa Ana, Orange and Tustin lines. By the late 187os and early 188os,the population of Orange was large enough to support the construction of civic buildings and gathering places such as churches, schools, and public parks. As the city continued to grow and lots were further subdivided, the new residents named the streets after the towns they came from in the East,such as Batavia and Palmyra. The settlement first tried to incorporate in 1873 under the name Richland. The post office rejected this application because there was another settlement by that name in Sacramento County. The name was changed several years later and Orange was incorporated on April 6, 1888. At the time of incorporation, Orange was about three square miles, with 60o people who predominantly lived on small family ranches surrounding the town. Although most residents lived on working farms, some homes—generally for the town's doctors, lawyers, and merchants—were built on the small lots surrounding the Plaza. After the boom of the 188os, major construction in Orange lay dormant for over ten years. With the new century came growth in the town's citrus industry and an increase in economic prosperity. The Plaza soon became the commercial and social hub of Orange and the principal banks, newspapers, stores, and public institutions were built around its edges along Chapman Avenue and Glassell Street. Residential development, which increased to meet growing demand, occurred on the secondary streets beyond the Plaza and commercial center. Many commercial, residential, civic, and religious buildings from Orange's early settlement years remain today, in addition to the Plaza developed in the 188os. Early brick commercial buildings in the Plaza area include the C.M. Woodruff store (1885), D.C. Pixley store (1886), and Wells Fargo (originally Bank of Orange) building (1886). Existing religious buildings Aninwat ORANGE GENERAL PLAN CR-9 CULTURAL RESOURCES A t Historic and Cultural Context Patterns of Development and Architecture In order to prepare for the future, it is often worthwhile to The full text of the Historic look to the past for inspiration. A review of Orange's dynamic Context Statement for the history covers six important phases: colonization, early City of Orange,including settlement, agriculture and industry, immigration and ethnic citations,photographs and diversity, interwar development, and postwar development. maps,is provided in the The following paragraphs, which are taken from the Historic Cultural Resources Technical Context Statement prepared in conjunction with this General Report,which accompanies Plan, describe significant events within each of these eras, as the General Plan EIR. well as a summary of physical features and characteristics that remain within the community today. Colonization(circa 1800-1870) The first landowner in the Orange area was Juan Pablo Grijalva, a retired Spanish soldier. His land extended from the Santa Ana River and the foothills above Villa Park to the ocean at Newport Beach. Along with his son-in-law, Jose Antonio Yorba, he began a cattle ranch and built the first irrigation ditches to carry water from the Santa Ana River. After Grijalva's death, Yorba and his nephew, Juan Pablo Peralta, received title to the Rancho Santiago de Santa Ana land grant with a total of 78,941 acres. After California became a state in 1848, one member of the extended family that owned the Rancho—Leonardo Cota—borrowed money from Abel Stearns, who was the largest landowner in Southern California. Cota put up his share of the Rancho as collateral. When Cota defaulted on the loan in 1866, Stearns filed a lawsuit in Los Angeles Superior Court to demand a partition of the land so that Stearns could claim Cota's section. As a result, the Rancho was subdivided into 1,000 units parceled out to the heirs and the claimants in the lawsuit. Very little above-ground evidence remains from this early period of colonization of the Orange area, although any locations identified as related to the colonization period may yield archaeological evidence. A total of 33 adobes are thought to have been present on three ranchos within the City. Today, the northwest corner of the intersection of Lincoln Avenue and Orange-Olive Road in Olive is known as the site of the Rancho Santiago de Santa Ana headquarters. Past excavations in this area revealed the remains of two adobes, including wall remnants, tile floors and associated artifacts. The Grijalva Adobe site at the corner of Hewes Avenue and Santiago Canyon Road is marked by a plaque. This site included at least one adobe and some associated outbuildings. Francisco Rodriquez's property, generally bound by present day Main Street, Walnut Street, the Atchison Topeka Railroad and Collins Avenue, also contained adobes and is associated with this early period. Early Settlement(circa 1870-19zo) The early roots of the Orange we recognize today had their origins in the partitioning of the original Rancho.Two of the most important historic areas within the City—Old Towne and El Modena—were established at this time. IIMNIMPANISICAS ORANGE GENERAL PLAN CR-8 t, Q I r--• irilill 1• GE G yy S t EI`1ERAL PIAN t F-1- 1 I....N SYCAMORE AYE 1fc\t\\ a. El L T 11 P11.1\1t AMOIONIMpl• ii 1N1,111 Ill I N\Ylt 1\I i SV2t I N\E Ill. 1'.1 EAEM 1\1 8 r I MAMNNGION AY, I N Yllli\t;l\).\1\E i r e 11 I PAIMIRA AVE N UM AVE C1:IYE•14"."I F(UIYIM MI I I Individual National Register X`Additional Resources Listed Resources 7(7 ~`-L.,. I.Orange Intermediate School- t- `.;, i Central Grammar School 2.Orange Union High School 3.Lewis Ainsworth House r Nsy • 4.St.John's Lutheran Church g i l r C el.k i5.First Baptist Church of Orange t.1 6.C.Z.Culver House y j] 7.Parker House 8.Porter French House 10.Irvine Regional Park:21401 Chapman Ave 9.The Plaza I I.Olive Civic Center:3030 N.Magnolia Ave I Local Historic District National Register of Historic Places NORTH H 1-1I I I 1 Feet ir J Old Towne District Old Towne Orange Historic District O o 410 820 1.230 1.640 Planning Area NM Plaza Historic District Individual National Register Listed Resources Figure CR-1 Designated Historic Resources rya m ORANGE GENERAL PLAN CR-7 CULTURAL RESOURCES ems substantial adverse change and identifies local categorical exemptions and cumulative impacts analysis. City of Orange Historic Preservation Program The City's historic preservation program has its roots in community interest and outreach during the late-1970s. Spurred by citizen interest in the historic downtown and surrounding residential neighborhoods, the City Council formed the official Old Towne Steering Committee in 1979 to assess and direct the special planning needs for the square mile of old Orange. Other groups with an interest in Orange history and historic preservation that formed during this period include the Orange Community Historical Society (organized in 1973), Preservation Orange (organized in 1982—no longer extant), and the Old Towne Preservation Association(OTPA)(organized in 1986). Soon after its establishment, the Old Towne Steering Committee took action to recognize the unique characteristics of the downtown commercial core, and joined with the Orange Community Historical Society and City officials to nominate the four-block commercial area to the National Register of Historic Places. This area, now known as the Plaza Historic District, was officially listed on the NRHP in 1982 (see Figure CR-1). Also in 1982, the City initiated its first historic resources survey to evaluate all pre-194o homes and buildings in the City of Orange with a primary emphasis on Old Towne. The survey provided guidance in the establishment of the first Historic Preservation Element of the City's General Plan, which was adopted in 1983. Soon after,the Old Towne Orange local historic district was established(see Figure CR-1). In 1993,Historic Preservation Design Standards for Old Towne(amended 1997 and 2o17)were adopted to provide design guidelines for proposed alterations and/or demolitions in Old Towne to be reviewed by Planning staff in the Community Development Department and the Design Review Committee(DRC). In 1997, a more concentrated version of Old Towne was listed on the NRHP as the Old Towne Orange Historic District (see Figure CR-1). This National Register district was recognized for its significant cultural history related to the City's founding and early history and its concentration of early-period buildings. An update of the historic resources survey was conducted in 1992. This survey served as the basis for the establishment of the local Old Towne Historic District. The survey update was received by City Council and its findings were added to those of the 1982 survey. The survey was, again, updated in 2010 to include the Fairhaven, Fairhills, and Fairmeadow Eichler Home Tracts and was adopted by the City Council. The combined survey is known as the Historic Building Survey pursuant to the City of Orange Local CEQA Guidelines. The City's Zoning Ordinance permits the establishment of historic districts through a zone change process (Orange Municipal Code 17.o6.o2o and 17.17 Historic Districts). The City's Community Development Department oversees application of the City's Historic Preservation Program including the Mills Act program (discussed in the Cultural Resources& Historic Preservation Plan section below), provision of educational materials, project application review, and permit processes. ORANGE GENERAL PLAN CR-6 f* MIIIEWIMPOOF CULTURAL RESOURCES difference in nomenclature (NRHP criteria labeled A-D), the primary difference between the two registers is that the NRHP imposes a 50-year age requirement whereas the CRHR employs no age requirement. The other major difference between the two registers is the manner in which they weigh physical integrity. In addition to meeting one of the four criteria, CRHR-eligible properties must also retain sufficient integrity to convey historic significance. CRHR regulations provide for the possibility that historical resources may not retain sufficient integrity to meet the criteria for listing in the NRHP but may still be eligible for listing in the CRHR. OHP has consistently interpreted this to mean that a property eligible for listing in the CRHR must retain substantial integrity. California Environmental Quality Act (CEQA) When a proposed project is expected to cause substantial adverse change to an historical According to the California Environmental Quality Act(CEQA)Statutes Section 2io84.1, resource, the environmental clearance for the an historical resource is a resource listed in,or project usually requires mitigation measures to determined eligible for listing in,the CRHR. reduce negative impacts. Substantial adverse Historical resources included in a local register change in the significance of an historical of historical resources are presumed to be resource means the physical demolition, historically or culturally significant for destruction, relocation, or alteration of the purposes of this section,unless the resource or its immediate surroundings such preponderance of the evidence demonstrates that the significance of an historical resource that the resource is not historically or would be materially impaired. Material culturally significant. impairment occurs when a project: demolishes or materially alters in an adverse manner those physical characteristics of an historical resource that convey its historical significance and that justify its inclusion in, or eligibility for, inclusion in the California Register; or demolishes or materially alters in an adverse manner those physical characteristics that account for its inclusion in a local register, or its identification in an historical resources survey, unless the public agency reviewing the effects of the project establishes by a preponderance of evidence that the resource is not historically or culturally significant; or demolishes or materially alters those physical characteristics of an historical resource that convey its historical significance and that justify its inclusion in, or eligibility for inclusion in the CRHR, as determined by a lead agency for the purposes of CEQA. The City has adopted Local CEQA Guidelines(Guidelines), amended in 2020 to provide the City, and anyone intending to carry out a project, with the requirements of the environmental review process established according to state law, local ordinance, and City practices. The Guidelines contain a section pertaining specifically to historical resources. This section establishes the existing Historic Building Survey(1982 with updates from 1992 and zoos)as a recognized list of historical resources within the City pursuant to PRC 5o2o.i(k). The section authorizes use of the Secretary of the Interior's Standards for Rehabilitation,the Guidelines for Rehabilitation, and the Historic Preservation Design Standards for Old Towne (adopted 1993 and updated in 1997 and 2017), for design review purposes. It provides thresholds for ORANGE GENERAL PLAN CR-5 t. CULTURAL RESOURCES feeling, and association. To retain integrity, a property must possess several, and usually most, of these aspects. California Register of Historical Resources The Office of Historic Preservation (OHP) administers the California Register of Historical Resources (CRHR). The CRHR was established to serve as an authoritative guide to the state's significant historical and archaeological resources (California Public Resources Code PRC] Section 5o24.1). State law provides that in order for a property to be considered eligible for listing in the CRHR, it must be found by the State Historical Resources Commission to be significant under any of the following four criteria (which are almost identical to the national criteria)that consider if the resource: is associated with events that have made a significant contribution to the broad patterns of California's history and cultural heritage; is associated with the lives of persons important in our past; embodies the distinctive characteristics of a type, period, region, or method of construction,or represents the work of an important creative individual or possesses high artistic values;and/or has yielded, or may be likely to yield,information important in prehistory or history. The CRHR also includes properties that: have been formally determined eligible for listing in, or are listed in, the NRHP; are registered State Historical Landmark number 770', and all consecutively numbered landmarks above number 77o; are points of historical interest that have been reviewed and recommended to the State Historical Resources Commission for listing; or are city- or county-designated landmarks or districts (if criteria for designation are determined by OHP to be consistent with CRHR criteria). A resource identified as significant in an historical resource survey may be listed in the CRHR if the survey meets all of the following criteria: The survey has been or will be included in the State Historical Resources Inventory. The survey and the survey documentation were prepared in accordance with OHP procedures and requirements. The resource is evaluated and determined by the office to have a significance rating of category 1-5 on Department of Parks and Recreation(DPR)form 523. If the survey is five or more years old at the time of its nomination for inclusion in the CRHR,the survey is updated to identify historical resources which have become eligible or ineligible due to changed circumstances or further documentation and those which have been demolished or altered in a manner that substantially diminishes the significance of the resource. While CRHR criteria are essentially identical to those of the NRHP, not all properties eligible for listing in the California Register are eligible for listing in the National Register. Besides the 1 State Historical Landmarks below number 77o were designated as landmarks prior to implementation of the CRHR. ORANGE GENERAL PLAN CR-4 ect . CULTURAL RESOURCES National Historic Preservation Act Enacted in 1966, the National Historic Preservation Act The Secretary of the Interior's NHPA) established the National Register of Historic Standards!or the Treatment of Places (NRHP) program under the Secretary of the Historic Properties are basic Interior, authorized funding for state programs with principles created to help preserve provisions for pass-through funding and participation by the distinctive character of a local governments, created the Advisory Council on historic building and its site,while Historic Preservation, and established the Section 106 accommodating change to meet review process for protecting historic resources affected new needs. by federal undertakings. As part of this process, the Secretary of the Interior's Standards for the Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating, Restoring and Preserving Historic Buildings (Secretary's Standards) were developed to provide guidance to federal agencies in reviewing potential impacts to historic resources. NHPA requires that all states and U.S. territories have a historic preservation office The Certified Local Government(CLG)program is a partnership among local,state and federal and State Historic Preservation Officer. Each governments.The program encourages the state receives federal funding for the direct participation of local governments in the preservation program, and to percent of the identification,evaluation,registration,and funding must be passed through to Certified preservation of historic properties and Local Governments(CLGs). promotes the integration of local preservation interests and concerns into local planning and The NRHP is the nation's official list of decision-making processes.To be eligible for historic and cultural resources. Generally, CLG status,local governments must: resources must be more than 50 years old • enforce state and local laws and regulations prior to listing on the NRHP. Properties that for the designation and protection of have not attained 5o years of age may be historic properties, listed if they are of "exceptional • establish an historic preservation review importance." Resources may be eligible for commission by local ordinance, the N RH P if they: maintain a system for the survey and inventory of historic properties, are associated with events that have provide for public participation in the local made a significant contribution to the preservation program,and satisfactorily perform responsibilities broad patterns of our history; or delegated to it by the state. are associated with the lives of significant persons in our past; or embody the distinctive characteristics of a type,period, or method of construction,or represent the work of a master, or possess high artistic values, or represent a significant and distinguishable entity whose components may lack individual distinction;or have yielded, or may be likely to yield, information important in history or prehistory. A resource that meets one of the above-referenced criteria must also possess integrity. Integrity refers to the ability of a property to convey its significance. The NRHP recognizes seven aspects or qualities of integrity: location, design, setting, materials, workmanship, Assmaismo ORANGE GENERAL PLAN CR-3 CULTURAL RESOURCESIllit,t,,&-unomminima,,;-.*a wmiffi" Purpose of the Cultural Resources & Historic Preservation Element The Cultural Resources & Historic Preservation Element is not a state-mandated element of the General Plan, but it is important because it provides guidelines to preserve those resources that represent the history and culture of Orange. Specifically, its purpose is to provide guidance in developing and implementing programs that ensure the identification, designation, and protection of cultural resources in the City's planning, development, and permitting process. The Cultural Resources & Historic Preservation Element also identifies ways in which the City can encourage and coordinate with private property owners in support of historic preservation. Scope and Content of the Cultural Resources & Historic Preservation Element The content of the Cultural Resources& Historic Preservation Element is organized into three sections: 1.) Introduction; 2.) Issues, Goals,and Policies;and 3.) The Cultural Resources& Historic Preservation Plan. The Introduction sets the stage by defining the purpose of the Cultural Resources & Historic Preservation Element and outlining the legal framework and historical context for Orange's cultural preservation issues. The Issues, Goals, and Policies section describes the City's intent to protect and preserve its historic and cultural resources, and provides guidelines and direction on how to accomplish the related goals. The Cultural Resources & Historic Preservation Plan shows how these goals and policies will be achieved and implemented. Detailed descriptions of the various implementation programs recommended within this Element can be found in the Appendix to the General Plan. Relationship to Other General Plan Elements The Cultural Resources & Historic Preservation Element is most closely tied to the Land Use, Urban Design, and Housing Elements. Protection and promotion of the City's historic and cultural resources affect the Land Use Element by designating certain neighborhoods and resources as valuable reminders of the City's cultural past and placing certain restrictions on land uses and development. The Urban Design Element is influenced by the history of the City in particular because design and physical guidelines also help to visually integrate references to the City's past in the appearance of streetscape enhancements and building design. Policies in this Element that encourage adaptive re-use of historic structures for housing affect how the City will accommodate the housing development described in the Housing Element. Legal Framework for Cultural Resource Protection This section describes the various elements that constitute the legal framework of cultural resource protection at the federal,state,and local levels. ORANGE GENERAL PLAN CR-2 CULTURAL RESOURCES & NGE HISTORIC PRESERVATIONENERALPLAN INTRODUCTION AND VISION FOR THE FUTURE Orange's sense of place and strong community identity can be attributed, in large part, to efforts by the City and community members to recognize and preserve the traditions and physical features that are manifestations of its culture and history. Special efforts have been made by the City through the preservation of catalogued historic maps, directories, photos, documents, and other assorted memorabilia in the City's Local History collection at the Orange Public Library & History Center. In addition, careful planning and adoption of protective regulations have encouraged retention of significant physical features, such as buildings, parks, signage, and landscape elements, that communicate the City's cultural, historical,and architectural past. Orange's Vision for the Future, described in the General Plan Introduction, recognizes the City's historical and cultural resources, and includes the following objectives related to Orange's cultural resources: The City will build upon existing assets to create a living, active, and diverse environment that complements all lifestyles and enhances neighborhoods, without compromising the valued resources that make Orange unique. The City will continue efforts to protect and enhance its historic core. This same type of care and attention will be applied throughout the rest of the City. We will continue to protect our critical watersheds, such as Santiago Creek, and other significant natural, open space,and cultural resources. This Cultural Resources & Historic Preservation Element of the General Plan is an outgrowth of previous actions taken to recognize historic resources within the City. Such actions include undertaking surveys of historic resources, adopting the City's first Historic Preservation element in 1982, and designating the local Old Towne Historic District. This Element is also an effort to expand the City's historic preservation program to ensure recognition and preservation of the City's diverse cultural resources. By identifying and sustaining historically or culturally significant places, the City of Orange strengthens community identity and enriches lives, providing not only a constant reminder of the culture and history of the local community, but also a valuable educational resource to residents and visitors alike. This Element also addresses the City's continuing commitment to support the educational and informational resources provided through its public libraries, which also serve as community gathering places. ORANGE GENERAL PLAN CR-1 Rev. GPA No. 2014-0001 (12/2015) AmmiwaimmummiloW NOISE Rail Traffic Noise The City has established a "quiet zone" along portions of the Burlington Northern/Santa Fe Railroad corridor. Federal Railroad Administration regulations allow cities to delineate zones where trains are not allowed to blow warning horns. Without a formally established "quiet zone", trains approaching all railroad crossings that intersect public streets are required to blow a warning horn at the intersection to warn motorists and pedestrians. "Quiet zones" may reduce noise impacts at these crossings, and will continue to be supported so long as they do not increase traffic and pedestrian hazards. NOISE IMPLEMENTATION The goals, policies, and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaboration with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. ORANGE GENERAL PLAN N-21 NOISE airs+mer . An acoustical analysis prepared in accordance with this Noise Element shall: be the financial responsibility of the applicant seeking City approval of a project; be prepared by a qualified person experienced in the fields of environmental noise assessment and architectural acoustics; include representative noise level measurements with sufficient sampling periods and locations to adequately describe local conditions and predominant noise sources; estimate existing and projected cumulative noise in terms of CNEL or Leg,and compare those noise levels to the adopted standards and policies of the Noise Element; recommend appropriate mitigation to achieve compliance with the adopted policies and standards of the Noise Element.Where the noise source in question consists of intermittent single events,the report must address the effects of maximum noise levels in sleeping rooms in terms of possible sleep disturbance;and estimate noise exposure after the prescribed mitigation measures have been implemented. Truck Routes Truck traffic generates noise that can disturb people in residential and other noise-sensitive land uses. Heavy trucks will not be permitted to drive through residential neighborhoods. Truck routes in Orange are located mostly in the general industrial area in the western part of the City, as well as on the higher capacity roadways that traverse the planning area. Truck routes are identified for such purposes as noise reduction, safety, roadway maintenance, and traffic operations. The Orange Municipal Code identifies trucks as motor vehicles designed, used, or maintained primarily for the transportation of property and having an unladen weight of six thousand pounds or more. Air Traffic Noise To lessen the impacts of noise associated with air traffic into and out of John Wayne Airport, Long Beach Airport, and Los Alamitos Army Air Station, the City will participate in regional efforts to require airlines to use quieter aircraft. Also, the City will work with airport officials and surrounding jurisdictions to restore instrument approach patterns (as opposed to visual approach) at John Wayne Airport. Finally, the City will continue to register noise complaints with the airport's Noise Abatement Office to ensure airport officials are made aware of any noise problems. A limited number of heliports and helistops are located throughout the City, with the most active locations being UCI Medical Center and Childrens' Hospital of Orange County. Helicopter operations at these facilities are regulated by the Federal Aviation Administration, Caltrans Division of Aeronautics, and the Orange County Airport Land Use Commission. The City will work with these parties to ensure compliance with all state and federal laws pertaining to helicopter operations. sininomotamat ORANGE GENERAL PLAN N-20 NOISE Sound Walls Along Toll Roads, Arterials, and Secondary Roadways The City will encourage Caltrans and the TCA to abide by Section 215.5 of the State Streets and Highway Code, which establishes a priority system for constructing noise barriers in the form of sound walls along freeways, to minimize exposure of residential or other noise- sensitive land uses to excessive freeway noise. Furthermore, all new residential development proposed adjacent to toll roads, arterials, and secondary roadways will be required to buffer itself by providing sound walls or a combination of berms and walls designed to achieve the noise and land use compatibility standards indicated in Table N-3 within common open spaces. In the event that sound walls are used, the analysis should include evaluation of multiple reflections between parallel noise barriers (e.g., large structures, noise barriers on each side of the highway) which could reduce the acoustical performance of individual barriers or result in unintended impacts to other parts of the community. Land Use Policy and Design of Residential Projects To mitigate non-transportation-related noise, the City will require site plan adjustments, higher insulation performance, spatial buffers, and other mitigation measures to absorb and block sound as needed. Design features incorporated into residential projects can be used to shield residents from excessive noise. For example, bedrooms, balconies and open space areas can be located away from streets and focused toward the interior of a project. The City will develop guidelines to assist developers to design structures that respond to noise concerns. Acoustical Studies Under certain conditions, the City may require acoustical studies to be prepared as part of the development review process to ensure adequate analysis of proposed development projects. Acoustical studies will be required for all discretionary projects where any of the following apply: The project includes a noise-sensitive land use that is located within the existing or future 65 dBA CNEL contour for transportation noise sources. The project will cause future traffic volumes to increase by 25 percent or more on any roadway that fronts a sensitive land use. The project will expose a noise-sensitive land use to a stationary noise source or vibration source exceeding the standards outlined in Table N-4. Such stationary sources may include mechanical equipment operations,entertainment venues, and industrial facilities. The project includes a noise-sensitive land use in the vicinity of existing or proposed commercial and industrial areas. The project is a mixed-use development that includes a residential component.The focus of this type of acoustical study is to determine likely interior and exterior noise levels and to recommend appropriate design features to reduce noise. ORANGE GENERAL PLAN N-19 NOISEstgraniovur windows open, and 25 dBA of NLR with windows dosed. Therefore, special consideration must be given to reducing interior noise levels to the required 45 dBA CNEL at noise-sensitive land uses exposed to noise levels in excess of 6o dBA. The NLR of a wall element or building facade can be calculated by first assuming a generalized A-weighted noise frequency spectrum for roadway traffic noise.Then,the composite transmission loss of the various wall materials and the wall's structural design is considered in determining the resulting noise level in the receiving room. After correcting for room absorption, the overall noise level in the room is calculated. The ability to perform these calculations requires detailed floor plans and facade construction details. Calculation of required NLR and resultant interior noise levels should be conducted by a qualified acoustical consultant. Table N-5 provides an example of varying levels of building façade improvements that may be required to achieve compliance with the interior noise level standard of 45 dBA CNEL for land uses exposed to three different noise levels: 6o dBA CNEL, 65 dBA CNEL,and 7o dBA CNEL. City Noise Control Ordinance The primary tool used to implement noise policy will be the City's noise control ordinance Title 8 Health and Safety, Chapter 8.24, Orange Municipal Code). The ordinance gives the City authority to regulate noise at its source and thereby protect noise-sensitive land uses. It also establishes exterior and interior noise standards for all residential properties. The ordinance specifies permitted days and times for construction, repair, remodeling, or grading of real property, and exemptions to the ordinance. The City will continue to apply provisions of the noise control ordinance, and will modify the noise ordinance as needed to respond to policy direction within this Element, including the noise standards specified in Table N-4, and policies addressing noise in mixed-use land use districts. State Noise Standards The City will continue to enforce state laws which set forth requirements for the insulation of residential dwelling units from excessive and potentially harmful noise. Title 25, Section 1092 of the California Administrative Code establishes exterior and interior noise standards for multi-family residential development. Units established in areas where ambient noise levels exceed 65 dBA CNEL must incorporate noise reduction features into project design and construction. To reduce exterior noise levels, open space and other outdoor private areas should be shielded from the primary noise source (e.g., a freeway or railroad track). Insulation must be provided to reduce interior ambient noise levels to 45 dBA CNEL or lower, pursuant to Title 24 requirements.The City will continue to enforce these regulations. Particular challenges arise in the application of standards to mixed-use areas. Residential portions of mixed-use projects must meet the 45 dBA CNEL Title 24 interior noise requirements while located on busy commercial corridors. This obligation can be met by incorporating design features that insulate residential uses from commercial portions of the project. ORANGE GENERAL PLAN N-18 AI& 00...:3C111111.fi., NOISE standards only after all other practical design-related noise reduction measures have been integrated into the project. Sound walls may not be desirable in some cases, such as intersections in commercial areas where visibility and access are important. Additionally, effective acoustical design features in new development can provide additional interior noise reduction. Regarding stationary and non-transportation generated noise, noise levels are to be addressed at the source as a primary focus. For mixed-use development in particular, acoustical design should be applied that isolates residential portions of mixed-use development from both commercial portions and external noise sources. When it is not feasible to address stationary noise at the source, the aforementioned noise reduction methods will be employed to reduce noise exposure to the levels presented in Table N-5. Table N-5 Sample Interior Noise Control Measures Noise Exterior to Interior Exposure Noise Level Reduction Noise Control Measures and Facade Upgrades Level NLR)Required to Achieve 45 dBA CNEL s6o dBA 15 dBA Normal construction practices consistent with the Uniform Building Code CNEL are typically sufficient. 6o dBA to 20 dBA Normal construction practices consistent with the Uniform Building Code 65 dBA are sufficient with the addition of the following specifications: CNEL Air conditioning or mechanical ventilation systems are installed so that windows and doors may remain closed. Windows and sliding glass doors are mounted in low air infiltration rated frames(o.5 cfm or less). Exterior doors are solid core with perimeter weather-stripping and threshold seals. 65 dBA to 25 dBA Normal construction practices consistent with the Uniform Building Code 7o dBA are sufficient with the addition of the following specifications: CNEL Air conditioning or mechanical ventilation systems are installed so that windows and doors may remain closed. Windows and sliding glass doors are mounted in low air infiltration rated frames(0.5 cfm or less). Exterior doors are solid core with perimeter weather-stripping and threshold seals. Glass in both windows and exterior doors should have a Sound Transmission Classification(STC)rating of at least 30. Roof or attic vents facing the noise source of concern should be boxed, or provided with baffling. Notes: 1) The information listed in this table is sample guidance for interior noise control recommendations and is not intended for application to individual development projects,renovations,or retrofits.Noise-sensitive land uses located in areas with noise level exposures exceeding 6o dBA CNEL should have a detailed acoustical analysis performed on a case by case basis. The most common and feasible method to control exterior-to-interior noise levels is achieved through improvements to the building structure and use of wall/facade treatments that reduce noise levels. Buildings constructed consistent with the Uniform Building Code (U BC) typically provide approximately 15 dBA of exterior-to-interior noise level reduction(NLR)with ORANGE GENERAL PLAN N-17 NOISE r• s. This Page Left Er Jammi. ORANGE r raj\ r iY',Lit, . aM r .•i -' Anaheim IINERAI.PLAN I r K 3 C of f i ro •IA, 1 - i Villa Park t t.— ',,::::::::::-"-- /- 1 ee 2 r. ) —, Pi.If, - ' .''''-' .*,• \ 'l' 'VI i '( j.. 1 9` ri I f is 1 s I a I 241 S z rJ a I r' i a —.r r .I. ' i s , r l 22ora t 22 •T1rC ) f'' r. s dzY.,n tiw•.a 1 it 1. • d' I 1 I„ 1 it t City of I i 7 jh/, i- Santa Ana I -1 I LEGEND 1 I I < v/ V. •..,` CD-n t- t r/ Planning Area Noise Contours j / i' 1 L.1 Sphere of Influence f --1 70 CNEL City of City Boundary J ---- Tustin i 0 /• 1 L..r' 65 CNEL Surrounding Cities 1 i Highways I i 1 Railroads TN. ' / I f•• Nk. Note:Large format map available at the Community Development Department N_ls Figure N-2.2o30 Noise Contours NOISE 4/i 4. A rs:ms...:_.v-.a- z e.z .., - n.,rsra-ss,: This Page Left Intentionally Blank) ORANGE GENERAL PLAN N-14 7 r r"if/ NM: r/t 1 r •••t ,..t.-. / City of i oEN ?LAD t y `r :i! • _L 1... Anaheim t i t j or 14.:\^ Vtr- ,,_ I Nw. fllwCityof7... ,. .._,. .Irj' nt.i„ m j Villa Park 1 f. wnliAks ts r 1.''a 241 raku,tr.__ / i, - . 4i 1 !I ' . ••tom rT i l N. i. 1 v 22 r I } jr i I•. 1 . illIP • f j 4 1 L I 1 ' I f Te6— © _ 1' _ II } , a'a me S it I 1 1/ 4 k• <JSaJAnalLi )it / e-, LEGEND 1 i 1 i Yt f Si //1 j Planning Area Noise Contours L-4 ,i I 1 1 L_ 1 Sphere of Influence i I70 CNEL Clty Of L 9 B/ City Boundary 65 CNEL TustinStlft ys;/ Surrounding Cities I j' 0. e Highways I i l- Railroads i i NOM 41111,1, 00 PAW. 02a 005 015 /, i 1 1 Note:Large format map available at the Community Development Department N-13 Figure N-t.2oo4 Noise Contours NOISE NOVA w. vim• The Land Use Element indicates that the planning area will accommodate additional future growth, accompanied by an increase in citywide traffic volumes. Traffic volume increases represent the major anticipated measurable new noise sources in the community over the long term. Potential future ambient noise levels can be estimated by modeling. Figure N-2 displays projected year 203o noise contours based upon future traffic levels. Figure N-2 indicates that noise levels may be expected to rise in areas where roadways will experience the greatest increase in traffic volumes over time.Specifically,these areas include Tustin Street, State College Boulevard/The City Drive, Chapman Avenue, Jamboree Road, Santiago Canyon Road, Glassell Street, Main Street, 1-5, SR-57, SR-22, SR-55, SR-241, SR-261, the Burlington Northern/Santa Fe Railroad,and throughout the City's industrial area, Identification of Noise Problem Areas Potential noise problem areas are considered to be those areas where ambient noise levels exceed established noise standards and areas where sensitive land uses are exposed to ambient noise levels in excess of standards identified in Tables N-3 and N-4. For the most part,these problem areas lie along freeways,toll roads,and arterial and secondary roadways where noise barriers have not been installed. Beneath the landing pattern for aircraft approaching John Wayne Airport in Santa Ana, Long Beach Airport, and Los Alamitos Army Air Station, some residents in the area find the aircraft noise disturbing. The aircraft noise may be considered an intermittent, recurring noise problem. Helicopter noise from private, police, emergency medical, and news and traffic monitoring helicopters also contributes to the general noise environment in the City, particularly approaching University of California Irvine (UCI) Medical Center and Children's Hospital of Orange County(CHOC). An additional noise problem cited by residents citywide is noise associated with the operation of hand-held, motorized leaf blowers. Gasoline powered blowers, which are generally used to clear debris from driveways, sidewalks, and landscaped areas generate noise levels in the range of 6o to 85 dBA Leq (measured 5o feet from the source).This noise level may exceed the standard established for stationary noise sources during both daytime and nighttime hours. Noise Control Techniques The most efficient and effective means of controlling noise is to reduce noise at the source. However, regarding noise generated from transportation systems, the City has no direct control over noise produced by trucks, cars, and trains, because state and federal noise regulations preempt local laws.Given that the City cannot control transportation noise at the source, City noise programs and standards focus on reducing transportation noise along freeways, arterial roadways, and rail corridors, through noise reduction methods that interrupt the path of the noise or directly shield the receiver. The emphasis of such noise reduction methods should be placed on site planning and design. Such reduction measures may include building orientation, spatial buffers, landscaping, and noise barriers. The use of noise barriers, such as sound walls, should be considered as a means of achieving the noise ORANGE GENERAL PLAN N-12 NOISE Table N-4 Maximum Allowable Noise Exposure—Stationary Noise Sources Noise Level Descriptor Daytime(7 a.m.to to p.m.) Nighttime(to p.m.to 7 a.m.) Hourly Equivalent Level(Leq),dBA 55 45 Maximum Level(Lmax),dBA 7o 65 Notes: 1) These standards apply to new or existing noise sensitive land uses affected by new or existing non-transportation noise sources,as determined at the outdoor activity area of the receiving land use. However,these noise level standards do not apply to residential units established in conjunction with industrial or commercial uses(e.g.,caretaker dwellings). 2) Each of the noise levels specified above should be lowered by five dB for simple tone noises,noises consisting primarily of speech or music, or for recurring impulsive noises. Such noises are generally considered by residents to be particularly annoying and are a primary source of noise complaints.These noise level standards do not apply to residential units established in conjunction with industrial or commercial uses(e.g.caretaker dwellings). 3) No standards have been included for interior noise levels.Standard construction practices that comply with the exterior noise levels identified in this table generally result in acceptable interior noise levels. 4) The City may impose noise level standards which are more or less restrictive than those specified above based upon determination of existing low or high ambient noise levels.If the existing ambient noise level exceeds the standards listed in Table N-4,then the noise level standards shall be increased at 3 dB increments to encompass the ambient environment. Noise level standards incorporating adjustments for existing ambient noise levels shall not exceed a maximum of 7o dB Leq. Noise Contours and Impact Areas The community noise environment can be described using contours derived from monitoring major sources of noise. Noise contours define areas of equal noise exposure. Future noise contours have been estimated using information about both current and projected future land use development and traffic volumes. The contours assist in setting policies for distribution of land uses and establishing development standards. A study of baseline noise sources and levels was completed by Alliance Acoustical Consultants in November 2004. Noise level measurements were collected during a typical weekday at 28 locations throughout Orange. Criteria for site selection included geographical distribution, land uses suspected of noisy activities, proximity to transportation facilities, and noise-sensitive land uses. The primary purpose of noise monitoring was to establish a noise profile for the planning area that could be used to estimate levels of current and future noise. Measurements represent motor vehicle noise emanating from freeways, the local roadway network, and industrial land uses. Typical noise sources measured during the short-term survey included vehicular traffic, aircraft, trains, emergency sirens, industry, mechanical equipment, sporting events, firework shows, children playing, motorcycles, car alarms, and car audio systems. Of all these sources, traffic noise was determined to be the predominant noise source. Figure N-i identifies noise contours for baseline year 2004. Major arterials and the railroad and freeway network represent the major sources of noise. A number of areas are exposed to traffic noise from arterials in excess of 65 dBA CNEL, including areas near State College Boulevard/The City Drive, Chapman Avenue, La Veta Avenue, Batavia Street, Glassell Street, Tustin Street, Katella Avenue,and Jamboree Road. ORANGE GENERAL PLAN N-11 NOISE Table N-3 Maximum Allowable Noise Exposure—Transportation Sources Land Use CNEL(dBA) Designations as shown on Figure LU-5) Uses Interior',3 Exterior' Estate Low Density Residential Single-family,duplex,and multiple-family 45 65 Low Density Residential Mobile home park N/A 65 Low Medium Density Residential Medium Density Residential Neighborhood Single-family 45 65 Mixed use Mobile home park N/A 65 Neighborhood Office Professional Old Towne Mixed-use Multiple-family,mixed-use 45 654,5 General Commercial Transient lodging—motels,hotels 45 65 Yorba Commercial Overlay Urban Mixed-use Sports arenas,outdoor spectator sports N/A N/A Urban Office Professional Auditoriums,concert halls,amphitheaters 45 N/A Office buildings,business,commercial and 5o N/A professional Light Industrial Manufacturing,utilities,agriculture N/A N/A Industrial Public Facilities and Institutions Schools,nursing homes,day care facilities, 45 65 hospitals,convalescent facilities, dormitories Government Facilities—offices,fire 45 N/A stations,community buildings Places of Worship,Churches 45 N/A Libraries 45 N/A Utilities N/A N/A Cemeteries N/A N/A Recreation Commercial Playgrounds,neighborhood parks N/A 7o Open Space Open Space—Park Golf courses,riding stables,water N/A N/A Open Space—Ridgeline recreation,cemeteries Resource Area Notes: 1) Interior habitable environment excludes bathrooms,closets and corridors. 2) Exterior noise level standard to be applied at outdoor activity areas;such as private yards,private patio or balcony of a multi-family residence.Where the location of an outdoor activity area is unknown or not applicable,the noise standard shall be applied inside the property line of the receiving land use. 3) Interior noise standards shall be satisfied with windows in the closed position.Mechanical ventilation shall be provided per Uniform Building Code(UBC)requirements. 4) Within the Urban Mixed-Use, Neighborhood Mixed-Use, Old Towne Mixed-use, and Medium Density Residential land use designations,exterior space standards apply only to common outdoor recreational areas. 5) Within Urban Mixed-Use and Medium Density Residential land use designations,exterior noise levels on private patios or balconies located within 25o feet of freeways(1-5, SR-57,SR-55,SR-22,or SR-241)and Smart Streets and Principal Arterials identified in the Circulation&Mobility Element that exceed 7o dB should provide additional common open space. N/A=Not Applicable to specified land use category or designation Source:Alliance Acoustical Consultants,modified by EDAW,2oo8 aim ORANGE GENERAL PLAN N-10 NOISE The City's compatibility standards provide only for normally acceptable conditions, based on state recommendations and City land use designations. The City's Land Use Compatibility standards are presented in Table N-3. These standards, which use the CNEL noise descriptor, are intended to be applicable for land use designations exposed to noise levels generated by transportation related sources. Land use compatibility noise exposure limits are generally established as 65 dBA CNEL for a majority of land use designations throughout the City. Higher exterior noise levels are permitted for multiple-family housing and housing in mixed- use contexts than for single-family houses. This is because multiple-family complexes are generally located in transitional areas between single-family and commercial districts or in proximity to major arterials served by transit, and a more integrated mix of residential and commercial activity (accompanied by higher noise levels) is often desired in mixed-use areas close to transit routes. These standards establish maximum interior noise levels for new residential development, requiring that sufficient insulation be provided to reduce interior ambient noise levels to 45 dBA CNEL. The City's land use compatibility standards are based first on the General Plan land use designation of the property, and secondly on the use of the property. For example, within the Urban Mixed-use designation, a multiple-family use exposed to transportation related noise would have an exterior noise standard of 65 dBA CNEL, and an interior noise standard of 45 dBA CNEL. Noise standards for multiple-family and mixed-use land use designations shown in Table N-3 are higher than those for rural or single-family residential areas, reflecting the gradually changing character of Orange and a more urban environment planned for certain areas of the City.The standards shown in Table N-3 are purposefully general in nature, and not every specific land use which could be accommodated within each General Plan designation is identified. Application of the standards will vary on a case-by-case basis according to location, development type,and associated noise sources. When non-transportation (stationary) noise is the primary noise source, and to ensure that noise producers do not adversely affect noise-sensitive land uses, the City applies a second set of standards when planning and making development decisions. These hourly and maximum performance standards (expressed in Leq) for non-transportation or stationary noise sources are designed to protect noise sensitive land uses adjacent to stationary sources from excessive noise. Table N-4 summarizes City stationary source noise standards for various land use types. These standards represent the acceptable exterior noise levels at the sensitive receptor. For City analysis of noise impacts and determining appropriate mitigation under the California Environmental Quality Act (CEQA), in addition to the maximum allowable noise level standards outlined in Tables N-3 and N-4, an increase in ambient noise levels is assumed to be a significant noise impact if a project causes ambient noise levels to exceed the following: Where the existing ambient noise level is less than 65 dBA,a project related permanent increase in ambient noise levels of 5 dBA CNEL or greater. Where the existing ambient noise level is greater than 65 dBA, a project related permanent increase in ambient noise levels of 3 dBA CNEL or greater. immgrimerartmainow ORANGE GENERAL PLAN N-9 NOISES 7:oo p.m. to 1o:oo p.m. Therefore, both the Ldn and CNEL noise metrics provide 24-hour averages of noise level exposure at a particular location, with temporal adjustments that reflect the increased sensitivity to noise during the evening and nighttime hours'. CNEL is the noise level descriptor, consistent with state guidelines, applied by the City throughout this Noise Element to describe the current and future noise environment affected by transportation-generated noise. Table N-2 Typical Noise Levels of Common Outdoor and Indoor Activities Common Outdoor Activities Noise Level(dBA) Common Indoor Activities no Rock Band Jet Fly-over at i,000 feet too 90 Diesel Truck at 5o feet,at 5o mph Food Blender at three feet 8o Garbage Disposal at three feet Noisy Urban Area,Daytime Gas Lawn Mower at three feet 7o Vacuum Cleaner at to feet Commercial Area Normal speech at three feet Heavy Traffic at 30o feet 6o Large Business Office Quiet Urban Daytime 5o Dishwasher Next Room Quiet Urban Nighttime 40 Theater, Large Conference Room background) Quiet Suburban Nighttime 3o Library Quiet Rural Nighttime Bedroom at Night,Concert Hall(background) 20 Broadcast/Recording Studio 10 Lowest Threshold of Human Hearing o Lowest Threshold of Human Hearing Source: Table N-2136.2 of California Department of Transportation's Technical Noise Supplement to the Traffic Noise Analysis Protocol(October 1998). Noise Standards and Land Use Compatibility Orange has developed its own land use compatibility standards, based on recommended parameters from the California Governor's Office of Planning and Research, that rate compatibility in terms of normally acceptable, conditionally acceptable, normally unacceptable, and clearly unacceptable. Using these land use compatibility guidelines, the City has established interior and exterior noise standards. In practical implementation CNEL and Ldn could be used interchangeably for traffic generated noise as the difference between these two descriptors for urban/suburban noise levels is less than one dB. ORANGE GENERAL PLAN N-8 4' NOISE The most prevalent noise source within the City is vehicular traffic on highways, freeways, toll roads, and arterials—specifically, the 1-5, SR-55, SR-57, SR-91 and SR-22 freeways that surround and pass through the City; the SR-241 toll road that crosses the eastern portion of the City; and the many arterial roadways that traverse almost all areas of the community. Other noise sources include passenger and freight rail operations, industrial facilities, loading docks and mechanical equipment at retail centers. Periodic sources of noise include train traffic(Amtrak, Metrolink,and freight trains); aircraft overflights into and out of John Wayne Airport, Long Beach Airport, and Los Alamitos Army Air Station; helicopter traffic along the Main Street and Katella Avenue corridors and over residential neighborhoods; sporting and exhibition events and fireworks shows in the City of Anaheim; and operation of trucks and machinery throughout Orange's industrial areas. Measuring Noise Although sound can be easily measured, the perception of noise levels is subjective and the physical response to sound complicates the analysis of its effects on people. People judge the relative magnitude of sound sensation in subjective terms such as noisiness or loudness. Sound pressure magnitude is measured and quantified using a logarithmic ratio of pressures, the scale of which gives the level of sound in decibels (dB). Table N-1 presents the subjective effect of changes in sound pressure levels. Table NA Changes in Sound Pressure Levels,dB dB Change Change in Apparent Loudness 3 dB Threshold of human perceptibility 1-5 dB Clearly noticeable change in noise level io dB Half or twice as loud 2o dB Much quieter or louder Source:Engineering Noise Control,Bies and Hansen 0988). To account for the pitch of sounds and an average human ear's response to such sounds, a unit of measure called an A-weighted sound pressure level (dBA) is used. To provide some perspective on the relative loudness of various types of noise, Table N-2 lists common sources of noise and their approximate noise levels. Many metrics have been developed to account for the way humans perceive sound. The most common of these descriptors are the average "equivalent" noise level (Leq), the Day Night noise level (Ldn), and the Community Noise Equivalent Level (CNEL). Leq represents a measure of the average noise level at a given location over a specified period of time. Ldn and CNEL are based on a 24-hour Leq which applies offsets to evening and nighttime noise levels to account for the increased sensitivity of people to noise occurring at night.The Ldn is a 24-hour average sound level (similar to a 24-hour Leq) in which a io dB penalty is added to any sound occurring between the hours of io:oo p.m. and 7:oo a.m. CNEL is similar to Ldn, except that a five dB penalty is also added for noise occurring during evening hours from ORANGE GENERAL PLAN N-7 NOISE ; Industrial Noise Industrial land uses have the potential to generate noise that can be considered intrusive to sensitive land uses. Depending on the type of industrial operation, noise sources could involve mechanical equipment, loading and unloading of vehicles and trucks, as well as amplified or unamplified communications.The level and intrusiveness of the noise generated also vary depending on the size of the facility, type of business, hours of operation, and location relative to sensitive land uses. GOAL 6.0: Minimize industrial activity noise in residential areas and near noise- sensitive land uses. Policy 6.1:Encourage the design and construction of industrial uses to minimize excessive noise through project design features that include noise control. Policy 6.2: Encourage industrial uses to locate vehicular traffic and operations away from abutting residential zones as much as possible. Construction, Maintenance, and Nuisance Noise Construction operations and maintenance vehicles such as refuse trucks and parking lot sweepers generate noise throughout the City. Although these types of noise sources tend to be short term, temporary, and limited, they can be a source of annoyance, especially during the late night or early morning hours. GOAL 7.0: Minimize construction, maintenance vehicle, and nuisance noise in residential areas and near noise-sensitive land uses. Policy 7.1:Schedule City maintenance and construction projects so that they generate noise during less sensitive hours. Policy 7.2:Require developers and contractors to employ noise minimizing techniques during construction and maintenance operations. Policy 7.3: Limit the hours of construction and maintenance operations located adjacent to noise-sensitive land uses. Policy 7.4: Encourage limitations on the hours of operations and deliveries for commercial, mixed-use, and industrial uses abutting residential zones. NOISE PLAN Noise is most often defined as unwanted sound. Potential noise problem areas are considered to be those areas where ambient noise levels exceed established noise standards, and areas where sensitive land uses are exposed to excessive ambient noise levels. Excessive noise is viewed as a disturbance, especially to residential communities and other noise- sensitive uses. Noise sources in Orange fall into two categories: transportation oriented and non-transportation oriented. Examples of transportation oriented noise include noise generated by vehicles, airplanes, and rail cars operating within the City. Examples of non- transportation noise include noise generated from mechanical or industrial processes and lawn equipment. ORANGE GENERAL PLAN N-6 vatti1111V NO I S E Aircraft Noise Although no airports or airfields are located in Orange, noise generated by aircraft overflights can be noticeable throughout the City. Aircraft operations associated with John Wayne Airport, Long Beach Airport, and even Los Alamitos Army Airfield use the airspace above the City in arrival and departure operations.The general noise environment in the City also includes helicopter noise from private, police, emergency medical, and news/traffic monitoring helicopters. GOAL 4.o: Minimize aircraft related noise in residential areas and near noise-sensitive land uses. Policy 4.1: Continue to provide input to the Orange County Airport Land Use Commission as appropriate to minimize airport noise. Policy 4.2: Continue to work with regional, state, and federal agencies, including officials at John Wayne Airport and Long Beach Airport, to implement noise-reducing measures and to monitor and reduce noise associated with aircraft. Policy 4.3: Continue to coordinate with the Federal Aviation Administration, Caltrans Division of Aeronautics, and the Orange County Airport Land Use Commission regarding the siting and operation of heliports and helistops in order to minimize excessive helicopter noise. Mixed-use Development Mixed-use development projects often include both residential uses located above or in close proximity to commercial uses and stand-alone multi-family residential uses, especially in areas served by rail and bus transit, along major roadways and the railroad corridor. Noise generated by commercial uses can include mechanical equipment operations, maintenance activities, public address systems, vehicles, entertainment, parking lots, loading operations, and trash collection, as well as pedestrian and business patron noise. A unique challenge presented by mixed-use development is that on one hand, such uses desire locations along busy street corridors and within activity centers, and on the other hand, state-mandated interior noise requirements for residential uses must be met within the residential portions of such use. GOAL 5.o: Minimize commercial activity noise in residential portions of mixed-use areas where residential units are located above commercial uses or within the same development. Policy 5.1:Encourage the design and construction of mixed-use structures to minimize commercial noise within the residential components of the development. Policy 5.2: Encourage new mixed-use development to locate the residential component of the development away from noise-generating sources such as mechanical equipment, entertainment facilities, gathering places, loading bays, parking lots, driveways, and trash enclosures. Policy 5.3: Encourage residential developments within mixed-use developments and located adjacent to commercial or retail and entertainment related uses to notify potential residents that they may be affected by noise from these uses. ORANGE GENERAL PLAN N-5 NOISE 111 weompssua=aw Policy 1.6:Require an acoustical study for proposed developments in areas where the existing and projected noise level exceeds or would exceed the maximum allowable levels identified in Table N-3. The acoustical study shall be performed in accordance with the requirements set forth within this Noise Element. Vehicular Traffic Noise Vehicular traffic is the most common source of noise experienced throughout the City. Primary sources of traffic noise include:the Interstate 5 and State Route (SR)-22,-55,-57,and 91 Freeways which surround and traverse the City; the SR-241/26i Foothill Transportation Corridor; and City arterial roadways. Arterials such as State College Boulevard/The City Drive, Chapman Avenue, La Veta Avenue, Batavia Street, Glassell Street, Tustin Street, Katella Avenue, and Jamboree Road are all high traffic volume roadways that generate traffic noise levels well above 65 dBA CNEL. Traffic noise is dependent on vehicle volume, speed, flow, and fleet mix, as well as distance from the roadway to the receptor. GOAL z.o: Minimize vehicular traffic noise in residential areas and near noise-sensitive land uses. Policy z.i:Encourage noise-compatible land uses along existing and future roadways, highways, and freeways. Policy 2.2:Encourage coordinated site planning and traffic control measures that minimize traffic noise in noise-sensitive land use areas. Policy 2.3:Encourage the use of alternative transportation modes such as walking, bicycling, mass transit, and alternative fuel vehicles to minimize traffic noise. Policy 2.4: Continue to work with the California Department of Transportation Caltrans), the Orange County Transit Authority (OCTA), and Transportation Corridor Agencies(TCA)to install, maintain, and update freeway and highway rights-of-way buffers and soundwalls. Policy 2.5: Work toward understanding and reducing traffic noise in residential neighborhoods with a focus on analyzing the effects of traffic noise exposure throughout the City. Train Noise Train noise currently experienced within the City results from the locomotive engines and warning horns associated with rail operations. These daily operations tend to produce high short-term noise levels that can be a source of annoyance to nearby sensitive uses. Depending on the number of daily movements, train operations also have the potential to generate noise levels that exceed 65 dBA CNEL along the rail corridors. GOAL 3.o: Minimize train noise in residential areas and near noise-sensitive land uses. Policy 3.1:Encourage noise-compatible land uses and incorporate noise-reducing design features within transit oriented, mixed-use development near rail corridors. ORANGE GENERAL PLAN N-4 4.0A0 Wit.,. . NOISE The contents of the Noise Element are also related to the Circulation & Mobility and Housing Elements, because Orange's primary noise sources include freeways, arterial roadways, railways,and aircraft. In turn, Noise Element policies are intended to mitigate excessive noise along transportation routes and direct housing to appropriate sites away from sources of excessive noise. ISSUES , GOALS AND POLICIES Certain areas of Orange are subject to high levels of noise from one or more of the following sources: freeways and arterial roadways, construction activities and machinery in industrial areas, railroads, aircraft, and fireworks noise from nearby Disneyland and Angel Stadium. All of these noise sources reduce the quality of life within the City. Considering noise sources in the planning process, identifying the noise impacts of potential development projects, and planning accordingly are effective methods of minimizing the impacts of noise on residents. The goals, policies, and implementation programs of the Noise Element address seven issues: 1)noise and land use compatibility; (2)vehicular traffic noise;(3)train noise; (4)aircraft noise; 5) noise associated with mixed-use development; (6) industrial noise; and (7) construction, maintenance,and nuisance noise. Noise and Land Use Compatibility Land use directly affects noise compatibility, because higher noise levels often associated with industrial, commercial, and mixed commercial and residential development can encroach upon more noise-sensitive land uses. Noise-sensitive land uses include: residences, hospitals, convalescent and day care facilities, schools, and libraries. Noise producing and noise-sensitive land uses should be either sufficiently separated or sufficiently buffered from one another to ensure that sensitive uses are not exposed to unacceptable noise levels. Proposed land uses should be compatible with existing and forecasted future noise levels. Incompatible land use noise exposures should incorporate noise attenuation and/or control measures within project design to reduce the noise to an acceptable interior level of 45 A- weighted decibels (dBA) community noise equivalent level (CNEL) or lower, as required by state regulations (CCR Title 24) for residential uses. (For an explanation of these terms and the relative noise levels of common noise-producing activities, see the discussion accompanying Table N-2 in the"Measuring Noise"section that follows.) GOAL to:Promote a pattern of land uses compatible with current and future noise levels. Policy 1.1:Consider potential excessive noise levels when making land use planning decisions. Policy 1.2:Encourage new development projects to provide sufficient spatial buffers to separate excessive noise generating land uses and noise-sensitive land uses. Policy i.3:Incorporate design features into residential and mixed-use projects that can be used to shield residents from excessive noise. Policy 1.4:Ensure that acceptable noise levels are maintained near noise-sensitive uses. Policy 1.5:Reduce impacts of high-noise activity centers located near residential areas. ORANGE GENERAL PLAN N-3 NOISE freeways present in Orange today. Relatively quiet suburban residential noise levels became the norm for most City residents.At the outset of the 21st century,Orange still has semi-rural areas in the eastern portions of the City, in addition to the suburban noise environment found in most of its residential neighborhoods and commercial areas. However, a noisier, more urban environment is now emerging in Uptown, and Land Use Element policies promote reinvention of certain City commercial corridors into mixed-use activity centers. At these mixed-use activity centers, residents, shoppers, and businesspeople alike may be exposed to higher noise levels due to traffic and human activity. Scope and Content of the Noise Element The Noise Element consists of three sections: 1) Introduction; 2) Issues, Goals, and Policies; and 3) Noise Plan. This Introduction summarizes the general purpose of the Noise Element. The Issues, Goals, and Policies section outlines the most relevant noise issues affecting the City. The goals are a statement of the general direction and broad ideals that capture the desire of the community. The policies provide potential solutions for decreasing noise. The Noise Plan defines noise standards, presents noise contour maps, and recommends strategies to achieve goals and implement policies. Implementation programs for the Noise Element are provided in an Appendix to the General Plan. The Noise Element addresses noise concerns that influence the comfort and quality of life of Orange residents. Excessive noise may originate from many sources, including vehicle traffic on freeways and arterial roadways, construction activities and machinery in industrial areas, railroads, and aircraft. Beyond direct mitigation strategies to address these sources of noise, the City is also committed to establishing and upholding guidelines for noise levels compatible with various types of land use activity. Mixed-use residential and commercial development presents unique noise reduction challenges. Although located in commercial environments, the residential portions of mixed- use projects are nonetheless subject to residential noise standards and guidelines established by the state. Strategies to address noise in these environments focus on incorporation of noise reducing measures in project design. Relationship to Other General Plan Elements Accomplishing the goals and policies of the Noise Element requires coordination with other related components of the City's General Plan. Other topics that are affected by the Noise Element include the Land Use,Circulation& Mobility, and Housing Elements. Impacts of noise policies and programs on the Land Use Element arise during identification of noise sources and noise-sensitive uses. The noise contours and land use compatibility standards contained in the Noise Element should be used when making planning and development decisions. ORANGE GENERAL PLAN N-2 IP* RANGE NOISE ENERAL PLAN INTRODUCTION AND VISION FOR THE FUTURE The urban environment contains a variety of noise sources that can affect the way people live and work. Some types of noise are only short-term irritants, like the pounding of a jackhammer or the whine of a leaf blower. These noise sources can generally be controlled through City noise regulations, including noise ordinances. However, certain noises, such as freeway, road, aircraft, and train noise, may be permanent fixtures in the community, diminishing its quality of life. In Orange, because of its location, transportation corridors are the major source of noise. Orange's Vision for the Future, presented in the General Plan introduction, includes the following objective related to the Noise Element: The City will work to improve the quality of life for all residents by providing residential, commercial, industrial, and public uses that exist in harmony with the surrounding urban and natural environments. The Noise Element is a mandatory General Plan element, required by California's Health and Safety Code Section 46o5o.oi. The goal of the Noise Element is to identify problems and noise sources threatening community safety and comfort and to establish policies and programs that will limit the community's exposure to excessive noise levels. It addresses both existing and foreseeable future noise abatement issues. Purpose of the Noise Element Recognizing that excessive or unusual noise can have significant adverse impacts on human health and welfare, the state has developed definitive guidelines for determining community noise levels and for establishing programs aimed at reducing community exposure to noise levels defined to be adverse. Policies, plans, and programs outlined within the Noise Element are designed to minimize the effects of human-caused noise in the community, and to improve residents' quality of life by regulating and reducing noise, particularly within residential areas and near such noise-sensitive land uses as residences, hospitals, convalescent and day care facilities, schools, and libraries. The Element provides direction regarding best practices and strategies to protect City residents and businesses from severe noise levels. The Noise Element recognizes that multiple noise environments exist within the City, including rural, suburban, and urban environments. As Orange evolved from a rural agricultural town to a bustling suburban community in the middle to late zoth century, the noise environment similarly changed. Rural roads were replaced by the arterials and ORANGE GENERAL PLAN N-1 REV. GPA No. 2014-0001 (12/2015) PUBLIC SAFETY Crime Prevention Through Environmental Design 32 Disaster and Emergency Preparedness 34 Emergency Operations Plan 34 Table PS-2 Emergency Operations Responsibilities 35 Emergency Access and Evacuation 35 Standardized Emergency Management and Mutual Aid Assistance 36 Emergency Shelters 37 Table PS-3 Emergency Shelters/Assembly Points 37 Homeland Security 37 Figure PS-7. Generalized Evacuation Corridors 38 Figure PS-8. Fire Evacuation Area Map 39 Public Safety Implementation 40 ORANGE GENERAL PLAN PS-42 PUBLIC SAFETY Introduction and Vision for the Future 1 Purpose of the Public Safety Element 1 Scope and Content of the Public Safety Element 2 Public Safety Considerations 2 Natural Environmental Hazards 2 Human-Caused Hazards Affecting Land Use Policy 2 Relationship to Other General Plan Elements 2 Inclusion of the City of Orange Hazard Mitigation Plan 3 Issues,Goals and Policies 3 Geologic and Seismic Hazards 4 Flood Hazards 4 Fire Hazards 5 Hazardous Materials and Human-Caused Hazards 8 Aircraft Operations 8 Emergency Services and Safety 9 Crime Prevention 10 Disaster/Emergency Preparedness 11 Pedestrian and Bicycle Safety 11 Public Safety Plan 12 Figure PS-1. Environmental and Natural Hazard Policy Map 12 Geologic and Seismic Hazards 13 Earthquakes 13 Table PS-1 Earthquake Magnitude and Intensity Comparison 14 Landslides and Liquefaction 15 Flood Hazards 15 Natural Flood Hazards 16 Dam Inundation Hazards 16 Figure PS-2. Potential Groundshaking Zones—8.3 San Andreas Earthquake 17 Figure PS-3. Potential Groundshaking Zones—7.5 Newport-Inglewood Earthquake 19 Fire Hazards 19 Wildfires... 19 Figure PS-4. Very high fire hazard Severity Zones Map 20 Urban Fires 22 Figure PS-5. Wildand Urban Interface(WUI) Pre-Plan Map 23 Figure PS-6a. Residential Development in a Fire Hazard Zone with a Single Emergency Evacuation Route and Development Planned in a VHFHSZ map 24 Figure PS-6b. Detail of Residential Development in a Fire Hazard Zone with a Single Emergency Evacuation Route and Development Planned in a VHFHSZ map 25 Hazardous Materials and Human-Caused Hazards 26 Hazardous Materials 26 Solid Waste Disposal Sites 26 Pipelines 27 Underground Storage Tanks 27 Aircraft Operations 28 Emergency Services and Safety 28 Fire Services 29 Training 29 Fire Prevention 30 Police Services 31 Crime Prevention 31 ORANGE GENERAL PLAN PS-41 PUBLIC SAFETY Pedestrian and Bicycle Safety Providing a safe environment for pedestrians and bicyclists means designing streets that can carry vehicles,but that are also scaled for pedestrians and cyclists. Furnishing streets with bike racks, benches, lighting, and landscaping; repairing missing or dangerous sidewalks; and designating bike paths are all techniques the City can employ to reduce pedestrian and bicycle accidents. A desirable pedestrian and bicycle environment also requires circulation improvements such as placing clear signs for cyclists and pedestrians, and providing buffers and traffic calming to tame automobile traffic around pedestrians and cyclists. Implementation of the City's goals and policies for pedestrian and bicycle safety will require an assessment of existing streets and of the City's ability to expand or add improvements to accommodate the needs of pedestrians and cyclists in addition to automobiles.These policies are closely related to Circulation&Mobility Element policies that encourage vehicle safety.The City will also pay special attention to high-risk areas such as parking lots and areas surrounding schools and recreational facilities. PUBLIC SAFETY IMPLEMENTATION The goals, policies, and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaboration with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. Apentnuraig ORANGE GENERAL PLAN PS-40 aremPevr,---0,4a A' \--> PUBLIC SAFETY r,- ---,-V—It V ,T1 1hi,aka .. , I • 4.-,I's • •—• 4.1'1 0, 1 4L:1.1:,•7---',44 46.1.... A • 4-.. Fax, N. ••AOc c) , ..,_....,„ ....., ......,...., 1 .,„rGo .c46-44(- 1- T-... 4..._ , l-4 C\ 11 ' \7••••••;••......-sai 0 L .—Lik 1,ast A* \ ^, f 4g - 11 1 1 \ \11011V 1 I $....:... ..,....421.....AVE I ml•••.. 3- 4 ,,, , ._\.>i. 41.00' 11110k'A 1 AVE g ex* au,. , N pri _ ,--:- o, 4- 4 i• I Ate 4 - ....... .. '411riw Igg 7' .... 14,r,400te," li. ,X,..'„.--i rp, 1," i k• 4 QT M 1fEw imik—eo qi 114"-- • irB lit EVACUATION AREA 0 In most cases, we will evacuate people in a WESTERN direction Westbound Serrano, Northbound Cannon St. Legend 0' Westbound Santiago Canyon Rd. Evacuation Road Block IP.' Westbound Chapman Ave. Evacuation Route Figure PS-8. Fire Evacuation Area Map ORANGE GENERAL PLAN PS-39 r e.,co .., „..;„_, ...___ : vo, , 1./ a« 1 jr /h l City of t 46 NitetsneL PLAN GE i j .1.,—;"+, r '' k.. Anaheim i/ L 1 f} a I . r.• i°\taaax ww.\<. \4, i..%^` 0 1', J/••1 ''\I a lii Sr I 7 i, F ^ J ej r 1 / f li i i1 / i i I L.._./ o'— / NO J/ 'Al:______: iill Villa ParkI 141 r T.., Pit.YL Il461111 Ivied.. ec ill _ _ I /"` • J _: .( K rrr—J I 55 j r.i 1.,,' ti'3 ) \i .i y rauws A\e. a. 5 it . T F I i a'— • i. 6 GI p 11r i \ t• r. t 11ptAVGH't%ID a\t. v_ WYAIn AUF Ilk y1` s 1/! . m.,,,,i,: b4.11 , .-- I.° 1.16,44 N. rI L 1 •j, s I r AVEne i uur,Al, .., 5 r.- ... \ A•n" j i \( 1r 1 ajra. +I. xl r: •`' 1.wi_\r_L r L L.Liti/ .t:F!.'.4f.. . . '•' ''p ?• ir., 1sa•rA<w..\\ _C K I. AA\r. 1 /• l F z City of ( 55 ` y 1%I 4.i Santa Ana %j \,rnI 1 If ' Vi 241 r' I-' zsL i LEGEND S i_...,• 1 i if l..y . Iu I V I PlanningArea I h Evacuation Corridors 1-- CZ,Sphere of Influence Note.The evacuation routes to 1w used City of i t`•/ City Boundary and direction of evacuation will Tustin j P Surrounding Cities depend upon the type of emergency. E, Highways These are generalized. I-. Railroads mom 0 015 OS 075 1 1 PS-38 Figure PS-7.Generalized Evacuation Corridors milmmmt,ii... mrsmismmmmmismoitemink PUBLIC SAFETY Emergency Shelters In the event of either a natural or human-caused disaster, homes may be destroyed or be inaccessible for extended periods of time. Orange residents will require some form of temporary shelter. As Table PS-2 indicates, the Red Cross bears primary responsibility for providing emergency shelter to displaced residents. The Red Cross maintains a list of emergency shelters within and immediately adjacent to the planning area. Most of these emergency shelters, listed in Table PS-3, are public or private schools. The Wildland Urban Interface pre-plan temporary evacuation assembly points are consistent with Table PS-3. Table PS-3 Emergency Shelters/Assembly Points Primary Sites El Modena High School 392o Spring,Orange Orange High School 525 N.Shaffer,Orange Villa Park High School io842 Taft,Villa Park McPherson Middle School 333 S.Prospect,Orange Peralta Middle School 2190 Canal,Orange Santiago Middle School 515 N.Rancho Santiago,Orange Yorba Middle School 935 N.Cambridge,Orange Cerro Villa Middle School 17852 Serrano,Villa Park The Outlets at Orange Shopping Center zo City Blvd W Secondary Sites All Elementary Schools City-wide Homeland Security In the aftermath of the terrorist attacks on September 1i,zooi,the City of Orange's emergency preparedness and response services have become an even more critical function. Since the events of 9/11, a considerable amount of information has been generated on potential vulnerabilities, protective measures, and anti-terrorism and security technologies. The Police and Fire Departments recognize the need not only to learn from the lessons of 91li, but also to collectively address the anti-terrorism planning and policy issues that most affect Orange residents. The goals, policies, and implementation programs associated with emergency preparedness also apply to readiness and response to terrorist acts. The Police Department also offers education presentations to the community, City Staff, businesses,schools, and neighborhood groups on topics such as active killer or shooter. ORANGE GENERAL PLAN PS-37 as. PUBLIC SAFETY the City's development review process. However,there are existing residential developments within the Very High Fire Hazard Safety Zone (VHFHSZ) that do not have at least two evacuation routes. These developments are located as shown on Figure PS-6a and PS-6b. The City already applies strict target-hardening codes to construction and redevelopment in this area and will look to implement any additional evacuation routes for the area as opportunities arise. The City's Emergency Operations Plan utilizes evacuation routes for emergency situations and Fire Evacuation Area Maps are provided for public use on the Police Department's website. The City's Wildland Urban Interface pre-plans also identify potential choke points/entrapment areas, safety zones, and a primary evacuation plan. The routes of escape from disaster- stricken areas will depend on the scale and scope of the disaster. For example, a flood occurring along the Santa Ana River would require evacuation of the City's industrial area east toward the Costa Mesa (SR 55) Freeway. However, if a large fire occurred in the eastern portion of the industrial district,employees would evacuate to the west,toward the Santa Ana River. Figure PS-7 provides a generalized version of the City's evacuation corridors. Although emergency egress may vary depending on the type and scale of emergencies,it will most often take place on Chapman Avenue, Katella Avenue,Glassell Street, Lincoln Avenue,Orangewood Avenue, and Hewes Street. Most of these streets are wide, arterial roads with capacity to efficiently move residents in and out of the City.The City will continue to evaluate the viability of each of these routes to serve as evacuation corridors. Figure PS-8 provides greater-detailed evacuation corridors for wildfire events in the easterly portions of the City that abut very high fire hazard severity zones. The City of Orange Police Department website hosts a "Know Your Way" in an emergency webpage with a prominent link to the evacuation routes and each color-coded neighborhood has a magnified evacuation route map. Standardized Emergency Management and Mutual Aid Assistance Standard Emergency Management System(SEMS)and National Incident Management System NIMS) are used by the City to provide a standardized approach to emergency management across all jurisdictions and disciplines. Both systems use common terminology and organizational structure to allow incident coordination, regardless of local, State, or federal government agency participation. Mutual Aid agreements(both local and master)provide for rapid sharing of resources during emergencies. Based on the principle that no single agency has enough resources to handle all potential emergencies by themselves, a cooperative sharing of resources across districts and jurisdictional boundaries does. Local Mutual Aid agreements allow for rapid sharing of nearby resources form other agencies. Master Mutual Aid agreements provide sharing of resources form more distant jurisdictions. The City participates in the SOLAR Plan, an agreement between the San Bernardino, Orange, Los Angeles,and Riverside County fire agencies to provide for common radio communications and coordinated response. Arrsionagap ORANGE GENERAL PLAN PS-36 k r'''"•.,.2a-.. EE r:.o PUBLIC SAFETY OS Table PS-2 Emergency Operations Responsibilities b,o I C 00 CJ C L a, r o C ra E l= • v E d is iv y s y Cl C L C r, v Q tel O v u C N p,V C N• .7 p to C O 0 v,d 8 C > y H LO G- o C N w 7 V d u T d too C a tr. Q to a it v in a 3 v Q V, City Departments Police i 'III Fire Ill rittarg Public Works RIMgi- lit r x 3 M M Ali Einto fit..-.::._ y: a:Community Services e Community Development ii ' 1 Finance ie i s Human Resources Library F` i<,„ City Attorney IN City Clerk City Manager Outside Agencies County Health Red Cross Notes: Z Supporting Agency/Organization .Principal Agency/Organization In support of Disaster and Emergency Preparedness, the Police Department provides a Community Emergency Response Team (CERT) program to support emergency awareness and preparedness for the Orange community. Emergency Access and Evacuation All City arterials are recognized as primary emergency response routes. In addition, non- arterials can be secondary emergency response routes. The City's Residential Neighborhood Traffic Management Program, which identifies traffic management and traffic calming tools, specifies that emergency vehicle access shall be accommodated consistent with response standards with implementation of appropriate traffic management measures.Additionally, if current emergency vehicle access does not meet existing response standards,traffic calming efforts should not further degrade response times. The City ensures that all new or substantially remodeled development or right-of-way improvements provide for emergency access and evacuation based on compliance with the most recent California Fire Code,California Building Codes, Fire Master Plan requirements,and ORANGE GENERAL PLAN PS-35 zaimmow PUBLIC SAFETY Continuation and monitoring of CPTED programs will promote safety in Orange neighborhoods. Disaster and Emergency Preparedness Being prepared and knowing what courses of action to take in case of emergencies reduces the chance of injury and damage. Educating staff and the public regarding hazards prepares them mentally and physically, leading to quick and appropriate response.The City will initiate and support practices of emergency evacuation measures at home,at work,and in schools to reduce the effects of emergencies on everyday life. Emergency Operations Plan In case of emergencies within Orange or originating from areas outside the municipal boundary, including foreign and domestic terrorist acts, the City will correspond with other jurisdictions, regions, and agencies to take appropriate actions. The City has an emergency plan which establishes emergency preparedness and emergency response procedures for both peacetime and wartime disasters. The plan is termed an "Emergency Operations Plan," prepared in accordance with the State Office of Emergency Services guidelines for multi- hazard functional planning. The plan consists of three parts: i) a basic plan; 2) annexes which address specific functions and duties of response agencies; and 3)a directory of emergency response resources. Rather than focusing on specific responses for specific hazards,as contingency plans have done in the past, the City's plan concentrates on specific agency response for any type of disaster. For example, in the event of an earthquake, flood, or industrial accident, the Orange Fire Department is responsible for fire suppression, emergency medical care, and rescue operations. The various annexes in the City's Emergency Operations Plan outline emergency responsibilities by type of operation, such as "Fire and Rescue" or"Care and Shelter." Table PS-2 summarizes emergency operation responsibilities of various City departments. ORANGE GENERAL PLAN PS-34 ik„ PUBLIC SAFETY Natural Surveillance:Arranging populated functions or rooms in homes and businesses to face the street allows easy surveillance by residents and employees. Crime is discouraged through the design and orientation of buildings and public spaces, along with placement of physical features,activity centers,and people in ways that maximize the ability of others to see what's going on. Conversely, barriers such as bushes, sheds, or shadows make it difficult to observe activity. Windows or doors oriented to streets and public areas, in conjunction with landscaping and lighting that promote natural surveillance from inside a home or building and from the outside by neighbors are effective means of passive crime prevention. Access Control:Circulation,site,and building access can be controlled through designating paths and placing bollards or fences to limit access. Activity Support: Supporting activities on the street attracts people and encourages natural surveillance. Encouraging legitimate activity in public spaces assists in discouraging crime. Improvements such as a basketball court in a public park and community activities such as a clean-up day, block party, or civic or cultural event bring people out, get them involved, and help discourage vagrancy and potential illegal acts. Providing a mix of land uses, types of residential development, and public or quasi-public spaces encourages diverse households and patterns of activity, increasing security due to round-the-clock activity and more eyes on the street. Maintenance: Maintenance of sidewalks, street trees, lighting, and private property discourages negative behavior such as littering and vandalism. Crime Prevention Through Environmental Design (CPTED) concepts enable developers and designers to incorporate crime prevention measures into building design.Territoriality can be achieved by demarcating boundaries with various surface treatments and careful design to make intrusion and suspicious activities easy to identify. Building orientations that face the street, window placements and size, and provision of lighting allow neighbors to survey their neighborhood and discourage intrusion. Pathways and obstructions such as walls and gates allow property owners and the City to control access. Crime prevention also requires public participation. The City's Neighborhood Watch Program relies on Orange neighbors as its most effective crime prevention tool. The program provides training to volunteers who maintain neighborhood safety by being watchful and reporting suspicious behavior in their area. Crime prevention relies upon programs implemented by government agencies. To reduce crime,the City will emphasize the need for well-lighted community areas and the use of extra surveillance in areas susceptible to high crime rates,such as parking lots.Complementary uses within mixed-use areas will be encouraged to reduce crime. Activity support is strengthened by intentionally placing programs and activities in areas that improve the perception of safety and discourage potential offenders. The success of CPTED depends on maintenance of all these programs. Maintaining streets, lighting,and landscaping facilitate natural surveillance and access control. Maintaining private and public properties requires participation from property owners and City departments. ORANGE GENERAL PLAN PS-33 2,r r PUBLIC SAFETY Public Outreach and Education The Police Department works with the community to promote safety by increasing awareness of personal and property crime risks. Crime prevention also involves educating the public about personal safety, business and neighborhood watch programs, and residential and business security. The Police Department connects with the community using social medial platforms including Facebook, Instagram,and Twitter. The Police Department facilitates a Business Watch program that teaches business owners and employees crime prevention techniques and strategies they can use to help cut down on business-related crime. Training is conducted at a business complex with managers, owners, and employees to help maximize attendance. The goal of the Business Watch program is to teach businesses how not to become a target for crime. If businesses do not take a proactive approach,crime can gradually develop and affect the business environment. The Police Department provides a Citizen's Academy. The program allows the opportunity for the community to learn generally about police functions and to get to know Police Department personnel. The Police Department's Crime Prevention Bureau coordinates Neighborhood Watch programs that emphasize the importance and effectiveness of crime reporting by neighbors. Neighborhood Watch allows neighbors to report suspicious behavior or incidents to the Police Department.The program encourages neighbors to get to know one another and keep an eye on their community, enabling the City to increase security for its residents. The program also provides public awareness and prevention seminars. The Crime Prevention Bureau also offers several additional free crime prevention programs to the community, including security inspections of homes and businesses within the City, and electronic engraving for personal items and vehicles through the Operation Identification program. Educational presentations to community, business, and neighborhood groups are also available on topics such as child safety,identity theft prevention,personal safety,burglary prevention, and senior safety. The City strongly supports these outreach and education activities,and the Police Department will continue to support community programs and neighborhood-level efforts toward crime prevention and education. Crime Prevention Through Environmental Design Orange values environmental design as a tool to help prevent crime. The concepts of CPTED offer non-invasive and permanent measures to prevent crime in the City. CPTED includes the following five concepts:territoriality,natural surveillance,activity support,access control,and maintenance. Territoriality:Demarcating the boundary of a property or an area through walls and fences can discourage intrusion. People tend to protect territory that they feel is their own and to respect the territory of others. Low decorative fences, artistic pavement treatments, well-designed signs, good property maintenance, and high quality landscaping express pride in ownership and identify personal space. ORANGE GENERAL PLAN PS-32 F* 4111119111MWMoraitr.oW PUBLIC SAFETY Fuel Modification and Weed Abatement Wildfire is an ever-present threat in the eastern and northern portions of the planning area. This threat is managed by proactive fuel modification and weed abatement. Fuel modification is the progressive thinning and irrigation of selected vegetation to form increasingly fire resistant vegetation as brush fires approach buildings. It is required for all developments bordering the wildland-urban interface. Compliance with weed abatement standards provides defensible space between structures and dead brush, grasses,and other vegetation.Weed abatement inspections for required clearance are performed twice a year for all vacant City-owned and private lots. Private property owners and homeowners'associations are responsible for the continual maintenance of fuel modification installations and biannual weed abatement. The City utilizes the Vegetation Management Guideline - Technical Design for New Construction, Fuel Modification Plans, and Maintenance Program to accomplish fuel modification, weed abatement, and defensible space necessary in new development. Furthermore, Fire Department staff enforce defensible space requirements in the VHFHSZ and require adherence to development restrictions and maintenance requirements in the VHFHSZ. Police Services The Orange Police Department responds to emergency situations and patrols neighborhoods and commercial areas within the City to promote a safe environment. The staff maintains official criminal records, investigates crime, and, in an emergency, assesses situations and quickly dispatches appropriate emergency responses. The Police Department also directs proactive crime prevention programs. The Department's headquarters is located on North Batavia Street and includes the City's Emergency Operation Center.The Department operates a substation at the Outlets of Orange. To maintain the City's ability to serve current residents and businesses, applicants will be required to provide for adequate services and equipment to serve residents and businesses of new developments. Land uses will be evaluated and modified, if necessary,to facilitate access to emergency services,meet service standards, and ensure land use compatibility. Orange's partnerships with other public agencies and businesses will also improve its emergency services. For example, the City receives fire and emergency medical dispatch services from the Metro Cities Fire Authority Communications Center that serves six other cities in the County.The City participates in the Standardized Emergency Management System SEMS)for mutual aid and communication with other agencies during regional emergencies. Coordination with other cities and regions, and with State and federal agencies, will help address hazards both within and beyond the City's jurisdiction. Crime Prevention Reducing crime in the City enhances the living and business environment. A low crime rate attracts new businesses and gives residents a greater sense of security and community pride. ORANGE GENERAL PLAN PS-31 gar 4ffimarsaratrc PUBLIC SAFETY to improve the quality of education and training in the fire service. The RT-13o wildland firefighting training is refresher training supported by The National Wildfire Coordinating Group. RT-13o classes are offered annually and are mandatory for all personnel to be eligible to respond out of County for wildfire incidents. The Orange City Fire Department provides RT- 13o training each year and tracks attendance for full compliance. Fire Prevention The Fire Department engages in fire prevention via public education, preplanning project review of new construction, annual inspections of facilities with potential hazards, inspecting for State Fire Clearances,and inspecting fuel modification/weed abatement. Public Education Public education provides members of the community with tools to increase the level of safety in their homes and workplaces by preventing fire and other emergencies. It also equips them to minimize injury and property loss in the event that an emergency does occur.The Fire Department provides public education by request,using personnel as available. The City does not currently have any Firewise communities but is available to support and assist any future efforts by interested neighborhoods. New Construction The Fire Department is actively involved with new development and redevelopment in the City.The Fire Plans Examiner meets with developers early on in the project planning phase, attends internal project review meetings, and coordinates plan review with contract plan reviewers on an as-needed basis. Plans are reviewed for compliance with the California Fire Code,City Fire Master Plan Guidelines,defensible space requirements in the VHFHSZ, emergency responder access, water supply, and water pressure/fire flow. The New Construction Inspector witnesses on-site testing and installation of fire protection systems,and confirms that construction conforms to approved plans. Annual Inspections All businesses with fire permits receive annual inspections. Moderate-hazard, non- permitted businesses receive field inspections once every three years.The Office of the State Fire Marshal requires annual inspections for apartments and high-rise buildings. Many of the Fire Department's occupancy inspections are conducted by the Operations Division (firefighting personnel). However, the Prevention Division conducts inspections in multi-family dwellings, high-rise structures, institutional and hazardous occupancies,as well as other locations selected for their complexity. State Fire Clearances The State of California licenses various educational, institutional, and residential facilities, such as family day care homes, nursing homes, and residential care facilities for the elderly.As part of the licensing requirements,the Fire Department is responsible for issuing fire clearances after all State fire and life safety requirements have been met. ORANGE GENERAL PLAN PS-30 eta PUBLIC SAFETY Departments will continue proactive training and planning programs, and utilize state-of-the- art technology to improve response and increase public safety. Fire Services The main goals of the Fire Department are to prevent and minimize death and injury, environmental damage, and property loss. In addition to fighting fires, the Fire Department works to achieve these goals through public education, fire prevention, hazardous materials management,and fire investigations.Orange's Fire Department provides fire,paramedic,and ambulance services. Paramedic teams are located at eight stations, of which four also provide ambulance service with an average response time of 4 minutes, 47 seconds; and average transport unit response times of 5 minutes, 15 seconds. The Fire Department employs fire fighters who are also trained in paramedic techniques. The Fire Department obtained a Standards of Cover Assessment in 2015 which contains adopted written policies and procedures that determine the distribution, concentration and reliability of fixed and mobile response forces for fire,emergency medical services,hazardous materials and other technical responses and seeks to implement short and long-term steps identified in the plan to maintain optimal services to the City. Training Members of the Fire Department are trained in Urban Search and Rescue (US&R). As part of the Orange County Task Force 5 US&R Team, one of 28 operational FEMA US&R teams in the United States, US&R team members provide trained urban rescue teams for regional and national emergencies. The Department also has a Swift Water Rescue Team that deploys rescue equipment during flood hazards. In addition to training for more common hazards, firefighters also train to handle incidents involving weapons of mass destruction, learning procedures for identification, decontamination, evacuation, and shelter-in-place. National Fire Protection Association (NFPA)standards are guidelines or"best practices”that the Fire Department strives to meet. NFPA standards state that the fire department shall have a training program and policy that ensure that members are trained and competency is maintained to execute all of its responsibilities. The Orange City Fire Department's training program provides for emergency service training to its staff members primarily through regionally offered classes. Common classes are Terrorism Liaison Officer, WebEOC, AIertOC, and EOC classes. The Orange City Fire Department complies with Emergency Medical Services Authority(EMSA) standards by certifying all suppression personnel with CPR, Emergency Medical Technician, and Paramedic certifications and licensures. All three of these programs are administered on an on-going basis to ensure Fire Department staff remains current. Orange maintains Emergency Medical Transport program compliance with the local EMSA (LEMSA) office Orange County Health Care Agency). The Joint Apprenticeship Committee is a joint effort funded by the California State Fire Marshal's Office, and the California Professional Firefighters Association. It provides funding for each hour of training provided to apprentices in the fire service. These funds can be used Nomersenormataw ORANGE GENERAL PLAN PS-29 as PUBLIC SAFETY environment from releases of petroleum and other hazardous substances from tanks. The Hazardous Materials Specialists Leak Prevention Program element includes requirements for tank installation, construction, testing, leak detection, spill containment, and overfill protection.CUPAs are the implementing agencies for the Leak Prevention program element. Cleanup of leaking tanks often involves a soil and groundwater investigation and remediation, under the direction of a regulatory agency. Responsible parties who believe cleanup at their site is complete and are denied case closure by the regulatory agency may consider filing a closure petition. Aircraft Operations The planning area is not located within any airport crash zones. However, because aircraft paths cross air space between the Costa Mesa Freeway(SR 55) and Newport Boulevard, the City is vulnerable to mid-air collisions of aircraft headed for John Wayne Airport or the U.S. Army Airfield in Los Alamitos,and of helicopters flying to medical centers.Such accidents could result in injury and structural damage to residents, homes, employees, and businesses in Orange.To minimize the chance of such aircraft collisions,the City will work with the Federal Aviation Administration, the Orange County Airport Land Use Commission, California Department of Transportation (Caltrans), major medical institutions, and other agencies to ensure aircraft use flight paths that minimize the City's exposure to potential accidents. The City will comply with the Airport Land Use Commission (ALUC) for Orange County's Heliports and Airport Environs Land Use Plan to ensure that future land uses located near helipads remain compatible. This plan requires that the construction of a new heliport or helistop complies with FAA and Caltrans permit procedures, as well as all applicable requirements of the City of Orange. Additionally, the plan requires that construction or alteration of structure in excess of zoo feet in height complies with federal and State law(FAR Part 77 and PUC 21676(b), respectively) and with the requirements of the Airport Land Use Commission for Orange County,as well as all applicable requirements of the City of Orange. The City will ensure that development proposals including the construction or alteration of a structure more than zoo feet above ground level must fully comply with procedures provided by federal and State law, with the referral requirements of the ALUC, and with all conditions of approval imposed or recommended by the FAA and ALUC including filing a Notice of Landing Area Proposal (Form 748o-i). This requirement will be in addition to all other City development requirements. Emergency Services and Safety Achieving ideal law enforcement and emergency services requires coordination between the services provided by the City and the demands of the community.The City will first work with the community to identify the level of services desired. Then, the City will assess existing and future police and fire services,facilities, equipment, and personnel to determine its ability to meet current and future demands.The City's Police and Fire Departments will continue to use public outreach and education to increase community awareness regarding hazards,the City's Emergency Preparedness Program,and homeland security in Orange. In addition,the City will support programs that address crime and fire prevention activities. The Police and Fire 41.0 ORANGE GENERAL PLAN PS-28 w.PUBLIC SAFETY Yorba, located at the southwest corner of Chapman Avenue and Yorba Street in the City of Orange.The physical address is 190 S. Yorba Street. In addition to the aforementioned closed landfills, the planning area has solid waste sites listed on the State's Solid Waste Information System (SWIS). These sites are indicated in Figure PS-1, and consist of the following: Blue Ribbon Nursery& Landscape Supplies, 1425 N.Santiago Boulevard CalTrans Orange Maintenance Station LVTO, 691 S.Tustin Street Cerro Villa Heights Disposal Station#7, 5850 E. Crest De Ville City of Orange Santiago Creek Landfill, 190 S.Yorba Street City of Orange Corporate Yard LVTS Op., 637 West Struck Avenue La Veta Station#2, 465 S.Tustin Street Orange City Dump#9, North of Chapman Avenue&Yorba Street, North of Chapman Global Medical Center Reeve's Pit, 19111 Villa Park Road Rio Santiago, 6145 E. Santiago Canyon Road Santa Ana Valley Irrigation Dump#1(abandoned), East Bank of the Santa Ana River,South of Lincoln Avenue,West of River Trail Road Santa Ana Valley Irrigation Dump #2 (abandoned), East Bank of the Santa Ana RiverS Of Lincoln And Batavia Santiago Canyon Sanitary Landfill, 3099 Santiago Canyon Road Villa Park(Loma Street) Landfill, Orange Co. Disp. Site No.22-Villa Park Waste Management Of Orange, 2050 Glassell Street Yorba Landfill, southwest corner of Chapman Avenue and Yorba Street in the City of Orange.The physical address is 190 S.Yorba Street. The City will require appropriate site assessment and mitigation of hazardous toxins prior to development. If areas pose hazards that cannot be adequately mitigated, they will be designated as open space. Pipelines Several high pressure pipelines pass through Orange,delivering natural gas, liquid petroleum, and other products to Orange and cities beyond. Hazards associated with the pipelines include gas leaks,fire, and seepage of materials into the ground. The City Fire Department maintains maps indicating the location of these facilities, and uses these maps for safety planning, incident response, and development review purposes. Underground Storage Tanks The City's Fire Department has primary responsibility for managing risks associated with the presence of underground storage tanks (USTs). In addition to following the County's Inspection and Enforcement Plan, the Fire Department is also a participating agency in the local Certified Unified Program Agency (CUPA) established by the California State Water Resources Control Board.The City's Fire Department implements State requirements for USTs. The overall purpose of the UST Program is to protect public health and safety and the ORANGE GENERAL PLAN PS-27 w v>:3mmoi., r z.;r L..8" PUBLIC SAFETY 40 Hazardous Materials and Human-Caused Hazards Hazardous materials are often found in solid,liquid,and gas forms that pose potential threats or actual harm to humans and the environment. Mishandled hazardous materials can leak into soils and water sources. Hazardous Materials The City follows the County's Hazardous Materials Inspection and Enforcement Plan. To prevent accidents, and ensure proper handling, routine inspections are conducted at businesses within the City that store,use,or handle hazardous materials.The City concentrates production of hazardous materials within its industrial area,separated from residential areas, educational uses,and institutional facilities(see Figure PS-1).The City also identifies businesses transporting, manufacturing, using, and storing hazardous chemicals, and requires such businesses to exercise caution and to mitigate potential negative effects on surrounding land uses prior to obtaining businesses licenses. Periodic assessment and analysis of potential threats related to hazardous materials will result in proper response to hazardous substance emergencies. In addition, plans for residential or for mixed-use projects on industrial or commercial lands will be required to undergo proper site assessment and remediation prior to development. Residents may dispose of hazardous materials at the Household Hazardous Waste Collection Center in the City of Anaheim. Since the three landfill sites serving Orange (located in Irvine, Brea, and San Juan Capistrano) do not accept hazardous wastes, commercial hazardous wastes must be collected and disposed by private waste disposal companies. Solid Waste Disposal Sites Areas formerly used as landfills contain wastes that can release toxins into the air or contaminate groundwater. As indicated in Figure PS-1, the planning area includes several closed landfills. Those landfills as named on the County website are: Cerro Villa, located 1/4 mile east of Cannon Street between E. Serrano Avenue and East Goldenrod Lane La Veta, located on the northeast corner of La Veta and Tustin Avenues. Reeve Pit, located at the northeast corner of Villa Park Road/East Santiago Canyon Road and North Hewes Street Santiago Canyon,located off Santiago Canyon Road,east of the intersection of the SR 261 and SR 241, adjacent and westerly of Irvine Lake. The physical address is 3099 Santiago Canyon Road. Villa Park,located south of the Santiago Creek on the northeast corner of Santiago Canyon Road and Cannon Street in the City of Orange. The physical address is 5545 E. Santiago Canyon Road. ORANGE GENERAL PLAN PS-26 W.t'AME 1s PUBLIC SAFETY Santiago Hills ll Tract 18163 1 re: i 1 .tr_IT. P::444. I O.))''ts 3.,,,ti i 5,....., f ' T__Lam` , I:. al V4,,,,$..r Vgilir Jew7. JJI 1 ..,..; _____------: 412,Residential Development in a Fire Hazard Zone with a Single Emergency Evacuation Roure I ' f j1111r ice/ ii.. 1 PA Ini i ::i""' 7 rim ifilliNf/ t / City Boundary Legend FireSt Sentiego Hills II NCCPMCP Ha bllat Reserve 4r Fire Stator talon 1.., Tract 18183 Fire Hazard Severity lanes(SRA) Td. s. Watertwtly _a SinglResidee Development va In a Fire Huard Zone vMh Very High Fire Hazard Severity Zones(LRA) 1111101.02..'.... a Single Emergency Evacuation Route reed Figure PS-6b.Detail of Residential Development in a Fire Hazard Zone with a Single Emergency Evacuation Route and Development Planned in a VHFHSZ map 7t e/!s i', .IMINNI. ORANGE GENERAL PLAN PS-25 PUBLIC SAFETY t. / Fin ANAS t ) 1 f! e: '' wit, wis.d. City of GE RAN 1 Anaheim j vf i:0Nwe4a / ! a • :I w.n..w en.u.,c ......... 1,., i K Fa ANA '' / ._. • : p°modeORG City of t • .._.._.._.._ l I 1 .. City Park I,, I I 7OCFAI L w:,.. See PS-Gb for detail I 9.1118 NE a. 1 •..i 1 1s a l i y f:Orange i 1 ''(. t f r. j a rl s I 4 \+' ,,/ ' a. Mgt. J aivew ww• . I.. _ L• a•A O.C.F.A. Y'v., .+.w....... f i i Y:( t ..7.F oRc a 7/'^ e--- s.nr.An. k iS+ li - F FI.STA10 I i iiii o Y y N. i g.•. r Fr.STAI_ I! f City of i_ t; $ e v' 1f t i F Santa Ana i ' e i t terEND I*A0 F.A. / i. th 140' Highways Tract 18163 Railroads Santiago Hills 2 i/ w/ 1 Fire Station N.t i • 41 Police Station 0 CO OA oA o.a Figure PS-6a.Residential Development in a Fire Hazard Zone with a Single Emergency Evacuation Route and Development Planned in a VHFHSZ map a.- w-, ..www w ORANGE GENERAL PLAN PS-24 1'.. BONISO EIlsacss cYIIIIIIMs._ ms-... -•eNrerty M.W- ,:.••- -. ry. yyrr . c" PUBLIC SAFETY 1CAnaheim e" i F I Mlle s' 1. IlEasr f Isuit /i. .-... p, Anaheim J , Itipi 'T , is Hills -- — t o s_. J y L••, West _--" 1 I P i, 4„, i`•• t s I • t11I till /1 a I j int ` r ` ] f ANA ! ORG City Of ' i-.._.._.._...- j • --. ram a r / i,.. V la Park 14i -..j '_1 ° .. litliqEC,V 1,-- i A t3 s'r4 J. a ram-igill Airmis tiling f filillitit -It'1112 r ofted• ar.,f/ 9/::,<„ 1 ',,\\-\\ f ir,-- `11..,, 11._........, r. F" '‘..ny.\ /4P SwaAn i =' `r Ft STA 10 i 0 i't s F.e srAr s\ I1 i City of L Ef r Ls 4 I 11Santa Ana -' ..a-i : \ an n 1 w, 7 n P3r7tb}, w y I.1 LEGEND WUI Pre Plan Boundaries 7e G • oa ai f`7 Planning Area e t L 1 Splaae of Influencel7 Anaheim Hills-East AZ City Boundary O Anaheim Hills-Wesl RI' Surrounding Cities CM Cowan and Lemon Heights t r/• High aes ways II East Orange•Orange Park Acres piti' Fire Station Fire Hazard Severity Zones(Slate ResponsiDiuty Area) I I. a Posce Station Vary High Fire Hazard Severity Zones(Local Responsibility Area) i Note. The Tustin-Orange Foothills Fire Plan area encompasses much of the other WUI Pre-Plan boundaries. The map area is on file with the Fire Department. Figure PS-5.Wildland Urban Interface(WUI)Pre-Plan Map s - ORANGE GENERAL PLAN PS-23 cammorkemiimswasvise PUBLIC SAFETY traffic control and security, traffic control points, logistics needs for emergency operation center support,and other considerations Maps showing topography, access, hazards such as electrical and aerial, base camps, water sources, evacuations areas and routes, fuel breaks, spotting problems, proposed dozer lines, forecast fire progression in major paths and arrival time, and other necessary information The City participates in the county-wide Community Wildfire Protection Plan for Orange County. This plan addresses pre-suppression,suppression,and post-suppression tactics in the Natural Communities Conservation Plan/Habitat Conservation Plan areas within the City as identified on Figure PS-4.The suppression tactics identify desired actions and locations,while the post-suppression tactics identify the actions and responsibilities for fire suppression repair consistent with the Natural Communities Conservation Plan/Habitat Conservation Plan. The plan is the conduit to discuss and develop pre-suppression and prevention activities to reduce the loss of life,property, environment, and suppression costs. The City is also a participant in mutual aid via the SOLAR plan, the mutual aid agreement between the counties of San Bernardino, Orange, Los Angeles, and Riverside County fire agencies to provide for common radio communications and a central ordering point(dispatch center)for resources during emergencies. Urban Fires Although updated fire code requirements reduce urban fire risks in Orange,structures in older parts of the City, especially in Old Towne, were constructed prior to adoption of modern standards. Structures used for the transport, production, and handling of combustible equipment in the industrial areas(shown in Figure PS-1)also pose a credible urban fire threat. The Fire Department will participate in environmental review procedures to reduce urban fire risks in these areas, and will help educate the public regarding fire prevention. AMIRMESSmag ORANGE GENERAL PLAN PS-22 PUBLIC SAFETY Development located within or adjacent to the identified Very High Fire Hazard Severity Zones VHFHSZ) and Wildfire Urban Interface (WUI) in Figure PS-4 must prepare and implement a comprehensive fuel modification program in accordance with City regulations.Most of the City is developed outside of the VHFHSZ, however Figure PS-4 shows existing and proposed land uses within the VHFHSZ. Figures PS-6a and PS-6b show existing development in the VHFHSZ that has a single emergency evacuation route and also shows entitled projects that are either in or partially in the VHFHSZ. The City reviews new developments for appropriate fire services needs to ensure adequate emergency services and facilities to residents and businesses. Coordinating with adjacent local cities, and participating in regional, State, and federal programs assist in preparing the City for wildfire emergencies and help reduce fire-related risks. For localized wildfire incidents,the Fire Department implements the following WUI pre-plans: Tustin-Orange Foothills Fire Plan Anaheim Hills East Anaheim Hills West Cowan Lemon Heights East Orange-Orange Park Acres These WUI plans are identified in Figure PS-5 and include the following: A risk assessment of the areas covered Critical information such as response safety, aviation hazards, potential choke points/entrapments Briefing information such as fuels, years burned, expected fire behavior,topography, access,special hazards,safety zones/temporary safe refuge areas,and water supply Unified command information such as potential incident command post locations, unified command participants, and staging areas Large fire development factors such as weather and fire behavior WUI arrangement Recommended strategies and tactics (FIRESCOPE/PACE) including a primary plan offensive), alternate plan (offensive), contingency plan (defensive — responder safety), emergency plan(defensive), and perimeter control plan An evacuation plan including a primary evacuation plan,evacuation trigger points,and temporary evacuation assembly points for humans and animals Population and structures at-risk by population, acreage,and structures Structural Triage showing percent of threated/non-defensible areas, threatened/defensible areas, non-threatened areas,and areas with defensible space Fire emergency resource needs for the first six hours including the fire ordering point; the number of engines, strike teams, water tenders, crew, dozers, overhead division support, and aircraft needed;and,the risk to WUI engine deployment Law enforcement emergency resource needs for the first six hours including the law enforcement ordering point; number of officers from various agencies for evacuation, ORANGE GENERAL PLAN PS-21 jj•• Vt _ s..:r. <-Tasi.,- ._ + I- PUBLIC SAFETY 0 ' I IDOIANGEe/ amA1.PLAN rq 11116611 % .. S 09";;.. ; oisridu MC% ...."•••'''').. # I 1 1 Fait , ..,. --- ...„ ..,,t,:: y ibliilla City Of V la Park I / / r /ales.. i . a' 77 Alta 1 ...';.o.G'FA. 4(. ' 1 4 i 0 1 S I it I pHigiiii .._ 1 - i % iy wi IG Z Mle Aru ! l f FY•STA 10 I '' /J. e firs Mt City of 1- i IillSantAnai ? j.'ir./!.4 Yy OC.FA I4IIIIIgalliriORCe3 ///,,,/ fl LEGEND ti'l( ijow - f % /Ii Cr]Planning Area NCCPMCP Habitat Reserve j I L 1 Sphere d Influence City Boundary Fire Hazard Seventy Zones(Slate Responsibility Area) j Surrounding Cities Very Hyn Re Hazard Seventy Zones(Local Responsibility Area) j /3/ Highways 411.Fire Elation e F u e. sA P Puke Station Figure PS-4.Very High Fire Hazard Severity Zones Map ORANGE GENERAL PLAN PS-20 t iy PUBLIC SAFETY Two dams are present along Santiago Creek: Villa Park Dam and Santiago Dam (Irvine Lake). Both are located in the foothills section of east Orange. Peters Canyon Dam is located along Peters Canyon about two miles west of Irvine Lake.Like Santiago Creek,which flows generally southwest, Peters Canyon drains in a similar direction, along Handy Creek and ultimately into Santiago Creek. The areas below (downstream from) the dams are areas of potential flood hazard in case of catastrophic dam failure, which presumably could result from a major earthquake. Maps depicting the extent of potential dam inundation within the planning area are available for public review at the Community Development Department.The areas below the dams are also zoned for flood hazard on the FEMA maps, and the areas of potential flooding are similar in width to other areas along Santiago Creek and Peters Canyon(see Figure PS-1). Should one of these facilities fail,properties along Santiago Creek and a large section of Old Towne could be flooded. Flood flows would move at rates which would allow persons to be evacuated,but significant property damage could result.However,as is the case for Prado Dam,these facilities are maintained and safety-inspected to ensure that risks are minimized. Olive Hills Reservoir is a water tank which sits on a hilltop in Anaheim above residential development in Orange. Reservoir failure would result in the flooding of canyons and residential tracts below the reservoir. The City will minimize flood-related risks and hazards in the event of dam or reservoir failure, protecting residences and businesses by encouraging the County's Flood Control District to continue proper inspection of storm drains,ensure maintenance of the flood control facilities, and prevent earthquake damage. The City will also monitor water storage facilities to determine potential inundation hazards to surrounding properties. Fire Hazards As part of its efforts to prevent injury and loss due to fire hazards in the Very High Fire Hazard Severity Zones (VHFHSZ), Wildfire Urban Interface (WUI), undeveloped hillside, and urban areas, the City will continue to educate the public, provide up-to-date maps, and refine pre- plan WUI areas delineating areas that could face fire hazards. The City will ensure minimum road widths, clearance areas, and access to adequate fire protection services by enforcing Municipal Code provisions and City specifications,and conducting development review. Wildfires The Very High Fire Hazard Severity Zones Map (Figure PS-4) shows Very High Fire Hazard Severity Zones in the Local Responsibility Area and State Responsibility Area and also shows the boundaries of the Natural Communities Conservation Plan/Habitat Conservation Plan. Risks associated with fire hazards at these Wildfire Urban Interfaces are reduced through fire prevention which includes, public education, development standards for new construction, annual inspections, State fire clearances, and fuel modification and weed abatement coordinated through or conducted by the Fire Department as outlined under the Emergency Services and Safety heading on the following pages. ORANGE GENERAL PLAN PS-19 II 91 91 444yyy, 4/ 1%, ill 1". -9'i. .,..wm VI City of i tErraw PLAN1'- r , r 4 `l. "I Anaheim t ii L4% I 1-il :utLnaL e.- ireru„e. i..% ^o I I `.\ 7I iSr a 4 y 1/ it 110.r a\ r. h: IJ 14 ,j!.I1 y gym. i `i J ViJ1aPark 1 1\ \ t.,44-..1.. urn' I a u""^" tV xu.E/w... J ss r'1 S r: I y? 1 1 r 4 I rartt 4' • S- "' 6 -jjFF / n l.h. l• i L. f.ti..1 .., Claa 1 .4,I _ t wrww,.. I O j v. •, w„=,• wini...I "\... ' I r•, N' . 1 V 1 AG T A '22 :i 1`I / r r' • \ t MM.,. X P0141.vl 1s •4,".n•ev C. a.r•" 1„r:'%f r,.q .\s...ro...,.., r- r i /,_i ; l I 4`/VI 1 f7 ~ \+ i r Jf/\ - irA0eItCityof5- __ 1 dt v i r ;' f Santa Ana ! 1 `--, ! i` i t I a 4 R i i /(261 i I rY r l f I.., .\ LEGEND j j,__•r Planning Area Shaking Boundary Roman numerals indicate groundshaking intensity- f 1 Sphere of Influence Modified Metcalfi Scale(Refer to Table PS-I). L_ Note:Zone boundaries are generalized. City Boundary This map is for informational purposes only. SunounS ng Cities Explanation:This map outlines groundshaking zones. et i•- The intensities which may be expected in the event of r,' Highways a 7.5 Richter Magnitude earthquake occur along the 1,--„ 1i-+- Railroads Newport-Inglewood Fault.j j I. 0 OE 05 015 I r• PS-18 Figure PS-3.Potential Groundshaking Zones-7.5 Newport-Inglewood Earthquake 91 av- ' 7 1 O j/ fi i r--' 4 ••1) i m , .—. City of r (JJ Y ENTERAL PLANyMr // .R6 v.n ,/. t F l (i.• J` o ` i ..\. \.., 1.. _ Anaheim y4 , le."t 57 !r cl .,. r G e 7. YI II Z i E e City of P.M ' JJ////-- II in Villa Parky 1 I!Tit Mt 1 f/.• 1 411P"--41111111kL.i I M1a.M1 III 11110.111111111 - r'i i RywMI. a caun,M.. 1 i-;( I y' 241 j 1 rrif1uvuMg d M, xs I `I r'v fi_ 1 l i 22 22 .-E; !it 1 I W.. r ram I I 0444 V .+oi..w M. L A d J/' . r.7 w r.••.. 1 l / B 3 City of f_,, Li i 4— js o I ''•,\ Y o f> i Santa Ana y ," t a I / ti I 1' I 1-' z61 t.I I I rr LEGEND I", CI-1 Planning Area Shaking Boundary Roman numerals indicate groundshaking intensity- s t L1 Sphere of Influence Modified Mercalli Scale(Refer to Table PS-I). i\... f Note-Zone boundaries are generalized. City Boundary This map is for informational purposes only. Surroundng Cities Explanation'.This map outlines groundshaking zones. i' v i•' The intensities which may be expected in the event of Highways an 8.3 Richter Magnitude earthquake occur along the t a-*-} Railroads San Andreas Fault. j i r 0 0.16 0.6 0.16 1 7/.. PS-17 Figure PS-2.Potential Groundshaking Zones—8.3 San Andreas Earthquake T-- ' PUBLIC SAFETY Natural Flood Hazards Flood hazards related to storm events generally are described in terms of the"too-year flood." As its name implies, the too-year flood is the largest flood event which may be expected to occur within a too-year period.This flood is considered a severe flood but one which can be reasonably predicted and therefore reasonably mitigated. As shown in Figure PS-t, the too- year flood plains shown in Federal Emergency Management Agency(FEMA)maps indicate that the stream drainage areas along the Santa Ana River and Santiago Creek are subject to flooding by the largest storm event in too years or within too to 50o years. The floodplain may be subject to modification by manmade facilities such as flood control basins, levees, and concrete-lined stream channels. Additionally, according to FEMA maps, a flood area determined for the too-year storm event Zone A)is a reservoir water surface elevation of approximately 80o feet mean sea level(msl) as shown. Backwater into Santiago Creek, Limestone Creek, and immediately adjacent to Santiago Reservoir tributary drainage also reaches this elevation. As development in the hillside and basin areas progresses, runoff and absorption rates will be altered. Adequate infrastructure will be needed to ensure that the increased runoff can be handled without increasing the risk of flooding.Appropriate flood control measures will be implemented along Santiago Creek and throughout the planning area,where necessary,to reduce the risks from localized flooding. The National Flood Insurance Program,in which Orange participates,covers at a minimum all properties affected by the too-year flood.To receive insurance benefits in the event of a flood, participating agencies must recognize these official flood boundaries and establish appropriate land use policy for the flood zones. Additional flood prevention methods such as provision of detention basins and on-site stormwater drainage will be required of developers to reduce runoff into the City's drainage facilities and to provide adequate drainage for new developments.To minimize runoff,the City will promote developments that incorporate permeable surfaces within site design. The City will direct development of critical public and private facilities such as medical, educational,and civic facilities to be located outside of flood zones.To mitigate flood hazards to existing structures within flood zones,the City will offer educational programs for the public and City staff regarding flood hazards. Flood hazards can be created or heightened after wildland fire events. Post-fire systems are implemented on an as-needed basis following a wildland fire. Potential problem areas are identified by the City, then Orange County Public Works best practices along with National Pollution Discharge Elimination Systems guidelines are implemented to mitigate potential flooding. Dam Inundation Hazards Failure of the Prado Dam in Corona (in Riverside County) could result in extensive flooding along the Santa Ana River. However, ongoing efforts by the Army Corps of Engineers to improve the Prado facility reduce the risk of dam failure to a very low level. ORANGE GENERAL PLAN v PS-16 PUBLIC SAFETY which is parallel to the Elsinore, located approximately 4o miles northeast of Orange). Each of these faults has numerous branches and associated faults and, therefore, has associated fault zones. Movement along any of these fault zones has the potential to cause widespread upset in Orange.The potential for ground shaking within the City depends on the distance to the fault and the intensity of a specific seismic event along the fault. Also, areas underlain by bedrock at shallow depths(as in the eastern part of the planning area)would tend to be less affected than areas underlain by thick sequences of unconsolidated alluvium. Figures PS-2 and PS-3 show the effects of two maximum probable events, a magnitude 8.3 earthquake along the San Andreas Fault and a magnitude 7.5 earthquake along the Newport- Inglewood Fault. The ground-shaking effects on areas within Orange are shown in terms of the Modified Mercalli scale (See Table PS-1). The maximum Mercalli intensity, IX, at the southwest corner of the city under a 7.5 magnitude Newport-Inglewood fault scenario, indicates potential for great damage to substantial buildings and damage to underground pipes even in specially designed structures. Landslides and Liquefaction Landslides can occur when strong ground movement such as an earthquake shakes loose soil and causes land and debris to lose stability and slide. Liquefaction occurs when moisture- saturated soils lose stability during seismic conditions. Structures built on such soils may collapse and result in damage and loss. Portions of the planning area most susceptible to liquefaction and landslides are identified on the Environmental and Natural Hazards Policy Map (Figure PS-1). Earthquake-induced landslides are most probable in poorly consolidated or semi-consolidated sedimentary rock, characteristic of the low hills of the northern and eastern parts of the planning area. Portions of the planning area susceptible to seismically-induced liquefaction include areas near the Santa Ana River and Santiago Creek.A smaller area of high liquefaction potential is present in the areas east of Panorama Heights, in Crawford Canyon. These alluvial plains are characterized by fluvial and loose,floodplain sediments. To further protect the City from injury and structural damage due to geologic and seismic hazards,all new development will be required to abide by the most recently adopted City and state seismic and geotechnical requirements. All older buildings, particularly unreinforced masonry buildings,and buildings located near the Peralta Hills and El Modena Faults should be reinforced and strengthened to prevent damage to structures and loss of life in the event of an earthquake.The City will provide public education programs regarding geologic and seismic hazards and continue to cooperate with surrounding cities, regional, State, and federal government in programs designed to implement the most strategic and efficient actions to mitigate such hazards. Flood Hazards In Orange,flooding may result from either the overflow of watercourses due to excessive and unusual storm run-off,or from failure of dams and/or water storage reservoirs. ORANGE GENERAL PLAN PS-15 PUBLIC SAFETY Table PS-1 Earthquake Magnitude and Intensity Comparison Descriptor Richter Modified Mercalli Index Intensity-Description Magnitude Not felt Lower than 3.o I. Not felt except by very few persons under especially favorable conditions. Weak 3.o-3.9 II. Felt only by a few persons at rest, especially on upper floors of high-rise buildings. Delicately suspended objects may swing. III. Felt quite noticeably indoors,especially on upper floors of buildings,but many people do not recognize it as an earthquake. Standing automobiles may rock slightly. Vibrations like passing of a truck. Light 4.0-4.9 IV. During the day felt indoors by many, outdoors by few. At night, some awakened. Dishes, windows, doors disturbed; walls make creaking sound. Sensation like heavy truck striking building.Standing motor cars rocked noticeably. Moderate V. Felt by nearly everyone;many awakened.Some dishes and windows broken;cracked plaster in a few places;unstable objects overturned.Disturbances of trees,poles,and other tall objects sometimes noticed.Pendulum clocks may stop. Strong 5.o-5.9 VI. Felt by all, many frightened and run outdoors. Some heavy furniture moved, few instances of fallen plaster and damaged chimneys.Damage slight. Very strong VII. Everybody runs outdoors. Damage negligible in buildings of good design and construction; slight to moderate in well-built ordinary structures; considerable damage in poorly built or badly designed structures;some chimneys broken.Noticed by persons driving cars. Severe 6.o-6.9 VI I I. Damage slight in specially designed structures; considerable in ordinary substantial buildings with partial collapse;great in poorly built structures.Panel walls thrown out of frame structures. Fall of chimneys, factory stacks, columns, monuments, walls. Heavy furniture overturned.Sand and mud ejected in small amounts.Changes in well water.Persons driving cars disturbed. Violent IX. Damage considerable in specially designed structures;well-designed frame structures thrown out of plumb; great in substantial buildings with partial collapse. Buildings shifted off foundations.Ground cracked conspicuously.Underground pipes broken. Extreme 7.o-7.9 X. Some well-built wooden structures destroyed; most masonry and frame structures destroyed;ground badly cracked.Rails bent.Landslides considerable from river banks and steep slopes.Shifted sand and mud.Water splashed,slopped over banks. 8.o and higher Xl. Few,if any(masonry)structures remain standing.Bridges destroyed.Broad fissures in ground.Underground pipelines completely out of service.Earth slumps and land slips in soft ground.Rails bent greatly. XII. Damage total.Waves seen on ground surface. Lines of sight and level are distorted. Objects thrown into the air. Source:United States Geological Survey National Earthquake Information Center,October zooz. Ground Shaking Orange is vulnerable to ground shaking caused by seismic events along large regional faults in the area. These faults include the Newport-Inglewood Fault (located approximately 15 miles southwest of Orange along the coast near Newport Beach),the Elsinore Fault(which crosses the Santa Ana River Canyon about five miles northeast of Orange), and the San Andreas Fault anwroprisesieaw ORANGE GENERAL PLAN PS-14 r , ; PUBLIC SAFETY Geologic and Seismic Hazards Like many cities in Southern California,Orange faces geologic and seismic hazards,specifically earthquakes, earthquake-induced landslides, and liquefaction. The planning area encompasses two general types of terrain: an alluvial plain that underlies the central and western parts of the City, and a series of low hills (foothills of the Santa Ana Mountains) characteristic of the east side of the City and the Sphere of Influence. Generally, the alluvial plain is underlain by many thousand feet of fluvial and floodplain sediments,and certain areas of the plain adjacent to major watercourses (the Santa Ana River and Santiago Creek) are susceptible to flooding and seismically-induced liquefaction. However, the potential for landslides is low due to the limited relief of the alluvial plain. Conversely, the hilly section is underlain by bedrock (mostly late Tertiary marine and non-marine sediments); this area is generally less susceptible to liquefaction but certain areas may be prone to earthquake- induced landslides, depending upon the character of the underlying bedrock. Earthquakes An earthquake is a manifestation of the constant movement and shifting of the earth's surface. Movement occurs along fractures or faults, which represent the contact point between two or more geologic formations. Earth movement, known as seismic activity, causes pressure to build up along a fault,and the release of pressure results in the ground-shaking effects we call an earthquake. Earthquake magnitude generally is measured on a logarithmic scale known as the Richter Scale.This scale describes a seismic event in terms of the amount of energy released by fault movement. Because the Richter Scale expresses earthquake magnitude in scientific terms, it is not readily understood by the general public.The Modified Mercalli Scale,on the other hand, describes the magnitude of an earthquake in terms of actual physical effects. Table PS-1 compares Modified Mercalli Scale intensities to Richter Magnitude Scale intensities. Fault Rupture The potential for fault rupture would exist along the traces of active faults. No known Alquist- Priolo fault zone is located in the Orange planning area. However, as shown on Figure PS-1, portions of the planning area are traversed by two faults: the Peralta Hills Fault and the El Modena Fault.The Peralta Hills Fault runs from the crossing of Lincoln Avenue over the Santa Ana River on the northwest,easterly along the base of the Peralta Hills and into the City of Villa Park, then southerly into the hills west of Peters Canyon Reservoir.The El Modena Fault runs from its intersection with the Peralta Hills Fault at the base of the Peralta Hills, southeasterly to Chapman Avenue. Both the Peralta Hills Fault and the El Modena Fault are classified as possibly active by the Southern California Earthquake Data Center. Displacements along these two faults are smaller than those along the more prominent regional faults,and the maximum probable earthquake magnitudes would be much less than those along the regional faults.The City will continually update development standards and adopt the latest building construction codes to minimize seismic and related geologic hazards associated with these faults. ORANGE GENERAL PLAN PS-13 r--- i A v-y 9 t 1 II IIuVCpLNAVE. yyY•L 1 \ III /' ' 1 § I•rW•?. NOHL RANCH RO. t14a IRI r 1• 1 f 4,00 to_h_.,,, : 1 %,---- 41:1 S.-- 1;-- ---'------24K-:-- \ nq W a I I r, # I f=1yl / I,r Y a II , RR" j / 1 bRlfllff•II a a q MEATS AVE. ci• , ` of i BALL .Ems` ? Ile - _—. w—z'• Iu„, Park__ _ _ J I TAFT AVE. 1`. t.I-I I TAFT AVE. r• 4; — _.. -. 1 d / ddi://rier Union Vo.vrYr3'f• r VILLA PAR .: l KATELLA AVE. T" T.r• ---- KATE AVP. 5w:'- 1 3 i rf I COLLINS AVE. I L. ,i-- _.(I... 1-# 4.44 51 Li ONSD A ORANGEWOOD AVE. V4, I i' i , 1 WALNUT AVE. I Itr"—.;i--li1UIs. NG sr 1 •1 l.._.•1 — 3 J l I f 2I 1 i i-.. lij ' , 1CHAPMAN AVE. — C L C141PMAN AVE, a PM i f1 1Nj I Q liAprI—.LA VETAA I - i_.. t...-- I tSI o WVE-' -' 1 414 . ___" 22 1 r'1 _in I \ i r-1 , r.•.,GARDEN GROVE BLVD. uw — , FAIRHAVEN N`:E .• r••sai. l I> P . I 4 t tl0i` Z l I SANTA cLARA AVE. II P SANTA CLARA AVE. City of i I II I, _ — — - i Santa Ana _` , TTR9T. iT I, 0 l a........ I 1 I ik. - LEGEND r ConcentratioL_„_ Planning Area. Faults Bedding Plane Contact L_ I Sphere of Influence Dashed Where Approximate Dashed Where Approximate. 100-Year Flc City Boundary Dotted Where Concealed. Dotted Where Concealed. 1 7 Liquefaction Surrounding Cities Barbs Are Upper Plate Related Hazard: Earth Slippage Highways of Trust Fault Along Contact Landslide HE Railroads Note:This map shows approximate boundaries and locations of NORTH environmental hazards.Further research is necessary in order I I I I 1 I Miles to assess an individual project's proximity to the environmental 0 0.2 O.4 0.6 O.8 hazards depicted here. Note: Large format map available at the Community Development Department/Source:Federal Emergency Management Agency 2000,Sc ISIMIMIPPThoNigarli111111111111111=11111111114da IFLTEWN.TOLWAECW PUBLIC SAFETY Policy 9.2: Support creation of safe routes that encourage children and adults to walk or bike to schools and recreational facilities. Policy 9.3: Identify and attempt to remove impediments to pedestrian and bicycle access including those associated with rail, street, freeway, and waterway crossings and poorly marked or maintained pathways and sidewalks. PUBLIC SAFETY PLAN As in all communities, human activities and natural conditions occurring in Orange have an effect on residents' quality of life. It is essential not only to provide an environment where businesses and residents can prosper and feel safe, but also to be prepared for emergency situations. The City can minimize hazards and protect public health and private property through a combination of appropriate land use planning and development review, and emergency preparedness planning. Figure PS-1 presents graphically the City's safety policies and plans related to environmental and natural hazards.The Environmental and Natural Hazard Policy Map presents the locations of known seismic, geologic, flood, and landfill hazards. Figure PS-2 shows the Very High Fire Hazard Severity Zones in the Local and State Responsibility Areas. Figure PS-3 shows the City Wildland Urban Interface pre-plan areas. As applicable, the Public Safety Plan refers to these maps for identification of significant locations,conditions, or development requirements. ORANGE GENERAL PLAN PS-12 PUBLIC SAFETY well-defined and visible walkways and gates; well-lighted driveways, walkways,and exteriors;and landscaping that preserves or enhances visibility. Policy 7.4: Ensure that community areas and amenities such as transit stops, sidewalks, plazas, parks, trails, public parking facilities, and bike paths are appropriately lighted,free of hiding places, and frequently patrolled. Policy 7.5: Maximize security of public spaces,recreation facilities,and new development by encouraging complementary uses that support a safe environment. Policy 7.6: Continue to involve the Orange Police Department in the project design and review process. Disaster/Emergency Preparedness The City recognizes that emergency preparedness planning can reduce the impact of hazards resulting from a natural or human-caused disaster. GOAL 8.o: Emphasize emergency preparedness throughout both the City organization and the community. Policy 8.1:Sponsor and support public education programs for emergency preparedness and disaster response. Continue to provide a Community Emergency Response Team (CERT) program through the Police Department to support emergency awareness and preparedness for the Orange community, particularly for vulnerable and disadvantaged communities. Policy 8.2: Coordinate disaster preparedness with other public and private agencies. Policy 8.3: Coordinate emergency response and preparedness planning with other cities and public agencies in the region. Policy 8.4: Develop and maintain a fully functioning Emergency Operations Center, and adequate and up-to-date emergency preparedness resources and plans. Policy 8.5: Maintain the City's mass emergency notification mechanism for the release of public information during a major event and seek methods to achieve effective notification to disadvantaged and vulnerable communities. Pedestrian and Bicycle Safety A walkable city is achieved by creating safe streets and travelways. Establishing a feeling of safety is key to encouraging the use of trails, pedestrian paths, sidewalks, and bikeways to move about the community. GOAL 9.o: Provide safe pedestrian and bicycle environments. Policy 9.1:Enhance and maintain safe pedestrian and bicycle movement through the integration of traffic control devices, crosswalks, and pedestrian-oriented lighting, into the design of streets, sidewalks, trails, and school routes throughout Orange. Assomes ORANGE GENERAL PLAN PS-11 PUBLIC SAFETY Policy 6.7: Maintain and update the City's Emergency Operations Plan as needed, and ensure ongoing consistency between the General Plan and the Emergency Operations Plan and Fire Department Strategic Deployment Plan. Policy 6.8: Establish and maintain optimal emergency response times for fire safety. Require new development to ensure that City response times and service standards are maintained. Policy 6.9: Continue to adopt and honor agreements with adjacent communities for mutual aid assistance. Policy 6.1o: Continue to train, license,and/or certify Fire Department staff. Policy 6.ii: Ensure that the Police and Fire Departments have complete and available emergency supplies, sufficient capacity, facilities, personnel, training, technology, equipment, adequate emergency vehicle access, crime fighting equipment, and fire suppression resources to meet growth needs for combating crime, providing fire protection, and providing related emergency services for all segments of the population, including vulnerable and disadvantaged communities, in all areas of the City. Policy 6.12 Maintain and improve disaster response and recovery capabilities to protect and meet the needs of all members of the community, including the most vulnerable and disadvantaged. Crime Prevention Preventing crime through public outreach and education and designing new spaces to promote secure streets and public places can both improve the quality of life enjoyed by Orange residents. The Police Department works with the community to promote safety by increasing awareness of personal and property crime risks. Crime prevention also involves educating the public about personal safety,business and neighborhood watch programs, and residential and business security. Defensible space planning is another crime prevention method. Defensible space planning uses design techniques, building orientation, and features of the built environment to deter criminal activity and positively influence human behavior. Defensible space planning is also a key element in a local comprehensive crime prevention and safety plan. Crime Prevention through Environmental Design (CPTED) techniques incorporate four key considerations into site planning and architectural design: territoriality, natural surveillance, activity support, and access control. GOAL 7:o: Improve community safety and reduce opportunities for criminal activity. Policy 7.1:Provide crime prevention, community service, and education programs designed to prevent crime. Policy 7.2: Promote and integrate crime-preventive characteristics and design features into all phases of the planning and development process. Policy 7.3: Maximize natural surveillance through physical design features, including, but not limited to, visible entryways from surrounding structures and businesses; ORANGE GENERAL, PLAN PS-10 PUBLIC SAFETY GOAL 5.o: Reduce safety hazards associated with civilian, military, and medical air traffic. Policy 5.1:Work with the Federal Aviation Administration, the Orange County Airport Land Use Commission, California Department of Transportation, and other agencies to establish aircraft corridors which minimize the exposure of Orange residents to air traffic hazards. Policy 5.2: Work with major medical institutions to minimize the impact of helicopter and airplane traffic on Orange residents. Emergency Services and Safety The safety and well being of Orange's neighborhoods and businesses is a valued,fundamental component of quality of life in the community.Orange will continue to sustain and improve its commitment to safety through a comprehensive approach to police and fire services,including public outreach and education, proactive preparedness planning, community awareness,and partnerships with public agencies and private businesses. Education will also be provided relative to homeland security issues. Foresight and planning regarding land use decisions represent proactive approaches to enhance safety in the community,especially in areas where future development may be more intense than current conditions. Potential rail hazards must also be recognized and prepared for. Industrial hazards such as noxious fumes, underground fuel lines,and other potential hazards must be evaluated and mitigated.Special attention must be given to industrial projects located near residential areas to ensure appropriate buffers and screening of industrial sites. GOAL 6.o: Provide public safety services of the highest quality. Policy 6.1:Provide the Police Department with adequate personnel, equipment, and state-of-the-art technology to effectively combat crime, meet existing and projected service demands, and provide crime prevention programs. These resources should be provided prior to anticipated needs. Policy 6.2: Provide resources for additional police and fire services as needed to maintain average response times. Policy 6.3: Provide and use up-to-date technology to improve crime prevention, fire suppression,and emergency services. Policy 6.4: Continue to support, develop, and implement programs which improve the City's approach to fighting crime. Policy 6.5: Provide ongoing public information and education regarding the City's Emergency Preparedness Program, homeland security, and other similar programs. Policy 6.6: Utilize and update as necessary established designated evacuation routes throughout the City as identified on the Police Department Website and in the Fire Department Wildland Urban Interface pre-plan documents for wildfire incidents. ORANGE GENERAL PLAN PS—9 vsrltemigain PUBLIC SAFETY and Building Numbers),Article 4(Emergency Water Standards), and Article 5 Fuel Modification Standards); and Subchapter 3 (Fire Hazard), Article 3 (Fire Hazard Reduction Around Buildings and Structures). Policy 3-21 All new development and redevelopment in the VHFHSZ shall be inspected for compliance with the fire hazards policies and requirements of this Public Safety Element after large fires have occurred within the VHFHSZ. Policy 3-22 Continue to monitor and forecast future water supply and fire flow availability and assess and ensure future fire suppression needs are satisfied. Policy 3-23 Should new water supplies be required, the new water facilities and improvements shall be engineered and located in areas that best serve the community. These new water facilities and improvements shall be monitored annually and maintained by the appropriate agency or jurisdiction. Hazardous Materials and Human-Caused Hazards Manufacturing, transporting, and storing hazardous materials in the urban environment threaten the safety of persons working with such materials, as well as businesses and residences located near the hazards. The City recognizes the importance of identifying users and producers of these materials, and making land use decisions that minimize the risks associated with exposing people to hazardous materials. GOAL 4.o: Minimize risks to life, property, and the environment associated with producing,using,storing,or transporting hazardous materials. Policy 4.1: Assess potential risks of disposing, transporting, manufacturing and storing existing hazardous materials,and develop appropriate mitigation measures in case of accidents. Policy 4.2: Prohibit new disposal, transport, manufacture, and storage of hazardous materials within the City without a mitigation plan in case of accidents. Hospitals meeting current State and federal standards are exempt. Policy 4.3: Identify hazardous materials dumpsites, and ensure that the sites are cleaned in conformance with applicable federal and State laws prior to the establishment of new uses. Policy 4.4: Ensure that the public is protected from fires, noxious fumes, and other hazards within the City's industrial area. Policy 4.5 Prohibit land uses that could exacerbate the risk of ignitions in High or Very High FHSZs, such as outdoor storage of hazardous or highly flammable materials,automobile service or gas stations, or temporary fireworks sales. Aircraft Operations The John Wayne Airport in Santa Ana, U.S.Army Airfield operations based in Los Alamitos,and helicopters serving various medical institutions in Orange generate high volumes of commercial and military aircraft traffic above the City. Potential hazards related to aircraft traffic include excessive noise and aircraft accidents. ORANGE GENERAL PLAN PS-8 PUBLIC SAFETY Policy 3.12 Prioritize infill development within the existing developed footprint to avoid future unfunded emergency vehicle access infrastructure creating repair and maintenance liabilities; and to reduce potential wildfire hazards originating from development adjacent to environmentally sensitive open space areas. Policy 3.13 Avoid expanding new development, critical facilities, and infrastructure in areas subject to extreme threat or high risk, such as High or Very High FHSZs or areas classified by CAL FIRE as having an Extreme Threat classification on Fire Threat maps, unless all feasible risk reduction measures have been incorporated into project designs or conditions of approval. Ensure subdivisions and developments exist in concert with the natural ecosystem. Policy 3.14 Prohibit land uses that could place occupants at unreasonable risk in high or very high fire hazard severity zones, such as areas with large events or assembly of people, health care facilities,or similar uses. Policy 3.15 Monitor plant communities in wildland areas over time for changes in potential fire hazard severity or risks. Policy 3.16 Plan,design,and manage urban open space facilities to reduce wildfire hazards and associated risks and to demonstrate fire-adapted landscaping. Policy 3.17 Ensure all residences located in State responsibility or local responsibility areas comply with the fuel modification requirements of Public Resource Code Section 4291. Policy 3-18 Provide fire safety inspections to newly owned, operated, leased, controlled, or maintained buildings located in the high fire hazard severity zone(HFHSZ) or very high fire hazard severity zone(VHFHSZ)in accordance with AB 38.The seller of the properties within these zones must present documentation to the buyer that the property is in compliance with wildfire protection measures as dictated by the local vegetation management ordinance. Policy 3-19 All new development and redevelopment in the VHFHSZ shall prepare fire protection plans that confirm compliance with the most current version of the California Building Codes and California Fire Code as adopted by the City.The fire protection plans shall also address long-term maintenance of fire hazard reduction projects and activities such as community fire breaks and private and public road vegetation clearances; delineate safe ingress and egress access areas and routes; describe evacuation and emergency vehicle access routes; ensure that home and street addressing shall be visible to emergency vehicles; and provide appropriate signage that shows access areas and routes for evacuation and emergency vehicles. The City shall maintain vegetation clearances along public roads. Private roads shall be maintained by the appropriate private homeowner's association or easement holder with abatement inspections conducted at least annually by Fire Department staff. Policy 3-zo All new development and redevelopment in the VHFHSZ shall comply with the requirements found in Title 14 of the California Code of Regulations (Natural Resources), Division 1.5(Department of Forestry and Fire Protection),Chapter 7 (Fire Protection), Subchapter 2 (SRA Fire Safe Regulations), Article 1 Administration), Article 2 (Emergency Access and Egress), Article 3 (Signing ORANGE GENERAL PLAN PS-7 PUBLIC SAFETY shall also include discussions relating to benefits and purpose of defensible space and maintenance, and evacuation and emergency vehicle access routes and programs. Policy 3.5: Continue to utilize the City's Emergency Operation Plan (EOP) including existing Wildland Urban Interface pre-plans which among other components do the following: Identify low risk fire safety areas, including locations that may serve as temporary shelter during wildfire events. Identify fire defense zones where firefighters can control wildfire without undue risk to their lives. Designate and publicize areas where firefighter safety prohibits ground attack firefighting. Identify fuel breaks and other fire defense improvements on both public and private property. Provide for adequate fire suppression resources in the local responsibility area,and coordinate with CAL FIRE regarding State responsibility area and scenarios where wildfires affect both areas. Policy 3.6: Periodically review trends and projections of future fire risk, including forecasted exasperated risk from climate change and drought, and fire risk reduction capabilities to ensure that mitigation measures are adequate. Policy 3.7 Continue to implement fire prevention strategies and fire safe development codes. Policy 3.8 Consistent with the Infrastructure Element,identify engineering vulnerabilities in lifeline utilities, such as overhead power lines,for exposure to or threats of wildland fire. Policy 3.9 Obtain compliance with State Regulations, Building and Fire Codes, and City Guidelines for non-conforming properties particularly to increase resilience of existing development in high-risk areas built prior to modern fire safety codes or wildfire hazard mitigation guidance. Ensure all infill development projects within the SRA or VHFHSZ comply with all applicable State and City fire safety and defensible space regulations or standards which include using best practices for fire-resistant or fireproof construction methods, materials and landscaping to reduce susceptibility to wildfire. Policy 3.10 Recognize the overlap between the Natural Community Conservation Plan and the Very High Fire Hazard Severity Zone, to achieve species and habitat protection, resource protection, water quality, carbon sequestration and storage,and wildfire hazard and risk mitigation. Policy 3.11 Ensure public and private landowners for all existing land uses comply with all applicable State and local requirements and implement site-specific safety measures that mitigate wildfire risk down to a low category designation by preventing threats to the interface of public facilities, infrastructure, natural resources, and the urban environment. ORANGE GENERAL PLAN PS-6 x r PUBLIC SAFETY Policy 2.5:Provide a safety assessment for post-fire events with a plan to minimize flooding, protect water quality, limit sediment flows, and reduce risks to adjacent properties, particularly in areas prone to landslides. Restore wildfire areas by planting native vegetation cover,encouraging the re-growth of native species, or using best practices as soon as possible in advance of the rainy season to aid in control of storm water runoff and facilitate slope stabilization. Fire Hazards Fire and its destructive potential are safety concerns within both the urban areas of the City and the undeveloped hillsides. Wildland fires are most problematic along the developed residential fringes of the hillsides, known as the wildland-urban interface.On a seasonal basis, dry vegetation, little seasonal rain, and Santa Ana wind conditions combine with extreme weather pattern variations to increase wildfire potential. New development,particularly in the eastern portion of Orange,will result in increased fire hazards due to higher levels of interface between residential development and open grassland and vegetation along hillsides. Keeping neighborhoods buffered from both urban and wildland fire hazards reduces incidents requiring response,and minimizes damage to property when fires do occur. In addition,urban fire hazards are a continuing concern in the City's industrial areas. GOAL 3.o: Protect lives and property of Orange residents and businesses from urban and wildland fire hazards. Policy 3.1:Continue to identify and evaluate new potential fire hazards and fire hazard areas. Policy 3.2: Consider non-traditional methods of controlling vegetation in undeveloped areas. Policy 3.3: Require defensible space maintenance agreements for new development projects and require extension of defensible space maintenance agreements to subsequent landowners. Landowners shall maintain minimum defensible space from all structures or improvements on their property and work with neighbors and the City to address defensible space within distances deemed necessary by Fire Prevention staff from structures existing on adjacent property. Planting and maintenance of fire-resistant slope cover shall improve defensible space and reduce the risk of brush fires within the wildland-urban interface areas located in the northern and eastern portions of the City and in areas adjacent to canyons, and the City shall refine and development shall implement structural hardening measures through stringent site design and maintenance standards for all areas with high wild land fire potential. To the extent possible native,non-invasive plant materials shall be used to reduce the potential for conflicts between safety and environmental goals. Fuel modification plans shall be prepared for new development projects to describe and address allowable plant materials and hardscape measures and design; defensible space distances and maintenance; and how fuel and vegetation around homes and roadways will be maintained and cleared. Policy 3.4: Educate the public regarding fire safety through public outreach, and support for localized efforts to become a Firewise Community. Public outreach efforts ORANGE GENERAL PLAN PS-5 e o-, PUBLIC SAFETY Geologic and Seismic Hazards The most significant environmental hazards that may affect land use in Orange are seismic and geologic hazards. Earthquakes and their related effects have the greatest potential to affect a large portion of the population. Other geologic hazards such as landslides and ground subsidence could have more localized effects. The combination of sound planning practices and continued public education will minimize risks to the community from seismic and geologic hazards,and will protect the health, safety,and welfare of Orange residents. GOAL to:Protect residents and businesses from seismic hazards and other geologic constraints. Policy 1.1:Minimize the potential loss of life and damage to structures that may result from an earthquake. Policy 1.2:Educate and train individuals and neighborhoods how to respond to emergency situations. Policy 1.3:Participate in federal, State, and local earthquake preparedness and emergency response programs. Flood Hazards Portions of Orange are susceptible to flood events from either a major storm or a dam failure resulting from a significant earthquake. Dams are present along Santiago Creek at two locations: Villa Park Dam and Santiago Dam (Irvine Lake). Both are located in the foothills of east Orange. Peters Canyon Dam is located within Peters Canyon about two miles west of Irvine Lake. Unlike Santiago Creek, which flows generally northwest, Peters Canyon drains to the south in this area. Prado Dam is located approximately seven miles northeast of the eastern portions of the planning area in Corona.Areas below(downstream from)these dams, including large areas within the City of Orange, have high potential for inundation in the unlikely event of catastrophic dam failure (maps showing dam inundation areas are available for public review at the Community Development Department). These dams and their reservoirs prevent periodic flooding that would be expected to occur in a natural setting. Recognizing and preparing for floods allows the community to avoid associated dangers. GOAL 2.0: Protect the City from flood-related risks and hazards. Policy 2.1:Cooperate and work with the Orange County Flood Control District to ensure District flood control facilities are well maintained and capable of providing flood protection levels for ioo-year storm flows. Policy 2.2: Protect critical public and private facilities located within areas subject to flooding and dam inundation. Policy 2.3: Evaluate and monitor water storage facilities to determine which facilities might pose an inundation hazard to downstream properties. Policy 2.4: Employ strategies and design features that will reduce the amount of impervious surface(i.e. paved area)within new development projects. ORANGE GENERAL PLAN PS-4 PUBLIC SAFETY protection from natural disasters. Streetscape improvements recommended in the Urban Design Element, including the addition of landscaped medians at some locations, may also affect emergency response, but could reduce the number of accidents along certain arterials. The Public Safety Element provides policies to support housing and neighborhood safety, which contribute to the success of policies in the Housing Element to provide adequate housing. The Natural Resources Element is also linked to Public Safety, because open space zones and allowable uses are often affected by the location of the boundaries of hazard prone zones. For example, areas prone to liquefaction hazards are often coincident with riparian streams and surrounding areas preserved as open space. Inclusion of the City of Orange Local Hazard Mitigation Plan The City of Orange Local Hazard Mitigation Plan (LHMP),first adopted by the City Council on June 13,2017,is adopted as part of the Public Safety Element. The LHMP establishes the City's risk-based approach to reducing loss of life and property by lessening the impact of disasters. The LHMP includes a comprehensive, long-term mitigation plan that identifies risks and vulnerabilities associated with natural disasters and facilitates City engagement in hazard mitigation planning. The LHMP includes sections on the purpose of the document,the profile of Orange, a hazard assessment, mitigation actions, and plan maintenance, implementation, and monitoring. The Multi-Jurisdictional Local Hazard Mitigation Plan (LHMP)for the City of Orange planning area was developed in accordance with the Disaster Mitigation Act of 2000 (DMA 2000) and followed FEMA's Local Hazard Mitigation Plan guidance. The LHMP incorporates a process where hazards are identified and profiled, the people and facilities at risk are analyzed, and mitigation actions are developed to reduce or eliminate hazard risk. The implementation of these mitigation actions,which include both short and long-term strategies, involve planning, policy changes, programs, projects, and other activities. The LHMP can be found on the City's website at: https://www.cityoforange.org/home/showpublisheddocument15603. ISSUES , GOALS AND POLICIES The goals, policies, and implementation programs of the Public Safety Element address nine issues identified as important to the City:(1)protecting citizens from seismic hazards and other geologic constraints; (2) protecting the City from flood-related risks and hazards; (3) protecting the lives and property of Orange residents and businesses from urban and wildland fire hazards; (4) minimizing risks to life, property, and the environment associated with producing, using, storing, or transporting hazardous materials; (5) reducing safety hazards associated with civilian,military, and medical air traffic; (6) providing public safety services of the highest quality; (7) improving community safety and reducing opportunities for criminal activity;(8)emphasizing emergency preparedness throughout both the City organization and the community;and(9)providing safe pedestrian and bicycle environments. These nine issues include provisions for Environmental Justice to disadvantaged communities. ORANGE GENERAL PLAN PS-3 PUBLIC SAFETY Scope and Content of the Public Safety Element The Public Safety Element is comprised of three sections: i) Introduction; 2) Issues, Goals, and Policies;and 3) Public Safety Plan. The Introduction defines the purpose,scope,and content of the Public Safety element,and its relationship to other General Plan Elements. The Issues, Goals, and Policies section describes the community's desire to address the most relevant public safety issues affecting the City. The Public Safety Plan provides hazard maps, and establishes standards and requirements to achieve goals and implement policies. Detailed implementation programs for the Public Safety Element are listed in an Appendix to the General Plan. Public Safety Considerations State law requires that the General Plan address the following public safety concerns. Natural Environmental Hazards Earthquakes and their related effects(surface rupture, liquefaction,ground shaking) Landslides,mudslides, rock falls,and soil creep Flooding due to excessive storm runoff or dam failure Wildiand fires Human-Caused Hazards Affecting Land Use Policy Hazardous materials Urban and Wildland fires Crime Homeland Security Relationship to Other General Plan Elements Accomplishing the goals and policies of the Public Safety Element requires coordination with other related components of the City's General Plan. Other topics that are affected by the Public Safety Element include the Land Use, Circulation & Mobility, Infrastructure, Urban Design, Housing, and Natural Resources Elements. Also affected and coordinated within the Public Safety Element is Environmental Justice for disadvantaged communities. Impacts of Public Safety policies and programs on the Land Use Element arise during identification of areas prone to natural hazards. For example,proposed land uses must comply with the land use compatibility standards contained in this element. Recommendations for evacuation and emergency access routes in the Public Safety Element affect the Circulation & Mobility Element. In turn, traffic calming goals and policies within the Circulation & Mobility Element have implications for emergency response.The Infrastructure Element addresses the maintenance of lifeline utility infrastructures, such as flood control facilities, that ensure ORANGE GENERAL PLAN PS-2 111 I", A\NOE ENERAL PIAN PUBLIC SAFETY INTRODUCTION AND VISION FOR THE FUTURE Maintaining a safe living environment is one of the most important challenges cities face. Orange prides itself on being a safe community with high quality emergency services and a high level of emergency preparedness.The Public Safety Element offers possible solutions for proactively addressing threats including natural and human-caused hazards, crime, and homeland security. Future land use decisions must be considered in the context of natural hazards, such as wildfires, earthquakes and floods. These decisions must also consider provision of public services, such as police,fire,and emergency medical services. Orange's Vision for the Future,presented in the General Plan Introduction,introduces a variety of objectives describing the desired quality of life of Orange residents in the future, including the following: Orange recognizes the importance of managing development in a manner that ensures adequate and timely public services and infrastructure and limits impacts on the natural environment. The City will work to improve the quality of life for all residents by providing residential, commercial, industrial, and public uses that exist in harmony with the surrounding urban and natural environments. Sustaining and continuing to improve community safety is one of the City's most important challenges. By implementing the Public Safety Element,the City will provide timely emergency service delivery and focus on expanding such services throughout the community. Through implementation of these policies, the City can also continue to prepare residents and businesses for disasters and plan for development of a safer community while likely increases in traffic congestion, extreme weather pattern variations, population growth, and ever- changing needs within the community continue to stretch the use of limited resources. Purpose of the Public Safety Element The State General Plan Guidelines direct cities to incorporate a number of required elements into their general plans,including Safety.Orange's Public Safety Element addresses such issues as geologic and seismic activity, flood hazards, fire, hazardous materials, and aircraft operations. Other public safety issues include interjurisdictional cooperation, homeland security, urban design as a crime prevention tool, and issues related to Orange's hillsides and waterways. ORANGE GENERAL PLAN PS-1 wriorff-f NATURAL RESOURCES The City is pursuing strategies for the maintenance and enhancement of the following community trail assets: Over 7o miles of existing trails Numerous City and County administered parks and open spaces located throughout the City that provide natural destination points,staging areas,and rest areas Santiago Creek,which provides potential for a trail traversing the City from east to west, with connections to regional trails on each end The Santa Ana River,which provides multiple benefits, including a multi-purpose recreational trail that connects the San Bernardino Mountains to the Pacific Ocean Additionally, 104 miles of proposed future trails are planned throughout the City on land currently used for a variety of purposes, including flood control, railroad rights-of-way, and roadways. Although the City's trails are heavily used by residents, often trails are located in areas that are disconnected and not readily accessible from neighborhoods. For example, horse trails are located in single-family neighborhoods, and pedestrian trails are located in equestrian areas. The City will work in the future to refine the definition, purpose and use of trails, as well as appropriate links and access from neighborhoods. The City has also put a high priority on creating a trail network that links the City's open spaces, featuring the Santiago Creek Trail as the spine of the network. Orange completed a paved bike trail along Santiago Creek from Tustin Street to the Santa Ana City limit, at which point the trail continues on to Main Place Mall and the Discovery Science Center. Three additional segments of this bike trail are complete; they connect Tustin Street to Grijalva Park, as well as Collins Avenue along Santiago Creek, and then travel north from Walnut Avenue to Collins Avenue along the City-owned portion of the Santiago Creek Bike Trail Right-of-Way. The Santiago Creek Trail then extends through the City with a future connection to the regional Santa Ana River trail to Santiago Oaks Regional Park and wilderness areas east of Orange. The City will continue to work toward designing a comprehensive trail system that is highly accessible and safe for those who wish to use it. Additional information, maps and policies related to Orange's comprehensive trails system are provided in the Circulation &Mobility Element. NATURAL RESOURCE IMPLEMENTATION The goals, policies and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaborations with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. ORANGE GENERAL PLAN NR-50 IMMMMOrgictiMUMIMMMIMIrmaW NATURAL RESOURCES The Santa Ana River also provides important flood control benefits and recreational opportunities for City residents. Current and planned land uses located along the Santa Ana River are among the City's highest intensity uses, providing great opportunities to improve access to the recreational trails that follow the River. The City supports future development of highly-visible access points to the River, particularly at Chapman Avenue, Katella Avenue, and Lincoln Avenue. Also, the City seeks to partner with the City of Anaheim, resource agencies, water districts, the Orange County Flood Control District, and community organizations to complete a vision plan for the Santa Ana River, similar to efforts currently underway for Santiago Creek. A key objective of the vision plan should be achieving more flexible use of the Santa Ana River corridor as a recreational amenity. For both Santiago Creek and the Santa Ana River, the City supports preserving undeveloped portions of the waterways to support riparian habitat areas and improve surface water quality. Such preservation would be accomplished through the use of Open Space land use designations. For portions of Santiago Creek that abut developed areas, the City desires that future commercial and residential projects respond to the presence of the creek as a community and ecological amenity to be incorporated in their site plans, building design and orientation, and landscaping. Recreational Programs and Services The City will also establish an ordinance to provide opportunities for funding for recreational services and facilities. Additionally, Orange will off-set and minimize impacts to the existing system caused by increased population associated with new residential development. Comprehensive Trails Network Trails serve important transportation and recreational needs for both City residents and visitors. They also help link the community through greater accessibility between neighborhoods, employment and retail centers, civic and cultural areas, nature areas, and schools. Pedestrian trails and bikeways enhance Orange's community mobility, provide opportunities for recreation and exercise, and also reduce dependence on the automobile. Orange's warm, dry climate and generally flat landscape make it perfect for walking and bicycling amenities such as trails,walkways and bike paths. The City experienced tremendous growth in the 198os. During the 1989 General Plan update, the City Council identified a need for additional recreational opportunities and recognized that construction on previously undeveloped areas rendered many "open spaces" no longer usable or accessible to the public. Recognition of this need was the motivation for development of the Recreational Trails Master Plan in 1993. Master Plan objectives include: goals for development of the trails system,a set of design standards, and an implementation and management maintenance program. Implementation of the Master Plan relies on the combination of City efforts and the efforts of a dedicated, well-informed and highly organized group of trail activists who devote their time and economic resources to preserving and enhancing current trails and to developing and maintaining new trail opportunities. ORANGE GENERAL PLAN NR-49 NATURAL RESOURCES Site Selection Standards for New Parks The City of Orange and areas within the City's sphere of influence have grown considerably in recent decades. While the rate of growth in the future is difficult to predict, thousands of new housing units will be constructed during the next several decades, both in east Orange and within the focus areas established in the Land Use Element. This in turn will require the development of new parks and facilities,and of convenient ways to access them. A major goal of the City's Community Services Department is to make sure that all future park sites obtained through dedications or purchases are adequate in terms of meeting the recreational needs of the City. A "park" that is inaccessible, lacks usable open space, or is otherwise constrained has limited utility to the residents it is designated to serve. To ensure that this does not happen,the following standards are established to apply to the acquisition of new parkland: The service area should not be divided by natural or man-made barriers such as arterial highways, railroads,freeways,and commercial or industrial areas that would render the site inaccessible or undesirable as a park. Neighborhood parks should be located adjacent to elementary schools whenever possible.The primary consideration should be whether the existing school has adequate play space to serve both its educational needs and the needs of the neighborhood for playground space. The site for a community park should be of sufficient size to include a recreation building unless adjacent school facilities can be designated to serve public uses when school is not in session. The site for a neighborhood park should have street frontage. If it is located where adjacent streets are not sufficient for parking,the site should have a parking lot. Community park sites should have direct access to an arterial street. All neighborhood and community park sites should be accessible by foot, by bicycle,or within a short drive. Santiago Creek and the Santa Ana River Santiago Creek is one of a limited number of natural creeks in southern California, and provides recreational, ecological, flood control and cultural benefits to the City. Orange residents strongly identify with the Creek, and are unified in their desire to preserve the natural characteristics of the Creek, and to use it as a link that connects City parks and other gathering places. Residents also seek long-term preservation of the hydrologic and ecologic functions of the creek. In 1999, the City applied for, and was granted, technical assistance from the National Park Service Rivers, Trails, and Conservation Assistance Program to prepare a conceptual master plan for Santiago Creek. The plan addresses three major components: recreation trails, open space, and flood control. The City will continue to work toward implementation of its recommendations,consistent with General Plan policies concerning the Creek. ORANGE GENERAL PLAN NR-48 NATURAL RESOURCES As a separate, but compatible, objective, the City will work with the County to facilitate the provision of overall parkland, inclusive of both City facilities and County regional parks, at a ratio of 10 acres per 1,000 population. Achieving this objective by 2030 would require acquisition of an additional 303 acres of parkland beyond the inventory listed in Table NR-1, and this additional acreage could be provided by either the City or the County. To support these objectives, the City will require dedication of parkland at a rate of 3 acres per 1,000 anticipated residents or payment of in-lieu fees for new residential projects. Payment of in-lieu fees constitutes sufficient mitigation for parks impacts under California law, and new development projects cannot be required to directly mitigate existing parkland deficiencies. However, the City will utilize fees collected to the fullest extent possible to improve current park facilities and to acquire additional lands for the construction of new parks. To increase incentives for new projects to provide viable, active park space, and to help compensate for current parkland deficiencies, the City will offer a variety of development incentives, including transfer of development rights (TDR) strategies, to S, r .=, . . : , . developers of residential or mixed-use projects who _ j gt J- r are willing to provide community open space in r- Ie+•• ..,'",.ii excess of the standard acresperi,000persons i ice:3 requirement. TDR refers to a method of transferring development rights from one property to another or from one part of a property to another part of the same property. In this context, a TDR would allow for conservation of open space or creation of a new community park at one location, in exchange for increased density or larger building sizes at another location. Furthermore, the City will continue to pursue all available joint-use opportunities with school districts, community college districts, and institutions, including Chapman University, in an effort to increase the utility of spaces throughout the City that are already functioning as open space. In its reviews of mixed-use developments within the focus areas established in the Land Use Element, the City will encourage such developments to include not only required park space but also common open spaces, portions of which may be required to be accessible to the public. Meeting the stated needs for additional recreational open space will also require the City to pursue new types of parks and open spaces, such as pocket parks, linear parks, public plazas and paseos. Provision of these spaces is strongly encouraged by land use policy supporting the development of mixed-use residential and commercial areas in the Land Use Element. The City will also acquire land for, build, and maintain parks currently identified in the Master Plan for Parks Facilities, and will amend the Master Plan on a periodic basis to reflect current conditions. The City's Park, Planning and Development Commission is currently working through the planning stages of several new parks throughout the City, which are identified within the Master Plan for Parks Facilities. ORANGE GENERAL PLAN NR-47 NATURAL RESOURCES e ms,. Table NR-3 Park Ratio Calculations Current(2o2o) Future(post-2o3o) Population:140,065 Population:178,471 Ratio(Acres/ Ratio(Acres/i,000 Acres 1,00o Population) Acres Population) City parks,open spaces and joint-use facilities 251.23 1.83 260.23 1.46 County regional parks 1,187 8.47 1,187 6.65 Total 1,438.23 10.27 1,447.23 8.12 Note: Population totals,City park acreages,and resulting ratios are based on the 2oo7 incorporated City limits.They do not include the City's sphere of influence,where parks are provided and maintained by the County of Orange. parkland ratio, the ratio improves to approximately 1o.27 acres of parkland per i,000 population. If further growth occurs in accordance with policies described in the Land Use Element, Orange's population may increase to approximately 178,471 at some point in time after 2o3o. Assuming that the planned park improvements in east Orange (described in Table NR-1) are completed prior to 2o3o, this would result in a future ratio of 1.46 acres of parkland per i,000 residents. Approximately 275 acres of additional parkland beyond the planned parks in east Orange is required to achieve the recommended ratio of 3 acres per i,000 population. An additional 632 acres would be required to achieve the desired ratio of 5 acres per i,000 persons, as stated in General Plan policy. If County regional parks are factored into the ratio, the future ratio would be approximately 8.1 acres of parkland per i,000 population. PIM'likr Strong demand and immediate need exist for more parks, accessible open spaces, active recreational areas, and well- lit multi-use facilities in Orange. The current shortage of parkland in Orange has caused the City to develop joint-use ti facilities agreements, specifically with the Orange Unified kr r School District (OUSD) and Rancho Santiago Community g' riiiif: ` - College District. Although joint-use arrangements have kii been successful,they are sometimes difficult to implement, and result in the City being able to claim only 5o percent of the use or effectiveness of a facility toward its objectives. New Parks and Recreation Facilities Because City residents will benefit from additional parkland and recreation programming, Orange will work actively to acquire, build, and maintain additional parkland and park facilities. Specifically, the City will pursue adding approximately 246 acres of additional parkland beyond the inventory of current and planned facilities listed in Table NR-2, in order to achieve a minimum parkland ratio of 3 acres per i,000 persons by 2o3o, working toward a desired ratio of 5 acres per i,000 persons by 2o5o. The City will evaluate progress toward achieving this goal in a report to the City Council and community every five years. vicar ORANGE GENERAL PLAN NR-46 NATURAL RESOURCES Table NR-z Orange Park System Inventory Date Location Acquired Acres Function for City parks) Belmont Park 4536 E.Via Escola Ave.1994 2.5o Neighborhood Cerro Villa Park 585o Crest de Ville 1971 26.7o Open space Eisenhower Park 2864 N.Tustin Ave. i969 i6.46 Community El Camino Real Park 400 N.Main St.1978 18.67 Community El Modena Basin Hewes St.&Jordan Ave. 1973 7.37 Neighborhood El Modena Park 555 S.Hewes St. 1974 9.32 Neighborhood Fred Barrera Park 838o East Serrano Ave. 2006 3.0o Neighborhood Grijalva Park at Santiago Creek 368 N.Prospect Ave. 2003 37.00 Community Handy Park 2143 E.Oakmont Ave. 1978 7.31 Neighborhood Hart Park 701 S.Glassell St. 1934 4i'76 Community 12.00 Open space Killefer Park 615 N.Lemon St. 1956 4.95 Neighborhood La Veta Park 3705 E.La Veta Ave. 1956 i.62 Neighborhood i.00 Open space Olive Park 2841 N.Glassell St. i975 8.02 Neighborhood Pitcher Park 204 S.Cambridge Ave.1992 0.5o Special use Plaza Park Plaza Circle 1886 0.72 Special use Santiago Hills Park 804o E.White Oak Ridge 1990 7.95 Neighborhood Serrano Park 2349 Apache Creek Dr. 2004 4.00 Neighborhood Shaffer Park i930 Shaffer St. i964 7.32 Neighborhood Veterans Memorial at Depot Park ioo N.Atchison St. 1887 0.44 Special use Yorba Park i90 S.Yorba St. 1962 8.54 Neighborhood Steve Ambriz Memorial Park 6i0 Riverbend Parkway 2008 io.5o Neighborhood Subtotal Current City Parks 237.65 Fred Kelly Stadium 392o Spring St. 2.00 Joint-use(OUSD) McPherson Athletic Facility* 333 S.Prospect Ave. 1997 9•0o Joint-use(OUSD) Santiago Canyon College 8045 E.Chapman Ave. 2.58 Joint-use(RSCCD) Subtotal Current Joint-use Agreements i3.58 Irvine Company I East Orange NSA** 6.0o Neighborhood Irvine Company II East Orange NSA** 3.0o Neighborhood Subtotal Planned Future Parks 9.00 Subtotal City Current and Planned Future Parks and Joint-use Facilities 260.23 Irvine Regional Park East Orange N/A*** 477 Regional Park Santiago Oaks Regional Park Northeast Orange N/A*** 356 Regional Park Peters Canyon Regional Park East Orange N/A*** 354 Regional Park Subtotal County Regional Parks 1,187 Total Park Acreage 1,447.23 Sources: Orange Master Plan for Park Facilities, 1999; Community Services Department staff interview, 2015; Orange County Parks Department,zoo7. Notes: Although the McPherson Athletic Facility encompasses 18 acres,the City of Orange only uses the facility half of the time.This results in the designation of 9 acres of joint-use acreage allocation. Planned future parks scheduled for construction. Regional parks not owned by the City. ORANGE GENERAL PLAN NR-45 w•re !"G3vii . ij PUBLIC SAFETY Geologic and Seismic Hazards Like many cities in Southern California,Orange faces geologic and seismic hazards,specifically earthquakes, earthquake-induced landslides, and liquefaction. The planning area encompasses two general types of terrain: an alluvial plain that underlies the central and western parts of the City, and a series of low hills (foothills of the Santa Ana Mountains) characteristic of the east side of the City and the Sphere of Influence. Generally, the alluvial plain is underlain by many thousand feet of fluvial and floodplain sediments,and certain areas of the plain adjacent to major watercourses (the Santa Ana River and Santiago Creek) are susceptible to flooding and seismically-induced liquefaction. However, the potential for landslides is low due to the limited relief of the alluvial plain. Conversely, the hilly section is underlain by bedrock (mostly late Tertiary marine and non-marine sediments); this area is generally less susceptible to liquefaction but certain areas may be prone to earthquake- induced landslides,depending upon the character of the underlying bedrock. Earthquakes An earthquake is a manifestation of the constant movement and shifting of the earth's surface. Movement occurs along fractures or faults,which represent the contact point between two or more geologic formations. Earth movement,known as seismic activity, causes pressure to build up along a fault,and the release of pressure results in the ground-shaking effects we call an earthquake. Earthquake magnitude generally is measured on a logarithmic scale known as the Richter Scale.This scale describes a seismic event in terms of the amount of energy released by fault movement. Because the Richter Scale expresses earthquake magnitude in scientific terms, it is not readily understood by the general public.The Modified Mercalli Scale,on the other hand, describes the magnitude of an earthquake in terms of actual physical effects. Table PS-1 compares Modified Mercalli Scale intensities to Richter Magnitude Scale intensities. Fault Rupture The potential for fault rupture would exist along the traces of active faults. No known Alquist- Priolo fault zone is located in the Orange planning area. However, as shown on Figure PS-1, portions of the planning area are traversed by two faults: the Peralta Hills Fault and the El Modena Fault.The Peralta Hills Fault runs from the crossing of Lincoln Avenue over the Santa Ana River on the northwest,easterly along the base of the Peralta Hills and into the City of Villa Park,then southerly into the hills west of Peters Canyon Reservoir.The El Modena Fault runs from its intersection with the Peralta Hills Fault at the base of the Peralta Hills, southeasterly to Chapman Avenue. Both the Peralta Hills Fault and the El Modena Fault are classified as possibly active by the Southern California Earthquake Data Center. Displacements along these two faults are smaller than those along the more prominent regional faults,and the maximum probable earthquake magnitudes would be much less than those along the regional faults.The City will continually update development standards and adopt the latest building construction codes to minimize seismic and related geologic hazards associated with these faults. pit us moon- ORANGE GENERAL PLAN PS-13 1 jr.-::-..:,--.----:'- 1 A. Vfore r ti,. i gym ••,,., /y r s AGE a City L - r /l a w jo Anaheim iofifta,Erw.PLAN z`a L r. , „r. ; i4m84 i.f 'J . tom.. ,,," 1 v T y'sf• r .. iikie,A ` Y r r; w'e o.. ni. f" II xit A T4l„s,ss r. j 1 1 j 1/ I o '1-----i', Park `+ 1 ` r., 0.1.1 ,,.i ` aM s w p off Fes.' r f 1 ,,.,4r< 1, A , t-.3w e. "." 7. , 1 1 6 1 ' • ,4_.....-_-•,....„ ,.• J,.-'' , I Ji• 4,,y-Pe.,, , — - 3..b. i i• et A-fi I I C g' 1 /, 'Mule .-. t r ` -. i * . n i aa.+oawo0o•ve. '/ 7 I I I S ri,.r.,-I it li Trr wwr..e., 13,.....„ st t. 4 r1FI 1 yoM..wwv— — S iTLJ I s , , , ,, a y i 0)Ti r 1..' _,_ l t •II ; I ` i 4.,.„,s. 9 '.-:'',/ . , •/ 1\ ' t•, f " Q __ nL a , f I , iyfr7 I 4 , i I rl `') 7 'C I r 1 r- _• 6. -- 4 _ -'• . ..4a{..L .. z::% 1 r'r aI o jf gi d f,. _ . .._. _ 'iL -- .--, - - - I I 44.--_ r i - ''`.,,41 ' w"/it "' t ry I I I 1 -' •I a t '' i F-Lf /Jr, fg; City of I p e• OP r+ I .i/ 8 d' Santa Ana R i i , ! e ') 1""w• T/ 9 ifi1 LEGEND f_d d- ; 41 f I 1._ _-•Planning Area Faults Bedding Plane Contact i Concentration of Industrial Land Use Landfills t• I Sphere of InfluenceL-- p Dashed Where Approximate Dashed Wherepp Approximate. ` f00-Year Flood Area Landfill ff P,. City Boundary Dotted Where Concealed. Dotted Where Concealed. -- r Surrounding Cities Barbs Are Upper Plate Related Hazard:Earth Slippage --- Liquefaction Hazard Areas Solid Waste Site y Highways of Trust Fault Along Contact ma Landslide Hazard Areas 1•_.. Railroads Note:This map shows approximate boundaries and locations of maw environmental hazards.Further research is necessary in order I •I I f Mdn to assess en individual projects proximay to the environmental 00 . Cuazards depicted here.I•e 0 '0.. A 0. Note:Large format map available at the Community Development Department/Source:Federal Emergency Management Agency 2000,Source:California Department of Conservation 2007,California Integrated Waste Management and California Energy Commission 2003 Figure PS-1. Environmental and Natural Hazard Policy Map Revised : January 13, 2022 liNATURALRESOURCES This Page Left Intentionally Blank) ORANGE GENERAL PLAN NR-46 g way di t--- t tYIN s.v. peg!' w, rK ,, City of i 1 ii,• c GE I N',1` Anaheim a tug sfao E y i1 ((!print t So iP i J. w• `q% RS o rrir.rre i / ` r• ' 4 7 r' Cerra Vir, yr:,/a r.. Park . v • ''•rr'•rr.•_.%' iA.City of ore P._...•.._.._../. r ' / VI is Park 1 •.... Yea r,.i;. wt.. ,' i-i..-.•• ....or*All link id IrprWilrillinend 111111 . I- r• - 1.•1_ 4. '.7 r ' vot MIN . curl rt.'e i illhirt I• E rr.sva i 1 <. Gn4r r .. No e) w• ' 3 ape Santiago ' SNP" HU P Pa s '•`-p () •`• orbs cP ha non• J 7 P'W •4••1I, iltrhr PVrkr RMIe: r Fa•cility t EIY.. , 1• • if j j• 111 Iii:7r. BA I 1, r rlip ¢gyp 5 Peron, •`n fr./ . 1 v«t 1 Y'" 1 L.iiii` ror l'1 , I- i i r El Yodeo, Park 9a A •' i t j it a City of I_ s r" N' I E /- i 1 tSanta Ana -' ; ,..,3 1 ' v e ms•• i '/ 4 LEGEND f CD Planning Area Park Service Area L_] Sphered Influence Mil Special Faciltles _ Sports Park Orange Park Vol and 1r2 rile radii E. fN .City BoundaryQ Neighborhood Park 0 Passive Park Note:Proposed parks are ideated wit ahacircleandhatchedserviceareaow"... Surrounding Cities Park acreage established for proposed sites uses NRPA Standards: Community Park County Park Highways MIN-park 5 acres,Nelgtrborhood Park 15 acres,and 1 Railroads Community Park25acres.Otherrecreationalfadrflesnot a.. Indicded here also serve the pubic(e.g.,Chapman College D a.. . . gymnasium.prate schoolgrotnds) i.,.;VW" Source: City of Orange 2015 t1R-45 Figure NR-5 Parks Master Plan NATURAL RESOURCES Community Parks (15 to 4o acres) are larger in scale and provide a greater variety of recreational opportunities and facilities. Six of the community parks(Hart, Grijalva, El Camino Real, El Modena, Handy, and Shaffer) host active organized sports leagues and have lighted sports fields. Special use recreational facilities provide a wide range of activities to serve the community. These facilities include joint-use properties and historic community assets such as Plaza Park, Pitcher Park, and Depot Park and Veterans Memorial. Orange's parks also provide passive recreation opportunities that include walking, hiking, and biking. Most of the parks have picnic sites, many with barbeques. Programs for seniors are available at the Orange Senior Center. The senior program is largely funded by the City and administered by a non-profit organization. Orange also provides a wide variety of recreational programs for all ages. Many of the programs are joint ventures with local nonprofits, commercial vendors or volunteer groups. The most popular activities include swimming and sports. Parks Inventory and Acreage Standards Figure NR-5 shows the locations of City parks and recreation facilities, and Table NR-2 provides a summary of the City's existing parks, recreation and joint-use facilities, future planned City parks, and County regional parks. The City owns and has developed 22 parks,which consist of about 246 acres of parkland, and also enjoys about 19 acres of additional joint-use school/City recreation facilities. Additional parkland is planned in the eastern portion of the planning area. A combination of active and passive neighborhood parks, as well as a sports park, will be developed to serve the new population in East Orange. The City may also consider the use of joint school/park facilities if the option presents itself. The precise location and size of future parks will be defined in conjunction with the approval of specific development plans and as further elaborated on in the future preparation of planned communities or specific plans. Because of proximity in East Orange to the existing or proposed natural and/or active regional parks, along with the extent of scenic open space preserved in the immediate area, the emphasis on park planning should be on active neighborhood or sport park facilities. Table NR-3 presents estimates of the City's current and future ratios of parkland per i,000 persons. Separate ratios are presented for facilities provided or planned for by the City and those provided or planned for by the County. To calculate the parkland ratio per i,000 residents, the acreage of currently developed City parks, City open space areas, and joint-use recreation facilities listed in Table NR-2 are combined for a total of about 251 acres. Given the City's estimated 202o population of 140,065, this equates to a current ratio of 1.79 acres of current parkland per i,000 persons, which is notably lower than the National Recreation and Park Association's recommendation of 3 acres per i,000 population. According to this recommendation, the City has a current park shortage of approximately 169 acres. However, City residents also enjoy access to approximately 1,187 acres of County regional parks. If regional parks are factored into the ORANGE GENERAL PLAN NR-42 NATURAL RESOURCES A number of key issues will continue to affect the City's ability to maintain and expand recreation facilities and services in coming years. First, the easternmost portion of the City will continue to experience a substantial amount of residential development. The increased population will require a full range of services, including those related to parks and recreation. These needs are addressed by the parklands provided in the development plan for East Orange. The recreation needs of the older, well established neighborhoods in Orange will also have to be monitored, particularly in light of the combined public desire for more parkland and the expanded opportunities for mixed-use residential and commercial development advocated by the Land Use Element Additional issues and concerns that will have a bearing on the future maintenance and development of parks and recreation facilities include the following: Orange will find it increasingly difficult to finance major capital improvements for parks. In addition, obtaining land for new park sites in the western portion of the city is challenging because the amount of undeveloped land is limited, and costs and competing priorities for this land have increased. Orange is presently deficient in improved recreational open space, according to standards established by the National Recreation and Parks Association(NRPA).A number of park sites have been acquired that,when developed,will reduce the gap between the standards and available parkland.Also,school grounds,through joint use agreements with the City,will help to meet parkland needs. Orange maintains and provides a wide range of specialized facilities such as game courts, athletic fields, and community buildings in existing parks. However, additional facilities are needed to meet future demands. A number of easements, including those for flood control, rail lines,and utilities, are located in Orange and present the City with unique opportunities to expand the existing system of trails and bikeways. Recent trends in land use law will make it increasingly difficult for the City to reserve private open space lands for future recreational use. Park Types A Master Plan for the City's park facilities and recreation and community services was completed in November 1999. The Master Plan for Parks Facilities establishes an organized and structured process for the development of new recreation facilities and the renovation of existing City parks and facilities. The Plan also discusses the preservation of open space and the development of new recreational programs. The City maintains three types of park facilities: neighborhood parks, community parks, and special use recreational facilities. Neighborhood Parks (4 to io acres) provide for the daily recreation needs of residents in the immediate area. Typical facilities may include landscaped picnic areas, tot lots, hard court areas, multipurpose ball fields,and limited parking. ORANGE GENERAL PLAN NR-41 NATURAL RESOURCES v r r°5*•r- This Page Left Intentionally Blank) ORANGE GENERAL PLAN NR-90 tt. ,, 4;P-- i00- 0-110 ,,... N t 1 nR... City of i 0'. F.,, /( . Anaheim add b f a A 6 f • 1) il ill al AlF j City of j 1............/ 1 t Vi la Park r i ti. — 1 lriWllirjRlirdlrillIll j::;7'..1 re' 41. ) 7 A <-,; I'l *.. 2 1..-'' i `:: i __) --\\. linIllfait= li .ii 111 1 El m •--.11111.1PAIM:11 ;_0' I. 4 \_ .•:' t \--Th,_ ,- 1- 1—.. ellrillinnill ..,,,. illigiln ..... 111 `44., / 4 op s ir:—. ---' ,„ . 1,,A.\.,Mrs" Pkiwir 2, -. 1. --;„_. ,.., 7 'II \Ng;„, c., &.‘ ,.........: fs,, ,. ..,„_,......, *L.< ,.."4-) / ----::-: i i.--irlilfjl.....itcirm, d . 3-1',./ it, ' 4' I'I It 1 r:9'p City of ieiserSafltaAna i tir MI LEGEND I . t r^ o ,, r...' ` < a1 l_1 Planning Area r ir••., y 1 Sphere of Influence 00 Viewscape cart-idu City Of i , i I pl' C City Boundary Tustin i i C Existing P3f55 r`e i I 4 Surrounding Cities li RailroadsI C f i o nz as w u J 1 SouYce: City of OYanee 2015 NR-39 Figure NR-4 Viewscape Corridors NATURAL RESOURCES I replacement of trees and shrubs on public rights-of-way or streets.An update to the Street Tree Master Plan will be completed to emphasize aesthetics, theme, and maintenance of both trees and sidewalks. The Master Plan update will also consider safety issues posed by street tree debris and roots. The City will also continue to enforce its Street Tree Ordinance and Tree Preservation Ordinance as part of the City of Orange Municipal Code. The Street Tree Ordinance has clear specifications and requirements for the planting, removal and maintenance of trees and shrubs. The Tree Preservation Ordinance provides protection for healthy, mature trees on private property and provides criteria under which trees may be removed. The Street Tree Master Plan, Street Tree Ordinance, and Tree Preservation Ordinance will help preserve and manage the City's urban forest, and maintain the City's Tree City U.S.A.status. To reduce visual clutter along commercial corridors, the City will work with utility providers to identify existing arterial corridors that would benefit from moving overhead utilities underground and improving the placement of utility service boxes, consistent with the City's Utility Undergrounding Master Plan. Undergrounding minimizes unsightly views of utility lines, which are currently prominent in areas such as the Lincoln Avenue corridor.The City will also encourage developers of all new infill projects to include underground utilities. Where placing utilities underground is not feasible, the City will work with utility providers and developers to relocate utilities away from arterial roadways. The City will also update and implement the sign provisions of the Zoning Ordinance to reduce visual clutter caused by signage and improper setbacks. Parks and Recreation Plan Parks and recreation facilities are vital resources for the City. They provide residents with a broad range of health benefits, and the quality of these resources helps attract new residents and businesses to Orange. The City currently lacks adequate x lands designated for public parks and open space to meet the recreational needs of its residents. Park facilities and recreation programs are essential to the health and economic well-being of Orange residents. The City has made improving its park system and recreational programs a high priority so that all residents can enjoy close access to a playground,a park, or a natural area.The City offers a full range of recreational programs and facilities that are heavily used by people of all ages. This section of the Natural Resources Element establishes long-range strategies and standards for the maintenance of existing park facilities and the development of new parks and recreational programs in Orange. This plan will serve as a basis for future park facilities planning. In addition, the Element identifies standards that apply not only to the development of future parks and facilities, but also to the type and nature of sites and facilities obtained through purchase or dedication, as well as their intended role in the community. ORANGE GENERAL PLAN NR-38 NATURAL RESOURCES The Land Use Element provides a means to protect the aggregate resource areas from premature urbanization. Historically, Orange contributed to the gravel industry, but the City's mineral resources have been mostly exhausted. Over the years, Orange has been characterized by numerous state-designated Mineral Resource Zones (MRZs), which identify the locations of regionally significant aggregate deposits. The MRZs have since been declassified, either as a result of completed mining activity,or as a result of urban development. However, the Land Use Policy Map (in the Land Use Element) designates an area comprising and surrounding the two groundwater recharge pits (Bond Pits) on Santiago Canyon Road within the northeastern portion of the City as a Resource Area for the purpose of conserving mineral resources and allowing mining activities.Additionally, the approximately 18-acre site of the R.J. Noble Company, which lies within the northwestern unincorporated portion of the planning area, is another Resource Area currently used for aggregate extraction and crushing operations. Portions of Irvine Lake in East Orange that are currently designated as Open Space may be used in the future for desilting activities,with the possibility of aggregate extraction. The Resource Area land use designation allows for only aggregate extraction or recreation uses. Although the Open Space designation does not permit mining, it will protect areas from urbanization, making it possible to mine the areas at some future date if necessary. Areas containing mineral resources protected in this manner include the resource zones at the west end of Lincoln Avenue, areas adjacent to Santiago Creek, and the north, east,and west sides of Irvine Lake in East Orange. The mineral resource areas in East Orange would also require amendment to the NCCP before extraction could occur. Visual and Aesthetic Resources Preservation of ridgelines and steep hillsides is an important objective for the City, for both aesthetic and public safety reasons. To that end, Orange has adopted a hillside grading policy that prohibits grading on ridgelines designated Open Space Ridgeline on the Land Use Policy Map. Wherever hillside grading occurs, the policy requires that graded slopes must be contoured and extensively landscaped with native vegetation or other compatible plant materials. The largely undeveloped Santiago Hills II and East Orange portions of the planning area have many scenic resources that include Irvine Lake, grassy valleys, rugged hillsides, rock outcroppings, and winding canyons. People traveling along Santiago Canyon Road have spectacular views of these abundant scenic resources. These views should be protected while still allowing development to occur.As identified on Figure NR-4,the City will work to designate Santiago Canyon Road as a City Scenic Highway, and will develop standards for appropriate treatment of the roadway and its surroundings. In the more urbanized areas of the City,boulevard landscaping can effectively provide a sense of visual open space. The City will review and strengthen landscaping standards as necessary to provide green areas within commercial and industrial districts, consistent with strategies outlined in the Urban Design Element. The City will also promote provision of street trees on City streets,in accordance with the Street Tree Master Plan. The City of Orange currently has over zz,000 public street trees along residential and arterial streets. The Street Tree Master Plan was adopted in 1999 in an effort to provide guidelines for all future street tree planting projects, as well as for the removal and ORANGE GENERAL PLAN NR-37 NATURAL RESOURCES y.. e'.ti.' _..s3 is i t This Page Left Intentionally Blank) ORANGE GENERAL PLAN NR-36 ii si si r - J q. 1 mow—^,. l1 241; ) ?' i yr^ar til r OM•AN-01it j Cit ENQw .,,,,Pt.w Ana eim i N.s 0 0 z \'‘.., r t f[af arS. City of f J, iaAl. f rrr,e Vi la Park ' rt rr,a rl W wf,N- J, Y II i ,O,,.f a, 1III C 2a 1-1-"'"" ...44111 / lirallipill1._ •-- N. ii i a awa,. 1 ill a F J City of 18ss_I jigI ;. i f 1 8 Santa Ana i r-% 1`I I A/: a I F3iL l' 1 J 4111ciLi 41kI LEGEND PlanningNCCP/HCP Habitat Reserve L_1 Sphere of Influence Reserve i^ City-Of-ill]i `- City Boundary Non-Reserve Open Space TUStIn ic) iy__ 1 Surrounding Cities Special Linkage 1 J v Highways I i i s- Railroads i i• a oz J ua oe as 1`f "+ , ' X NR-35 Figure NR-3 NCCP Habitat Reserve Area µk NATURAL RESOURCES will be sited in locations compatible with habitat protection based on the understanding that recreational use is subordinate to habitat protection within the reserve. The Reserve area is administered by the NROC, which includes representatives of the U.S. Fish and Wildlife Service, California Department of Fish and Game, participating landowners, and three public members. Implementation of the Reserve policies will protect sensitive plant and wildlife species in accordance with the NCCP. Substantial area is also designated as Non-Reserve Open Space located primarily in the East Orange area. Non-Reserve Open Spaces designate regional open spaces that were in public ownership prior to adoption of the NCCP. A"special linkage area" is also designated along the Southern California Edison corridor that traverses the northern portion of the City and along Santiago Canyon Road in East Orange. These open spaces are not subject to the development requirements associated with the Reserve system, but they are recognized as integral components of the overall subregional conservation strategy. The City's General Plan land use designations in these areas conform to the NCCP in that all areas currently proposed for urban development are areas identified as permitted for development and "take" by the Central/Coastal NCCP.All remaining areas are designated Open Space. Landowners in Orange who have properties within the boundaries of the NCCP Reserve area are classified as either "participating landowners" or "non-participating landowners." Participating landowners have the option to develop their properties without preparing a Habitat Conservation Plan (HCP).The Irvine Company is the City's only participating landowner. The Irvine Company donated the 50,000-acre Irvine Ranch Land Reserve to the NCCP, and pays for the management of the area as part of the mitigation plan for new development in the easternmost portion of the planning area. Lands located within the Reserve must be "reserved in perpetuity as open space and for recreational purposes." As a participating jurisdiction, the City is responsible for project review for participating landowners. The City is responsible for ensuring that non-participating landowners have paid "in-lieu"fees to the NROC for the native areas that will be removed due to development. In this case, the City is also responsible for coordinating with the NROC to make sure that the development is not in a restricted native open space area. The City will continue to ensure that all development proposals conserve the greatest amount of open space possible. The City is committed to the protection and preservation of plant and wildlife resources,and will ensure the preservation of such resources wherever possible. The City will also encourage the use of native landscape materials in new and renovated project sites. Mineral Resources Mineral resource deposits in Orange are primarily limited to the sand and gravel resources contained in and along the Santa Ana River and Santiago Creek. Sand and gravel resources are referred to collectively as "aggregate." Aggregate is the primary component of Portland cement concrete,a material widely used in the construction industry.The state requires general plan land use policy to recognize the importance of these deposits to the region's economy.As these resource deposits are important to the region's economy, the City will evaluate development proposals within these areas, and ensure adequate mitigation or preservation of the areas for future aggregate mining activity. Ausiongmosaust ORANGE GENERAL PLAN NR-33 NATURAL RESOURCES IRLR) and the Nature Reserve of Orange County (NROC) established by the Central/Coastal Orange County NCCP.These areas contain valuable ecological and biological resources. Important vegetation communities located in these areas include coastal sage scrub, woodlands, grasslands, chaparral, and riparian habitat. Characteristic vegetation species associated with scrub habitat include coastal sage brush and various species of sage and buckwheat.Woodland communities are multilayered, non-riparian,with tree canopies that have 20 to 8o percent tree cover. Local grassland communities consist of native bunchgrasses and non-native annual grasses. Chaparral communities are characterized by sclerophyllus shrubs. Species found in riparian habitats are associated with and dependent upon bodies of water, such as streambeds. Sensitive wildlife,fish,amphibian, and reptile species in these Orange habitats include Santa Ana speckled dace, Western spadefoot toad, Southern pacific pond turtle, banded gecko, horned lizard, orange-throated whiptail, silvery legless lizard, coast patch-nosed snake, mountain kingsnake, two-striped garter snake, and the northern red-diamond rattlesnake. Sensitive bird species include the double-crested cormorant, osprey, white-tailed kite, northern harrier, sharp- shinned hawk, cooper's hawk, Swainson's hawk, Ferruginous hawk, golden eagle, Merlin, American peregrine falcon, prairie falcon, Western burrowing owl, long-eared owl, southwestern willow flycatcher, loggerhead shrike, least Bell's vireo, California horned lark, coastal cactus wren, gnatcatcher, California yellow warbler, yellow-breasted chat, rufous- crowned sparrow, Bell's sage sparrow, grasshopper sparrow, tricolored blackbird, and the black-chinned sparrow. Sensitive mammal species include the pallid bat, pale big-eared bat, California mastiff bat, pocketed free-tailed bat, small-footed myotis, yuma myotis, San Diego black-tailed jackrabbit,dulzura pocket mouse, northwestern San Diego pocket mouse,southern grasshopper mouse,San Diego desert woodrat,American badger,and mountain lion. The City's main approach to conserving the many ecological and biological resources in the planning area is participation in the Orange County NCCP. Orange lies within the Coastal subregion of the Orange County NCCP. In 1996, the County of Orange and participating jurisdictions approved the Central and Coastal Subregion NCCP and an associated Implementation Agreement. Both the City of Orange and The Irvine Company are signatories to this agreement. Three species were designated as "target species" by the NCCP to be used as umbrella species to guide the design of a permanent habitat system within the Central and Coastal Subregion.The three species are the coastal California gnatcatcher,coastal cactus wren, and the orange-throated whiptail lizard, all of which are currently on the federal list of threatened or endangered species. By providing long-term protection for habitat required by the three target species, sufficient coastal sage scrub (CSS) and other habitat would be protected to benefit a much broader range of CSS-related species. The 37,000-acre NCCP Habitat Reserve area borders the eastern portion of the planning area on the north and south, and includes portions of Santiago Hills II and east Orange. As shown in Figure NR-3, areas designated as NCCP Habitat Reserve include areas surrounding Irvine Lake, Santiago Reservoir, Peters Canyon Reservoir,and along Cannon Street at the"El Modena Open Space Area." Within the Habitat Reserve area,the NCCP restricts the kinds of permitted uses to protect long-term habitat values. Residential, commercial and industrial uses are prohibited, as are new active recreational uses outside already disturbed areas. However,the NCCP recognizes that some new non-habitat uses,particularly involving public infrastructure,will need to be sited in the Reserve area, and that some current uses will be maintained. New recreational facilities AfiffffigG ORANGE GENERAL PLAN NR-32 e NATURAL RESOURCES The City will continue to require flood/storm control facilities for proposed development and redevelopment projects, and upgrade street storm drains to deal with potential flooding hazards. These programs not only take into account the potential flood events now, but are adaptable enough to account for a potential increase. Water Supply Several recent studies have shown that existing water supply systems are sensitive to climate change; however, experts are uncertain about what the overall effects will be on water supply. Some models indicate that drier conditions will cause decreased reservoir supplies and river flows.Other models predict wetter conditions with increased reservoir inflows and storage,and increased river flows. Although there is some uncertainty, it is widely accepted that changes in water supply will occur and that water yields from reservoirs are expected to be unreliable. Whether or not climate change is responsible, Orange must prepare for a future where competition for water resources is even greater than at the present time. Many of the policies and programs governing water resources under Goal NR-2 will serve to prepare the City for the possible consequences of climate change on water supply.Such policies include protecting groundwater supplies, using native or drought-tolerant plants in landscaping, using recycled water in irrigation,and promoting other water conservation efforts. Climate Action Plan Primary among the City's climate change planning efforts is the development and adoption of the City of Orange Climate Action Plan (CAP), as outlined in the General Plan Implementation Program Appendix.The City will develop and adopt the CAP by December 31, 2012.The CAP will address both GHG emissions from activity within Orange(residential,commercial,industrial,and transportation sectors) and the emissions specifically from City government operations. The plan will first create a GHG emissions inventory for the base year and forecast GHG emissions for the year 2020.The Plan will determine the quantity of emissions to be reduced to meet the GHG reduction target of 15 percent below current levels by 2020. Together, the policies contained in the General Plan and additional GHG reduction measures to be developed as part of the CAP will allow Orange to respond to this critical issue.Achieving the targeted GHG reductions and successful adaptation to the effects of climate change will demand genuine and significant effort from civic leaders,residents,and businesses. Ecological, Biological and Mineral Resources In order to ensure preservation of plant and wildlife resources, some land must be protected from development to provide areas for native plants and wildlife to thrive. Additionally, many significant mineral resources are present within the City. The following sections describe the City's approaches to conservation of ecological,biological,and mineral resources. Ecological and Biological Resources Though a large part of Orange consists of urbanized areas that generally have low habitat value for wildlife,a significant amount of land in east Orange,Santiago Oaks Regional Park,and Peters Canyon Regional Park is set aside as open space,which includes the Irvine Ranch Land Reserve essmin ORANGE GENERAL PLAN NR-31 z Table NR-1 y Climate Change Related Policies0 Issues Topic Policies' 2.4:Recycled and reclaimed water for landscaping projects En 2.11:Ecological integrity and health of watersheds 02.12:Protect the quantity and quality of local groundwater supplies n d 2.13:Control surface runoff water discharges into the stormwater conveyance system t1 cni, 2.14:Reduce pollutant runoff from new development through use of Best Management Practices a 2.15:Minimize impervious surfaces and associated urban runoff pollutants in new development and redevelopment k,, Infrastructure Element 1.2:Correct deficiencies in the City's infrastructure systems and work toward environmentally sustainable systems iir` 1.3:Water conservation programs aimed at reducing demands 1.4:Environmentally efficient infrastructure improvements 1.5:Cost-effective methods to reduce storm water infiltration into the sewer system a;;11 1.6:New development to fund fair-share costs associated with water,sewer,and storm drain service st Waste reduction Waste management and Natural Resources Element o M ePn . recycling 2.5:Local and regional waste-reduction and diversion goals s. Ao Infrastructure Element 2.3:Programs for residents to donate or recycle surplus furniture,old electronics,clothing,and other household items b 2.4:Outreach and education to all City customers regarding residential collection of household hazardous wastes Solid waste reuse Infrastructure Element 2.2:Expand outreach and education regarding recycling opportunities Note: 1-Policies are abbreviated for presentation in this table.Please refer to the text of each policy in the identified General Plan element and corresponding Implementation Programs in the General Plan Appendix. ii j 7 4; ri Table NR-1 Climate Change Related Policies Issues Topic Policies' Transit-supporting Circulation&Mobility Element facilities 2.7:Use of rail corridors for the movement of freight and goods Growth Management Element 1.9:New development incorporates non-motorized and alternative transit amenities 2.5:Provide bus shelters,shade,and other special streetscape treatments at transit stations that encourage use of regional bus and train services l' a Transportation Shorten travel distances Growth Management Element 2.4:Infill development and mixed-use opportunities wherever possible as developable space becomes more limited Technical solutions Growth Management Element O 1.12:Traffic reduction strategies within the City's Transportation Demand Management OrdinanceillRoadwaymaintenanceLandUseElement and designRoadwayimprovements within Old Towne designed topromote walkabilityand a safe pedestrian environment 9 g 5.7: P g 0 5.9:Promote attractive and safe pedestrian access between the Santa Fe Depot and the Plaza v) Circulation&Mobility Element L ro 1.3:Improve street capacity and increase safety on City arterials and neighborhood streets s E < Growth Management Element 1.4:Transportation impact fees for improvements within the City and within established County Growth Management Areas 2.2:Maintain and expand roadway and bikeway systems 4 d; Infrastructure Element 3.6:New developments funds fair-share costs associated with City provision of right-of-way maintenance services, Air quality Reduce vehicle Natural Resources Element emissions 2.1:Implement and enforce regional air quality management plans Z i 2.2:Support alternative transportation modes,alternative technologies,and bicycle-and pedestrian-friendly neighborhoods qH GHG emission reduction Natural Resources Element strategies 3.1:Evaluate the potential effects of climate change on the City's human and natural systems and prepare strategies that allow the City to appropriately respond and adapt 3.2:Develop and adopt a comprehensive strategy to reduce greenhouse gasses within Orange to at least1990 levels by zozo u) Water management Water use efficiency and Natural Resources Element reduced consumption 2.3:Native and drought-tolerant plants,proper soil preparation,and efficient irrigation systems for landscaping 0 cn z Table NR-1 y Climate Change Related Policies0 Issues Topic Policies' y Non-motorized Land Use Element to transportation 2.6:Transit,bicycle,and pedestrian sidewalks,paths,paseos,and trail systems in and around mixed-use areas 02.7:High-quality architecture,landscape design,and site planning of mixed-use projects,emphasizing pedestrian orientation rt and safe and convenient access vi Circulation&Mobility Element t 1.4:Prohibit on-street parking to reduce bicycle/automobile conflicts in appropriate target areas 4.1:Comprehensive bicycle network integrated with other transportation systems,including Santiago Creek,the Santa AnaM,a River,and the proposed Tustin Branch Trail 4.2:Racks and safe storage facilities at parking areas for City facilities 4.4:Provide adequate bikeway system signage,trail markings,and other amenities 4.5:Defensive trail design features,lighting,emergency access,and links to the roadway signal system E i 4.6:Abandoned rail corridors as segments of bikeway and pedestrian trail system 4.7:Accessible sidewalks and pedestrian amenities y MP Natural Resources Element ro A 1 6.1:Multi-use trail links that serve recreational and circulation purposes 6: co I 6.2:Consistent,safe,and efficient maintenance of trails,and minimal trail impacts to the environment PO6.3:Pursue joint use of local rights-of-way and easements for multi-use trails z 6.5:Safe trail system interface with existing development 6.6:Integrated relationship between trails and developed areas Public Safety Element i 9.i:Traffic control devices,crosswalks,and pedestrian-oriented lighting,within design of streets,sidewalks,trails,and school routes 9.2:Safe routes that encourage children to walk or bike to schools and recreational facilities 9.3:Remove barriers to pedestrian and bicycle access Noise Element 2.3:Alternative transportation modes to minimize traffic noise Growth Management Element 1.7:Expansion and development of alternative methods of transportation Infrastructure Element 3.5:Preserve and improve existing on-street bike paths within rights-of-way i. r; b Table NR-t t,i. Climate Change Related Policies Issues Topic Policies' t. Habitat management Land Use Element 6.12:Recognize value of natural and cultural resources in undeveloped areas Natural Resources Element F 2.16:Protect in-stream habitat and natural stream and channel features 4.1:Preserve and protect native and habitat-supporting plant resources 4.2:Enhance the natural qualities of Santiago Creek to protect habitat and reintroduce native plants and animals Reduce impacts of urban development on important ecological and biological resources4.3: P P P g' g 4.4:Repair or improve ecological and biological conditions in site development,redevelopment,and public improvements 4.5:Protect the Santiago Creek and the Santa Ana River corridors from premature urbanization Tree protection and Land Use Element O planting 6.9:Maximize landscaping along streetscapes and within development projects Energy Efficiency Energy efficient Infrastructure Element 5?. technology 3.4:Use energy-efficient street lights I: i 4.4:Integrated and cost-effective design and technology features within new development Green Building Public education Natural Resources Element PO2.7:Ensure adequate energy supplies to meet community needs,and promote energy conservation and public education Eprograms Efficient infrastructure Natural Resources Element r systems 2.6:Sustainable building and site designs for new construction and renovation projects 4, 4.4:Integrated and cost-effective design and technology features within new development g5 iRenewableEnergyReducedfossilfuelNaturalResourcesElement r' reliance 2.2:Alternative transportation modes,alternative technologies,and bicycle-and pedestrian-friendly neighborhoods Alf b, CA titr Transit Adequate transit to Circulation&Mobility Element employment centers 3.3:Incorporate transit-oriented design within commercial,employment,medium density residential,and mixed-use areas Z Systems along major Circulation&Mobility Element H corridors 1.1:Integrated,hierarchical,and multi-modal system of roadways,pedestrian walkways,and bicycle paths0UrbanDesignElement 2.1:Active,pedestrian-friendly streets and corridors that balance auto,transit and pedestrian mobility W Expanded passenger rail Circulation&Mobility 0 O service 3.1:Assess City public transportation needs and ensure delivery of services when and where they are needed 3.2:Convenient and attractive transit amenities and streetscapes to encourage use of public transportation 0 tn z Table NR-1 y Climate Change Related Policies Issues Topic Policies' 5.4:New public parks and open space resources through incentives and creative techniques r 5.6:Identify areas currently underserved by open space,and develop programs to purchase land and build park amenities 5.7:Transfer of development rights to acquire and develop more publicly accessible open space f] Lii Public Safety Element Ln 2.2:Protecting critical public and private facilities located within floodplain and inundation areas 1 2.4:Reduce impervious surface area within new development Urban Design Element 4.5:Incentives to create neighborhood parks and green spaces,particularly within commercial and mixed-use corridors r Wildfire safety Public Safety Element 0 3.1:Identification and evaluation of new potential fire hazards and fire hazard areas 3.2:Non-traditional methods of controlling vegetation in undeveloped areas I 3.3:Planting and maintenance of fire-resistant slope cover,stringent site design and maintenance standards,and use of native,I. G,' non-invasive plant materials i"• n) g Economic adaptation to Infrastructure Element O1 • climate changeDisaster mitigation strategies incorporated into Cityinfrastructure master plansg5.4: g g P it, City Operations City of Orange as model Natural Resources Element 2.9:City operations as model for energy efficiency and green building Low emission City Natural Resources Element vehicles 2.1o:Replace existing City vehicles with ultra low or zero emission vehicles and purchase new low emission vehicles t Other Land Use Element 14 7.4:Benefits from regional transportation,land use,air quality,waste management and disposal,and habitat conservation plans 7.5:Other agencies and service providers to minimize impacts of their facilities 7.6:Joint use agreements with other agencies to share existing and future public facilities among institutions Growth Management Element 2.1:Address regional issues and opportunities related to growth,transportation,and infrastructure Ecosystems Wildlife migration Land Use Element 6.8:Integrate natural amenities and connections within design of urban and suburban spaces I{! Table NR-t Climate Change Related Policies Issues Topic Policies'y Industrial use locations Land Use Element 4.1:Maximize industrial land resources for industrial and office uses 4.3:Protect residents and the environment from impacts of industrial operations 4.4:Mixed office,industrial,and support commercial uses in light industrial areas 4.5:Environmentally friendly business atmosphere Live work uses Land Use Element 1 4 5.1:Targeted development of mixed-use,transit-oriented development surrounding the Santa Fe Depot 5.2:Adaptive re-use of industrial and agricultural historic structures Access to employment Land Use Element centers 2.2:Transfers of development rights for high-rise office and residential structures 0 Circulation&Mobility Element a • 3.3:Transit-oriented design within commercial,employment,medium density residential,and mixed-use areas01 M4, Growth Management Element ro M 1.8:Housing within close proximity to jobs and servicesv+ 2.3:Match residents with local jobs to reduce long commutes and improve community fiscal and public health roi. EEconomic Development Element 2.1:Public-private partnerships to support business and employment growth 2.5:Retention of existing retail businesses i 3.4:Higher density residential and mixed-use projects to provide community-based workforce and market 7.1:Sites appropriate for housing development for all income groups that support commercial development 7.2:Mixed-use developments providing housing close to employment hubs ip Open space Land Use Element j: management 1.5:Recreation,open space and visual resources in east Orange fl ki 1.7:Range of open space and park amenities to meet diverse needs r+ 2.3:Transfers of development rights to promote creation of accessible open spaces H 6.4:Open space to provide recreational opportunities,protect vistas and ridgelines,and conserve natural resources 0 Natural Resources Element 1.1:Public-private funding mechanisms and management strategies to conserve open space 1.2:Land recycling opportunities for new public open space 0 O 1.3:Additional open spaces and access points adjacent to waterways and planned trails 5.3:Joint recreational use of open space land and facilities 0 tli Co z Table NR-i y Climate Change Related Policies Issues Topic Policies' y Community form Compact development Land Use Element in 1.1:Jobs and housing balance 0 2.1:Mixed-use projects in older commercial and industrial areas n 2.4:Mixed-use projects with compatible uses and supporting public and community facilities Pi 2.2:Transfers of development rights for high-rise office and residential structures m 4 2.9:Mixed-use development to include ground floor retail o, Cultural Resources&Historic Preservation Element A, r 1.4 and 1.5:Alternatives to building demolition Urban Design Element O 1.4:Pedestrian-oriented places and connections fr. 1.6:Street-oriented development,parking and commercial activities z.L Commercial corridors as pedestrian-friendly streets that balance mobility and accommodate compact development i p. 2.4:Building design and orientation to promote active street life 3 N Economic Development Element 10 p 4.3:Lot consolidation for integrated development with improved pedestrian and vehicular circulation d 5.4:Redevelop and rehabilitate underutilized and vacant lands and public rights-of-way Commercial use Land Use Element locations 3.2:City business promotion and local patronage 3.4:Clean commerce and industry Urban Design Element 2.1:Pedestrian-friendly commercial corridors that balance mobility and accommodate compact development 2.2:Pedestrian and transit access through commercial and mixed-use corridors 2.5:Design standards for urban parks and open spaces within mixed-use corridors 4.6:Pedestrian linkages between commercial districts and neighborhoods tt 6.1:Development standards for high quality building and site design integrated with infrastructure and circulation 6.2:Infill development to benefit surrounding corridors/neighborhoods and provide additional park space Economic Development Element 4.2:Reduce land,infrastructure and environmental deficiencies within commercial corridors IiR 4: l4i NATURAL RESOURCES facilities must be flood-proofed, and buildings in floodplains must adhere to construction standards. ORANGE GENERAL PLAN NR-23 NATURAL RESOURCES x f A opportunities within the City that increase the range of goods and services available to residents and improve the community's jobs-housing balance. Future "greenfield" development is limited to previously-approved entitlements in east Orange.The General Plan includes a broad spectrum of policies related to climate change. These policies have been integrated throughout the relevant General Plan elements, as detailed in Table NR-1. Adaptation Strategies Climate change has been recognized as a threat that could alter social, economic, and ecological conditions in the City. Concentrations of GHGs have dramatically increased in the atmosphere due to the use of fossil fuel-based energy sources. Additionally, the earth's capacity to capture and store GHGs has been reduced due to extensive deforestation and the conversion of grasslands and other carbon rich natural communities, as well as saturation of the ocean with dissolved CO,. Rigorous scientific analysis conducted by the IPCC, the National Research Council of the National Academies, and other agencies indicates that increased concentrations of GHGs have already begun to result in significant warming, and will lead to changes in precipitation patterns, sea level rise, and more frequent extreme weather events. Other effects could include constrained water and energy availability, more frequent flooding, health impacts related to increases in vector borne diseases, air pollution, and habitat loss. Wildfire Hazards Research conducted at the U.S. Department of Energy's Lawrence Berkeley National Laboratory indicates that climate change will increase the frequency and size of wildfires in California. Hotter,drier climates, aided by prolonged drought,will promote increased accumulation of fire- prone vegetation. When fires occur, stronger winds will continue to fan the flames, spreading fires faster and farther than previously experienced. This will expand the size of the urban- wildland interface, because more residential communities will be within reach of wildfire activity. An expanded urban-wildland interface will require increased resources, planning, and funding to maintain and defend. Adaptability is important in considering how the City can protect its citizens from the negative effects of climate change. In terms of fire protection,The City will continue to adapt by regularly updating fire protection requirements, especially in transition areas between developed and undeveloped land, and by enforcing the strongest construction and design standards. Additionally,the City will work to preserve open space where significant hazards exist. Flooding The California Climate Change Center, a research arm of the California Energy Commission, has found that climate change will result in new flooding concerns throughout California. Climate change will result in increased severity of winter storms, particularly in El Nino years. Such weather events will result in higher levels of seasonal flooding than those currently experienced. This will strain dam capacity and increase floodplain areas. Policies regarding flood protection under Goal PS-2(in the Public Safety Element)will help the City deal with existing and increased potential for flooding.The City will continue to work with the Orange County Hazard Mitigation Task Force in its planning and implementation of the Hazard Mitigation Plan, and will update its Emergency Operations Plan to identify and fund flood control improvements regularly. Public ORANGE GENERAL PLAN NR-22 r A s=: .* NATURAL RESOURCES floods, and possible human health complications. Responding to climate change requires a two-pronged approach. On one hand,the City must adapt to change and prepare for the already-foreseeable effects of global warming that have already occurred and, on the other hand, the City must coordinate with agencies, residents, and businesses to modify behavior to decrease the citywide contribution to GHG emissions and associated effects on the climate. Greenhouse Gas Emissions The California Global Warming Solutions Act of 2006 (AB 32) was created by the state legislature to address the threat global warming poses to the state's "economic well-being, public health, natural resources, and the environment". The Act directs the California Air Resources Board (ARB) to "adopt a statewide GHG emissions limit equivalent to the statewide GHG emissions levels in 1990 to be achieved by 2020." California Executive Order 03-05 (EO-S-3-o5. June 2007) requires statewide GHG emissions to be reduced to a level 8o percent below i990 levels by 2050. These laws require maintenance of a statewide inventory of emission levels as well as taking action to decrease emission levels. Actions needed to decrease emission levels statewide were documented in a Scoping Plan approved in 2008, and subsequently amended in 2oii, 2014 and 2o17. Senate Bill 375 (2008) requires metropolitan planning organizations (such as the Southern California Association of Governments(SCAG))to include sustainable communities strategies in regional transportation plans for the purpose of reducing GHG emissions from automobiles and light tricks through integrated transportation, housing, and use and environmental planning. In compliance with SB 375, the Orange County Council of Governments (in coordination with the Orange County Transportation Authority) prepared a sub-regional Sustainable Communities Strategy for Orange County (OCSCS), which was incorporated into the Regional Transportation Plan adopted by the SCAG. However, all jurisdictions in California have a responsibility to contribute to this effort with changes in operations, technology, and policies that enable residents and businesses to follow suit.This General Plan provides a comprehensive framework for Orange's approach to climate change and GHG emission reduction. The types of policies that deal with climate change and GHG emission are far ranging. The City has located policies and programs throughout the General Plan that have multiple outcomes. They help the City to achieve a high quality of life for its current and future residents and businesses, reduce the City's contributions to climate change, and help residents and businesses adapt to changing circumstances. State and local governments will play a critical role in addressing this important issue. The OCSCS identifies policies and measures that will minimize GHG emissions at a regional level. However, the City believes that in order to achieve the emission reductions mandated in AB 32 and EO-S-3-o5,each sector must do its fair share to reduce total emissions,and local action is needed to manage and measure activity within each sector as it relates to land use planning. For this reason the City is establishing a GHG emissions reduction goal of at least 15 percent of current levels by 2020. To achieve this goal, the General Plan advocates primarily compact "infill" future development, focusing on introducing urban-scale mixed-use projects at locations near transportation corridors and transit, and creating additional retail and employment ORANGE GENERAL PLAN NR-21 NATURAL RESOURCES Judicious selection of materials and maximizing landscaping in parking lots, rights-of-way, and overall building sites can further provide natural indoor cooling and reduce heat island effects and glare in our urban environment. Choosing natural materials will improve indoor environmental quality by limiting toxic emissions associated with components such as adhesives and formaldehyde often found in building materials. Constant monitoring and innovation in sustainable building design will enhance the aesthetics of the built environment while improving the comfort and health of residents. The City already practices building material waste reduction through its protection of historic building resources. These efforts, combined with construction waste management and efforts to incorporate recycled content and natural materials into new construction, will reduce the amount of waste destined for landfills and conserve non-renewable resources. Climate Change Climate change refers to a change in the state of the climate that persists for an extended period, due to natural processes, human-caused changes in the composition of the atmosphere, or land use changes that lead to atmospheric changes.According to the United Nations Intergovernmental Panel on Climate Change (IPCC)', the scientific authority on the subject of climate change,certain findings are widely accepted by the scientific community: Greenhouse gases(GHGs)such as carbon dioxide(CO2),when introduced into the atmosphere,have a warming effect on the earth; Human activities have increased the levels of GHGs in the atmosphere since pre-industrial times; and The global climate has warmed by an average of 1.o-1.7 degrees Fahrenheit from 1906- 2005. Greenhouse gases are gases that trap heat in the atmosphere. GHGs include CO2, methane, nitrous oxide, and fluorinated gases. The human activities during which these gases are emitted include burning, manufacturing, and transportation-related combustion of fossil fuels. Livestock and solid waste emissions also contribute to the buildup of GHGs. The effects of climate Projected California CO2 Emissions change include increased global average temperature, 800 subsequent altered SEee+aS v, precipitation patterns, e S^ thermal expansion of the ° it 600 ocean, and loss of polar and W v 500 global sea ice extent. In o 400 1990 Levels Orange, these changes ; A832Target would translate to water Q 300 ---- and energy supply issues, ° 200 increased risk of wildfire and EO-S 3OSTarget 100 BO%9elowt990 Levels 1990 2000 2010 2020 2030 2040 2050 IPCC 2007;Climate Change 2007:The Physi, Year Assessment Report of the IPCC.Cambridge University Press.Cambridge,UK. ORANGE GENERAL PLAN NR-20 NATURAL RESOURCES Sustainable sites Water efficiency Energy and atmosphere Materials and resources Indoor environmental quality Innovation and design process Sustainable sites require development designs that work with existing topography, building on previously developed sites, integrating natural surroundings, using existing infrastructure, building on brownfields (sites previously used for industry) through site remediation, and selecting sites near public transportation and diverse land uses. These measures will ultimately help preserve natural habitats, reduce negative effects on water and air quality, and minimize automobile use. Incorporating water efficiency at the time of construction will maximize water conservation through a building's lifetime. Using non-potable water or gray water to irrigate landscaping or using xeriscape (landscaping requiring minimal water usage)to conserve water, installing water-efficient fixtures, and incorporating innovative wastewater technologies and plans will reduce water demand and limit extraction and pollution of groundwater supply. 0 summer sun weigid Icil I i 0_,.....„1. Awning1IIII2. Roof Overhang 3. Solar Panels 4.Thermal Mass0i winter sun 5. Insulation III 1 1 6. Skylight 7. Natural Ventilation a m I 8. Rainwater Collection Green building incorporates site orientation,window placements,skylights,solar panels,and high insulation to improve indoor comfort and to conserve valuable natural resources. Providing natural ventilation and effective insulation in buildings can reduce energy demand and utility bills. Natural ventilation will allow residents to cool living spaces without relying on air conditioners, and increased building insulation will sustain moderate variations to indoor temperature. Orienting buildings to invite natural light or using solar panels will reduce electricity demand. These measures will not only reduce demand for natural resources and minimize effects on climate change, but they will also increase comfort for residents and should encourage street-fronting design using more windows and detailing. ORANGE GENERAL PLAN NR—19 NATURAL RESOURCES amendments of 1987 established a framework for regulating stormwater discharges from municipal, industrial, and construction activities under the NPDES program. The Clean Water Act provides that states are authorized to operate their own NPDES programs, provided that such programs meet minimum federal requirements. In California, the NPDES Program is administered by the State Water Resources Control Board and its nine Regional Water Quality Control Boards. The NPDES Municipal Storm Water Permit for northern and central Orange County, including the City of Orange, is issued by the Santa Ana Regional Water Quality Control Board (Region 8). The City of Orange, along with other northern and central Orange County cities, currently operates under Santa Ana Regional Board Order No. R8-2009-0030 (NPDES Permit No. CAS 618o3o) as amended by Order R8- 2010-o062.The Permit, issued in May 2009 and amended in October 20io, requires the City of Orange to minimize short- and long-term impacts on receiving water quality from stormwater and non-stormwater discharges, potential impacts associated with new development and significant redevelopment are reduced through the implementation of low impact development practices (LID) and other onsite retention practices to the maximum extent practicable. As part of the NPDES permit program, Orange adopted a Local Implementation Plan in 20o3,which was revised and readopted in September 2011 to conform to the May 2008 permit. The City will require all new development and significant redevelopment projects to use LID and Best Management Practices (BMPs) to reduce stormwater runoff and increase on-site retention. BMPs are effective methods that prevent and control the amount of pollutants entering the storm drain system, where pollutants eventually enter the surface water system. These practices closely follow federal stormwater requirements and regulations. In addition, the Orange County Model Water Quality Management Plan, adopted in August 2011 provides BMPs for source, structural and treatment control. Source control BMPs include such techniques as site planning and landscaping, and activity restrictions. Structural BMPs include providing messaging on catch basins to prevent illegal dumping, trash storage design, and energy dissipation for runoff. Treatment control BMPs include natural treatment options such as constructed wetlands, biofiltration planters and vegetated swales. The City will continue to support implementation of NPDES requirements on new development and significant redevelopment projects. Energy Resources The City will continue to promote energy conservation, both by encouraging conservation measures on the part of homeowners, the business community, and institutions, as well as by encouraging green building techniques for new construction and renovation projects. Green Building Green building concepts can be incorporated into site and building design to reduce energy use within the City as a whole, to improve aesthetics and comfort, and to provide a more cost-effective means of living. According to the U.S. Green Building Council's Leadership in Energy and Environmental Design (LEED), seven concepts of green building can help conserve energy and preserve the environment: Location and transportation ORANGE GENERAL PLAN NR-18 NATURAL RESOURCES length within Orange. Community members identify with the creek, and the City seeks to incorporate natural characteristics of Santiago Creek in the design of adjacent future projects.The upper portions of Santiago Creek are characterized by large, abandoned mining pits. In particular, the pits near Bond Street serve valuable groundwater recharge purposes. Land use policy recognizes these uses by designating the creek and several surrounding properties as Open Space or Open Space-Park. Handy Creek is a minor drainage course flowing from Peters Canyon Reservoir to Santiago Creek.Water flows from Peters Canyon Reservoir are channeled through Handy Creek to the recharge basin system at Santiago Creek near Bond Street, where it replaces water pumped from wells and helps maintain levels of groundwater supply for the area. To promote water conservation, the City will encourage all developments to utilize water conservation measures in accordance with the City's Municipal Code, and will encourage sustainability in project site planning and building design. The City will use native and drought-tolerant plants for landscaping, and will use recycled and reclaimed water for irrigating landscape projects whenever feasible. Reclaimed water is the reuse of treated wastewater, and is usually used for non-drinking purposes. Using recycled or reclaimed water instead of expensive and increasingly scarce potable water helps to ensure the long-term availability of drinking water to Orange residents. Urban Runoff Urban stormwater runoff occurs when rainfall that in a nonurban environment would have been absorbed by groundcover or soil is instead collected by storm drains. In urbanized areas such as Orange, vegetation and top soil have been largely replaced by impervious surfaces such as buildings, roads, sidewalks, and parking lots. When it rains, trash, litter, silt, automotive chemicals, fertilizers, animal wastes and other contaminants can be washed into the storm drain system. Since storm drains are designed to carry only stormwater, these drains typically are not equipped with filters or cleaning systems. Consequently, they can carry contaminants found in urban runoff directly into local flood control channels, lakes and the ocean. Many of the contaminants found in this runoff affect water quality and can, at elevated concentration levels, be toxic to aquatic and marine life. National Pollutant Discharge Elimination System Local stormwater pollution control measures are implemented in accordance with the 1972 Federal Water Pollution Control Act (Clean Water Act) and the National Pollutant Discharge Elimination System (NPDES). The Clean Water Act prohibits any person from discharging pollutants through a "point source" into a "water of the United States" unless they have a NPDES permit. The NPDES Program, mandated by Congress under the Clean Water Act, is a comprehensive program for addressing the nonagricultural sources of stormwater discharges that adversely affect the quality of the nation's waters. The Program uses the NPDES permitting mechanism to require the implementation of control and monitoring measures designed to prevent harmful pollutants from being washed into local water bodies by stormwater runoff. The NPDES program requires the owner or operator of any facility, including publicly owned facilities, or any person responsible for any activity that discharges waste into the surface waters of the U.S., to obtain an NPDES permit. The Clean Water Act sa ORANGE GENERAL PLAN NR-17 NATURAL RESOURCES A-i T,•" e.:, This Page Left Intentionally Blank) v v-t . ORANGE GENERAL PLAN NR-16 Lri: I trll'''-r\ r'---- '-- s.I0_,....„,4i.-: i r- ': n..N,,: .. , , City of N I i/ ;era Qut Pew I . GE T.1-J I l, N.y 1 , -••,:...,•_. Anaheim j,: W. rs l I'<',-.—•/ ij t-" I r —......., mil, ' i C t of..i. 1 i4 + j-_ w,. r 1." 7 L. Villa ark j rtMIwS\1! i II Wllwi.\I c • r. i G f I. 4 L- \\ I CA e: a.1 4 u !,_ „, 1 I q 3 _. il tI $JIwfi i. r i`A -•Inver..1\ FFF t—l1 M.VHN.\ 1 1T Il , ry S , r u w rj 3 F Y I CI a 22 ;! 1.. ' T17, t i i e v..- 5 a 9 Santa Ana },, `-_!—i .# _ l I. i l 4^ I rJ LEGEND t F i_ , 1,1I t_,,;• I..y • Watershed I. tk.I-- Planning Area Recharge facilitiesLower Santa Ana River Cit of l j -L_t Sphere of Influence - —: yL,.• Waterways San Diego Creek l " i`City Boundary Tustin i i Dam Carbon Creek iSurroundingCitiesr Highways Westminster i i I ir Railroads MOM i j r, ALIFir 0 015 0.5 0TS 1 FJ' , t trn-is Figure NR-2 Drainage Areas and Water Recharge Facilities NATURAL RESOURCES 4. Water District (OCWD). The City is a member of this District, which manages the Orange County Groundwater Basin and monitors and maintains ground water quality in the region. Other water sources include surface water runoff into Irvine Lake purchased from the Serrano Water District.The Lower Santa Ana River basin,which extends from San Bernardino County southwest to the Pacific Ocean, underlies the entire western portion of the planning area. The Santa Ana Mountains and foothills form the basin's eastern boundary. The ground water supply is supplemented by imported water purchased through the Metropolitan Water District of Orange County(MWDOC). Figure NR-2 identifies major surface water bodies, waterways, and watershed areas in the planning area. A watershed is the geographic area draining into a river system, ocean, or other body of water through a single outlet and includes receiving waters. Watersheds are usually bordered and separated from other watersheds by mountain ridges or other naturally elevated areas. Three watersheds are located within Orange's corporate boundaries: the Santa Ana River Watershed (Lower Santa Ana River drainage basin), the San Diego Creek Watershed, and the Westminster Watershed (Los Alamitos/East Garden Grove/Bolsa Chica drainage basin). Most of Orange falls within the Santa Ana River Watershed. The southeastern portion of the planning area falls within the San Diego Creek Watershed, and consists primarily of residential communities with scattered neighborhood-serving commercial areas. A small southwestern portion of the planning area falls within the Westminster Watershed. These watersheds are based on the hydrologic areas delineated by the Orange County Flood Control District. Irvine Lake, Villa Park Reservoir, and Peters Canyon Reservoir are artificial lakes constructed to provide water storage and flood control capabilities. All three lakes lie within areas designated for open space uses on the Land Use Policy Map. Villa Park Reservoir and Peters Canyon Reservoir lie within areas designated for public park uses. Therefore, land use policy ensures the preservation of these water resources for both resource conservation and recreation uses. Irvine Lake is planned for continued use as a water reservoir, and such use includes related recreational uses such as fishing, sailing, and boating. Resort and commercial recreation uses on adjacent lands enhance the lake's recreation function. In determining the mix of recreation uses for the lake,the Irvine Ranch Water District and the Serrano Irrigation District recognize the primary use of the lake as an agricultural and domestic water supply reservoir. Desilting activities may continue as a part of the lake's management program to assure sufficient capacity for water storage. The Santa Ana River, which forms the City's western boundary, is the major drainage course for the Santa Ana River basin. The river performs valuable flood control and groundwater recharge functions along its entire route. In recognition of the important role the river plays in providing groundwater recharge areas and adequate flood protection for Orange County, land use policy calls for open space uses along the river. Santiago Creek flows from the Santa Ana Mountains through Orange and empties into the Santa Ana River in the City of Santa Ana. In addition to controlling floodwaters and recharging the groundwater basin, Santiago Creek has become a defining feature of the community,characterized by trails and recreational open space throughout portions of its amemormsesicast ORANGE GENERAL PLAN NR-14 siminewniisionatairirgiat Afamemsard NATURAL RESOURCES In order to protect and improve air quality at a regional level, the City will continue to cooperate with SCAQMD to implement the Air Quality Management Plan. At a local level, the City will carry out the following programs to help improve regional air quality: Assess project impacts on air quality as part of the environmental review process. Whenever appropriate, environmental review and mitigation measures will be coordinated with SCAQMD. Support efforts to provide public transit,and routes that are user-friendly for bicyclists and pedestrians throughout the City. Support the development of pedestrian-friendly neighborhoods.As described in the Land Use Element, more intensely used commercial and mixed-use areas will be concentrated in identified opportunity areas located throughout the western portion of the City. Centralizing these uses may encourage mass transit to better serve core employment areas.Also, increased business opportunities within the City may reduce the number of area residents commuting greater distances to work(e.g.to downtown Los Angeles or Irvine). Require major employers to institute Transportation Demand Management(TDM) Plans. Such plans establish incentives to encourage employees to carpool,take public transportation, bicycle,walk,or use some means other than private automobiles to get to and from work. Water Resources Water is a resource that must be preserved, not only for public health, environmental, and economic reasons, but also to improve and maintain quality of life. Water quality is most definitely a regional issue. Pollutants entering the hydrologic system are dispersed outward, with the potential to affect all who use the water within the system. Water sources are considered most vulnerable to contamination from industrial activities and/or environments such as chemical processing, petroleum pipelines and storage, gas stations, and sewer collection systems. The local issue of household chemicals entering water sources is also a challenge to water safety. Pollution of urban runoff and stormwater, and threats to the City's water supply arise from improper use of household hazardous materials, such as solvents,fuels, paints, swimming pool chemicals, miscellaneous flammable and corrosive substances, and from improper disposal of household hazardous wastes, including used motor oil. Reliable water supplies are essential to public health, safety, and welfare, and the City tests all water supply sources to assure safety and compliance with all drinking water standards. Ground Water Quality and Supplies Protection of water supply and ground and surface water quality is imperative for the health and quality of life of Orange residents, businesses, and visitors. Between 60-8o percent of the water supply to the City is drawn from municipal wells drilled into the Santa Ana River Aquifer from the Lower Santa Ana River groundwater basin managed by the Orange County ORANGE GENERAL PLAN NR-13 NATURAL RESOURCES This Page Left Intentionally Blank) ORANGE GENERAL PLAN NR-12 1 24 f/ GE T•• 1.`.="ar'; If' p City of s t ni/PPAN s 1' r Anaheim A J 'Y Ailipp.....j 0 1_+ , I ~ f z — l r / t. , \ is t y I i City of rr/// / /f i....... 11111.f f r f 1. s fj// ,r ,/ f 11 MIT MI pc=o.p J f rf a rr.r. t I I771.-----. i I: ram ' 1 J Jt / /// / {/ f f NmtM.' r'1 r s I i 1111111 r• 241 OM.ti Ni i 2 1 i 11 r frrw, a1 1 1 e 1 r ff rf / , Mr c ,nY , MEE J r • i` ! / / ,t / j AA II luswiam ! I \ r ` Tom+p Fil f r' / / 22 WWI LAKE I _ as ` 1..' r:r..At e , -.: I X. r,,— ia • e f City of _ 5I _ i i_ Wr r !. ! •IP, is ! ik, Santa Ana ! I ,i-i i i:/ I I i 1261• / ////f` ;•„y f r / f LEGEND 1_—'' I 1 (—e r /// i./ 1.104, Planning Area IIIII _Space 4111t-- j f J/ /`` f / L 1 Sphere of Influence pin Space Park 4 City Of fi!/! !!/ !/ i /.. // City Boundary V iii N Open Space Ridgeline Tustin i i Surrounding Cities J'}a I f Highways re= Irvine Ranch Land Reserve f r I v / f. r f i i f! i f,'; mew Railroads r i.'/: 1 i ;. f H ti F—{ t—{Hasa J// 0 on os o.1e 1 J i// / f• f/ •i% f J/ f . / ii•/: NR-11 Figure NR-1 Open Space Resources NATURAL RESOURCES k Cleveland National Forest along the northeast border of the ranch, continues south to include large regional open space systems in the northern and southern hillsides of the City of Irvine, and extends to the Laguna Coast Wilderness Park and Crystal Cove State Park near Laguna Beach. Conserving current open spaces and creating new open spaces are important concerns. As development pressure increases in the hillside areas east of the City, one key to preserving the quality of life for Orange residents lies in providing open spaces that preserve scenic vistas, provide habitat for wildlife, and maintain the ecological balance of the area. Additionally, because most of Orange's open spaces are located adjacent to the many reservoirs and creeks located within the City, opportunity exists to improve water quality in the region by enhancing and adding open spaces around these reservoirs and creeks. To increase the amount of open space within the City, Orange will work with large landowners to secure open space dedications where feasible. The City will also work with land trusts and non-profit agencies to secure grant funds for acquisition and conservation of open space areas. Where appropriate, this process may include the use of conservation easements, which are voluntary agreements that allow landowners to limit the type or amount of development on their property while retaining private ownership of the land. The easement is signed by the landowner, who is the easement donor, and by a government agency or non-profit organization, which is the party receiving the easement.The landowner continues to privately own and manage the land, and may receive tax advantages for having donated the conservation easement. The government or non-profit accepts the easement with the understanding that it must enforce the terms of the easement in perpetuity. After the easement is signed, it is recorded with the County Clerk and applies to all future owners of the land. Air, Water, and Energy Resources The quality of air, water, energy, and land resources must be preserved, not only for public health, environmental, and economic reasons, but also to improve and maintain the quality of life for Orange residents. All of these resources generate regional issues. Therefore, resolving issues related to air, water, energy and land resources requires the coordinated efforts of many jurisdictions. Collectively, smaller local actions can have wide-reaching impacts. Air Resources Orange has seen steady growth in both population and development over the past decades, which has urbanized a once rural town. The population growth in Orange and surrounding jurisdictions has led to declining air quality in the regional air basin. Orange is located within the South Coast Air Basin, managed by the South Coast Air Quality Management District SCAQMD),which is the regional agency responsible for regulating pollutant emissions in the air basin. ORANGE GENERAL PLAN NR-10 ANIMErrMegiiiiAd NATURAL RESOURCES and animals, and vast acres of open space, from the alluvial plains below the Santa Ana Mountains to the rolling hills and shaded canyons. People found Orange to be a desirable place to farm, raise a family, and pursue a high quality lifestyle. Population growth in the zoth century transformed Orange from a quiet farming community into a sizable urban city. The sand and gravel resources of the Santa Ana River and Santiago Creek were used to support urban development,first on the flatlands, and then into the hills of east Orange. Growth has been accompanied by a gradual reduction in the quality and quantity of the natural resources which first attracted people to the area. Growth in Orange, as well as throughout the region, has contributed to a decline in air and surface water quality, reduction in local groundwater supplies, and elimination of some open space areas suitable for agricultural production and wildlife habitat. Despite the reduction and loss of some resources, Orange residents have not lost sight of the benefits natural resources provide the community. Clean air and water are vital to ensure the protection of public health and to support wildlife. Plant and wildlife resources enrich the urban setting by providing changes in scenery and environment. They contribute to the biodiversity and ecology of the region. Also, preservation of some open space areas floodplains, steep hillsides) is necessary to protect public safety. Finally, aggregate resources(sand and gravel) provide the community with a source of income and a source of readily available building materials to support new construction and growth in appropriate areas of the community. Open Space Resources Open space lands may be set aside for many purposes, including the provision or preservation of: (1) parks for recreation or wildlife habitat preservation; (2) water resources for groundwater recharge and support of plant and animal habitat; (3)environmental hazard zones for the protection of public safety; and, (4) prominent geologic features and scenic resources for the visual enhancement of the urban environment. As shown in Figure NR-1, Orange's planning area includes approximately 7,40o acres of open space, which is about one-third of the planning area's total land area. Open spaces include lands used as City or County parks, ridgelines, and areas designated as Open Space on the Land Use Policy Map.The greatest concentration of open space within the planning area is in the Cleveland National Forest, a portion of which is located within the City's Sphere of Influence.This open space includes several hundred acres in the Peralta Hills area and several hundred acres in the hills south and east of Orange Park Acres, consisting of Santiago Oaks Regional Park, Irvine Regional Park, and Peters Canyon Regional Park. An additional 15,800 acres of open space lies within the City's Sphere of Influence,east of the planning area. The open space areas also include a portion of the 37,000-acre reserve area established by the Central and Coastal Orange County Natural Communities Conservation Plan/Habitat Conservation Plan (NCCP/HCP). This area encompasses portions of Santiago Hills II and east Orange. Additionally, the Irvine Ranch Land Reserve affects the pattern of developable and undevelopable land in the eastern portion of the planning area. The reserve stretches from Weir Canyon near State Route (SR) 91 at the north end of Irvine Ranch, connects with the ORANGE GENERAL PLAN NR-9 NATURAL RESOURCES 4t Visual and Aesthetic Resources Portions of Orange are characterized by scenic vistas that include hillsides, ridgelines, or open space areas that provide a unifying visual backdrop to the urban environment. These viewsheds" contribute to the City's identity and quality of life. The City will preserve open space areas and view corridors where possible and will encourage landscaping in urban areas to improve boulevards, neighborhoods,and commercial and industrial districts. GOAL 7.o: Protect significant view corridors, open space, and ridgelines within the urban environment. Policy 7.1:Preserve the scenic nature of significant ridgelines visible throughout the community. Policy 7.2: Designate Santiago Canyon Road east of Jamboree Road as a City Scenic Highway to preserve the scenic nature of the open space adjacent to the road. Policy 7.3: Encourage the development of landscaped medians and parkway landscaping along arterial streets in public and private projects, and encourage the state to provide freeway landscaping. Policy 7.4: Coordinate with Southern California Edison and other utilities to place utility lines underground wherever possible. Policy 7.5 Encourage the retention and enhancement of scenic corridors and visual focal points within the community. NATURAL RESOURCE PLANS The Natural Resources Element establishes the City's approach to protecting and enhancing its natural, open space, and recreation resources. The City has established goals and policies to preserve these resources. The following Natural Resource Plans provide an outline for future actions to conserve and improve the natural resources in Orange's planning area. Implementation programs, which describe and detail the City's specific actions, are included in an Appendix to the General Plan. The Natural Resources Element covers a wide Open Space and range of diverse issues, from the protection of conservation Plan water resources to the establishment of recreational trails. In order to focus policy and implementation programs on each specific issue, the Natural Resource Plan is divided into two mini-plans"—a Natural Resource Conservation Natural Resource Park and Conservation and Recreation Plan and Protection Plan, and a Park and Recreation Protection Plan Plan. NATURAL RESOURCE CONSERVATION AND PROTECTION PLAN Before Orange was an incorporated city, people were attracted to the area by its wealth of natural resources—the temperate climate, clean air, abundance of water, variety of plants ORANGE GENERAL PLAN NR-8 NATURAL RESOURCES Policy 5.3: Establish joint recreational use of open space land and facilities owned by school districts and/or the City. Policy 5.4: Develop new public parks and open space resources by establishing incentives to use creative techniques available to property owners and developers that support public-private open space partnerships. Policy 5.5: Explore and pursue new approaches to new park development and to providing a balanced mix of amenities and facilities. Policy 5.6: Identify areas within the City that are currently underserved by existing open space, and develop programs to purchase land and build park amenities at a minimum level of 3 acres per i,000 persons and the goal of 5 acres per 1,00o persons. Support provision of a total of io acres of parkland per i,000 persons, inclusive of County regional parks within the planning area. Policy 5.7: Consider the use of Transfer of Development Rights (TDR) as a means to acquire and develop more publicly accessible open space. Comprehensive Trails Network Trails within the City serve important recreational and transportation needs, but are currently disconnected and in some areas incomplete. The Santiago Creek corridor has been recognized as a potential spine for a City-wide network of multi-use trails that connect parks, open spaces, recreational facilities, and other City amenities. Other opportunities to improve trail networks may include the conversion of active and inactive railroad rights-of-way to trails, and joint use of utility easements and flood control rights-of-way for trail purposes. While providing for pedestrian, bicycle, and equestrian circulation, a trails network would also create a valuable greenway system throughout the City and would support the physical health and active lifestyle of Orange residents. GOAL 6.o: Provide for alternative modes of transportation and access to recreational resources through a multi-use trail system that links the City's parks and regional open space amenities. Policy 6.1: Complete multi-use trail links throughout the City that serve recreational and circulation purposes as funding is available. Policy 6.2: Ensure consistent, safe, and efficient maintenance of trails, and minimal impacts to the environment. Policy 6.3: Work with the Rails-to-Trails Conservancy, surrounding residents, utility providers,flood control and water agencies, and community organizations to pursue the joint use of local rights-of-way and easements for multi-use trails. Policy 6.4: Link existing equestrian trails and provide outlets to open space areas, particularly in the northeast region of the City,to reach regional parks such as Santiago Oaks, Irvine, Peters Canyon,and the Cleveland National Forest. Policy 6.5: Ensure that the trail system has a safe interface with existing development. Policy 6.6: Encourage an integrated relationship between trails and developed areas through the site planning and design of private development and trail projects. ORANGE GENERAL PLAN NR-7 NATURAL RESOURCES habitat can be found in the City's undeveloped hillside areas, East Orange, and parks and open spaces (particularly near Santiago Creek, Santiago Oaks Regional Park, Irvine Regional Park, and Peters Canyon Regional Park). Human-created landscaping is also an important environmental element, particularly in urban areas. Landscaping elements such as street trees contribute to an improved aesthetic and biological environment while providing a natural means of cleansing the air and minimizing urban heat. Sand and gravel resources in the planning area provide valuable sources of aggregate material for new construction. These resources benefit the region as a whole. In accordance with guidelines established by the State Mining and Geology Board, City policy recognizes the need to protect these resources from premature urbanization. The following goals and policies reflect the City's desire to maintain and support prudent management of these important environmental resources. GOAL 4.o: Conserve and protect wildlife habitat, plant and animal species of concern, and general biodiversity. Policy 4.1:Preserve and protect native and habitat-supporting plant resources throughout the City. Policy 4.2: Work with agencies, including the Orange County Flood Control District, to identify opportunities to enhance the natural qualities of Santiago Creek to protect habitat and reintroduce native plants and animals. Policy 4.3: Reduce the impact of urban development on important ecological and biological resources. Policy 4.4: Repair or improve ecological and biological conditions in the urban and natural environments when reviewing proposals for site development and redevelopment, as well as public improvements. Policy 4.5: Protect the Santiago Creek and Santa Ana River corridors from premature urbanization to ensure the continued availability of important sand and gravel,flood control,water recharge, biological, and open space resources. Recreational Facilities and Programs The City's active and passive recreational resources consist of designated parks, trails, and open space areas. Continued provision of recreational opportunities through preservation of open space, park maintenance and development, and the creation of new facilities will ensure improved quality of life for residents. GOAL 5.o: Provide recreational facilities and programs that adequately serve the needs of residents. Policy 5.1:Maintain existing City parks at levels that provide maximum recreational benefit to City residents. Policy 5.2: Provide a range of high quality recreational facilities and programming to serve a broad cross section of residents, including youth, seniors, young adults, mature adults, and people with disabilities. Ammiggramyinktaro ORANGE GENERAL PLAN NR-6 NATURAL RESOURCES defined by the California Air Resources Board, except if certain vehicle types are not available in the marketplace. Public safety vehicles are exempted from this requirement. Policy 2.11: Protect the ecological integrity and overall health of Orange's watersheds. Policy 2.12: Cooperate with water supply agencies to protect the quantity and quality of local groundwater supplies. Policy 2.13: Control surface runoff water discharges into the stormwater conveyance system to comply with the City's National Pollutant Discharge Elimination System (NPDES) Municipal Permit and other regional permits issued by the Santa Ana Regional Water Quality Control Board. Policy 2.14: Reduce pollutant runoff from new development by requiring the use of low impact development practices and the most effective Best Management Practices(BM Ps)currently available. Policy 2.15: Minimize the amount of impervious surfaces and associated urban runoff pollutants in new development and significant redevelopment throughout the community. Policy 2.16: Protect in-stream habitat and natural stream and channel features. Policy 2.17: Educate City residents and businesses on the effects of urban runoff, and water and energy conservation strategies. Climate Change The scientific community believes that increasing levels of greenhouse gases (GHGs) in the earth's atmosphere are contributing to rising global average temperatures. The most abundant GHG is carbon dioxide (CO2), which is a byproduct of fossil fuel combustion. CO, is removed from the atmosphere through sequestration by vegetation and dissolution into the ocean. Carbon sequestration is the absorption or removal from the air of carbon dioxide by plants or natural processes. These sequestration processes happen naturally, but human- generated emissions may be outpacing these removal processes, resulting in excessive GHG concentrations accumulating in the atmosphere, and leading to a subsequent trend of unnatural global warming. GOAL 3.o: Prepare for and adapt to the effects of climate change and promote practices that decrease the City's contribution to climate change. Policy 3.1:Evaluate the potential effects of climate change on the City's human and natural systems and prepare strategies that allow the City to appropriately respond and adapt. Policy 3.2: Develop and adopt a comprehensive strategy to reduce greenhouse gasses GHGs)within Orange by at least 15 percent from current levels by 2020. Ecological , Biological and Mineral Resources Wildlife habitat is crucial for the survival of native animal and plant species, and for maintaining the biodiversity of the City and larger Orange County region. Significant wildlife ORANGE GENERAL PLAN NR-5 NATURAL RESOURCES X GOAL to:Provide recreational use, scenic enjoyment, and the protection of natural resources and features in open space areas. Policy 1.1:Conserve open space through various public-private funding mechanisms and management strategies including, but not limited to, conservation easements. Policy 1.2:Actively seek out new public open space opportunities through land recycling. Policy 1.3:Promote development of additional open spaces and access points adjacent to waterways and planned trails. Air, Water, and Energy Resources Orange lies within the heart of north-central Orange County, where the best qualities of Southern California living continue to attract new residents every year. Clean water and air, carefully managed land resources, and an efficient circulation network are critical elements of a healthy, sustainable City and watersheds. Orange will maintain and protect these resources through a range of measures to protect public health and quality of life. GOAL 2.o: Protect air,water,and energy resources from pollution and overuse. Policy 2.1:Cooperate with the South Coast Air Quality Management District (SCAQMD) and other regional agencies to implement and enforce regional air quality management plans. Policy 2.2: Support alternative transportation modes, alternative technologies, and bicycle- and pedestrian-friendly neighborhoods to reduce emissions related to vehicular travel. Policy 2.3: Reduce the amount of water used for landscaping through the use of native and drought-tolerant plants, proper soil preparation, and efficient irrigation systems as parks and other City facilities are built or renovated. Policy 2.4: Encourage the production, distribution, and use of recycled and reclaimed water for landscaping projects, while maintaining urban runoff water quality objectives. Policy 2.5: Continue to work toward local and regional waste-reduction and diversion/ recycling goals and promote public education programs. Policy 2.6: Encourage sustainable building and site designs for new construction and renovation projects. Policy 2.7: Coordinate with energy suppliers to ensure adequate energy supplies to meet community needs, and to promote energy conservation and public education programs for that purpose. Policy 2.8: Encourage development that incorporates pedestrian- and transit-oriented design and landscape elements. Policy 2.9: Promote City operations as a model for energy efficiency and green building. Policy 2.10: Work toward replacing existing City vehicles with ultra low or zero emission vehicles. At a minimum, new City vehicles shall be low emission vehicles as ORANGE GENERAL PLAN NR-4 NATURAL RESOURCES various natural resource issues. Goals are broad statements that reflect the City's desires and guide the City regarding these issues. The policies provide directions for preserving open space, improving parks and recreation, and conserving natural resources. Implementation measures designed to promote achievement of goals and policies are provided in an Appendix to the General Plan. Relationship to Other General Plan Elements Successful achievement of the goals and policies within the Natural Resources Element depends, in part, upon their consistency with those of the other Elements in the General Plan. The Natural Resources Element most closely relates to the Land Use, Circulation & Mobility, Housing, Public Safety,and Cultural Resources & Historic Preservation Elements. The Land Use Element identifies desired future uses for all lands within the City. Such uses include parks, recreational facilities, and public and privately owned open spaces to meet the needs of existing and future generations. The goals and policies of the Land Use Element assign location, intensity of use, and unit densities to properties that influence the contents of the Natural Resources Element. In addition,the Land Use Element provides for Transfer of Development Rights strategies that may increase the availability of future open space resources described in the Natural Resources Element. The goals and policies of the Circulation & Mobility Element identify, and ensure access to, open spaces and recreational areas requiring access. The Circulation & Mobility Element assigns the location of streets and trail systems for pedestrians, bicyclists, and equestrians in open spaces. The Public Safety Element provides goals and policies addressing public health and safety within the City,including open space lands such as parks,trails, lakes,and wildland areas. Public health issues include natural and man-made hazards in open space. The Cultural Resources & Historic Preservation Element is a companion element to the Natural Resources Element, and provides policies and programs related to conservation of historic and cultural resources within Orange's planning area. ISSUES , GOALS AND POLICIES The goals, policies, and implementation programs of the Natural Resources Element address seven issues: (1) preserving and expanding open space resources; (2) protecting air, water, energy, and land resources; (3) reducing greenhouse gas emissions and adapting to effects of climate change; (4) preserving significant ecological, biological, and mineral resources; (5) providing and expanding recreational facilities and programs; (6) creating a comprehensive trails network; and (7)preserving visual and aesthetic resources. Open Space Resources Open space areas are important biological, aesthetic, and recreational resources. They become increasingly valuable as the City develops and the landscape becomes more urbanized. Open spaces create buffers to development and provide both wildlife habitat and recreational opportunities. ORANGE GENERAL PLAN NR-3 nor Arignr.wir NATURAL RESOURCES The natural resources, open space, and parks and recreational facilities described throughout this Element are key physical components that are essential to the quality of life in Orange. These facilities provide a variety of benefits. For example, open space provides recreational areas and wilderness areas. Urban parks provide relief and offer a soothing contrast to office, commercial, and residential areas. They provide for both active and passive recreational activities, and are key contributors to neighborhood identity and interaction. Trails and bicycle paths offer non-motorized alternatives for getting around the City. In addition, modern day recreational and visual connections to the Santa Ana River and Santiago Creek are reminders of our Native American and agricultural heritage. Orange's General Plan combines two state-required General Plan elements—Open Space and Conservation — into a single Natural Resources Element. In addition to meeting other open space and conservation requirements,the Natural Resources Element also provides guidance regarding strategies for reducing urban runoff, maintaining water quality, preserving air quality and combating climate change within the City. Purpose of the Natural Resources Element The Natural Resources Element satisfies State requirements for the Open Space and Conservation Elements as stated in the Government Code Section 653o2(d) and Section 653oi(e). The goals and policies regarding nature conservation must adhere to the underlying intent of the Natural Communities Conservation Plan (NCCP). The Natural Resources Element also includes an optional Parks and Recreation Element, under provisions of General Plan law, which includes designation of parks and recreation facilities to meet the requirements of the state's Quimby Act imposed on cities and counties. The Quimby Act allows the City to collect exactions, in the form of impact fees, conservation easements, or park improvement fees from developers by demonstrating a close relationship between the park demands of a project and the need for additional parkland or recreational facilities. The purpose of the Natural Resources Element is to establish programs and policies for: (1) preservation and use of open space; (2) renewable and non-renewable nature conservation; and, (3) parks and recreation. The scope of the Natural Resources Element spans areas of land and water used for open-space uses such as: preservation of renewable and non-renewable natural resources; managed production of resources, such as energy and groundwater supply; outdoor recreation; and trail-oriented recreational use. Scope and Content of the Natural Resources Element The Natural Resources Element contains goals and policies that reflect the community's intent to preserve and efficiently operate programs associated with open spaces, natural resources,and recreational spaces.The Element is divided into three sections: 1) Introduction 2) Issues, Goals, and Policies 3) Natural Resource Plans The Issues, Goals, and Policies section identifies community open space, resource management, and recreational needs.This section also identifies goals and policies related to ORANGE GENERAL PLAN NR-2 NATURALillil11c RESOURCES ENERAL PLAN INTRODUCTION AND VISION FOR THE FUTURE Orange benefits from and relies upon its natural resources,which include a variety of landforms that provide the setting for the City, as well as the open spaces and parks that define many of the to YY te e.. community's neighborhoods. These amenities provide visual relief from the intensity of urban t areas. Open spaces offer areas for passive and ice. I Nor r active recreation, and for horticulture.They provide habitat for plant and animal life. Used as parks,they house facilities for recreational and civic activities that are accessed by residents and visitors of all ages. Striking a balance between the built environment and Orange's natural resources is vital to the long-term sustainability of the community. Such sustainability requires that growth occur in a responsible manner that allows natural resources to be preserved and enhanced for future generations. Orange's Vision for the Future is described in the General Plan Introduction. The Vision recognizes that the City's quality of life will be judged by how well we connect with our surroundings. Therefore, this Element focuses on how Orange can maintain and create special places that bring us together, and how the City can reinforce connections between open spaces and the community, so that all of our residents and visitors can share and enjoy the outdoors and other activities. The Vision includes the following objectives related to Orange's natural resources: Define neighborhoods through the use of open space areas and a trail system that provides a source of aesthetic beauty and recreational opportunities. These open space areas support a healthy and active community. Continue to protect our critical watersheds, such as Santiago Creek, and other significant natural and open space resources. Strive to build a comprehensive system of parks, open space, equestrian areas, scenic resources, and undeveloped natural areas, as well as a full array of recreational, educational, and cultural offerings such as sports,entertainment areas,and play facilities. Develop a connected multi-modal network for traveling from one end of town to the other that provides the option for residents from different neighborhoods to access parks, open spaces, and scenic areas by vehicle, transit, foot, bicycle or, where appropriate, by horse. ORANGE GENERAL PLAN NR-1 Rev. 12/8/15 (GPA 2014-0001) GROWTH MANAGEMENT MMER., _;fiMXIMMINr „il. Introduction and Vision for the Future 1 Purpose of the Growth Management Element 1 Scope and Content of the Growth Management Element 1 Relationship to Other General Plan Elements 2 Definitions 2 Table GM-1 Growth Management Terms Defined 3 Measure M Requirements 4 Issues, Goals, and Policies 5 Growth Management Plan 6 Interjursidictional Coordination and Cooperation 6 Growth Management Areas Error! Bookmark not defined. Freeway System Deficiencies 7 City Roadway Deficiencies 7 Level of Service Standards 7 Development Mitigation 8 Infill Development within Focus Areas 8 New Development in East Orange 8 Traffic Impact Analysis and Fees 9 Development Phasing 9 Annual Monitoring 9 Growth Management Implementation 9 ORANGE GENERAL PLAN GM-10 GROWTH MANAGEMENT Traffic Impact Analysis and Fees To ensure that traffic impacts associated with new development are adequately addressed, the City will require a Traffic Impact Analysis of all new projects, as required by the City's Traffic Impact Analysis Guidelines or at the discretion of the City Traffic Engineer when insufficient information is available to make a preliminary assessment of a proposal's traffic impacts.The City will also ensure that new development pay for or implement its fair share of street improvement costs associated with development, including regional traffic mitigation. The City will not use any new revenues generated from Measure M to pay for improvements incurred by a private development project. The City will continue to collect transportation impact fees for improvements within its boundaries and will work with adjacent jurisdictions to ensure that an appropriate level of transportation impact fees is maintained within the GMAs. In the future, the City may also give consideration to a Deficient Intersection Fund Fee on all development contributing measurable impacts to intersections on the Deficient Intersection List of the Orange County CMP.This fee, if determined necessary, shall be approved by the jurisdictions in the GMA and locally administered as part of the City's CIP. Development Phasing New development in the City will be required to establish a Development Phasing Program that links issuance of building permits for portions of the development plan to roadway improvements required to achieve the appropriate LOS. During the development approval process, it will be determined whether to link to construction of the designated improvement(s) by others and/or link to construction of the designated improvement(s)at a certain time designated by the City. The phasing plan must include an overall buildout plan which can demonstrate the ability of the infrastructure to support the planned development. The phasing plan for new projects will be a component of the development review and entitlement process and must be approved prior to issuance of building or grading permits. Annual Monitoring The City will monitor the implementation of the Development Phasing Program for each new development projects on an annual basis and prepare an annual report, which will indicate the status of development approval in relationship to the status of the required traffic improvements. GROWTH MANAGEMENT IMPLEMENTATION The goals, policies, and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaboration with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. ORANGE GENERAL PLAN GM-9 GROWTH MANAGEMENT another City or the state; facilities that are part of the Orange County Congestion Management Program (CMP); or those included on a Deficient Intersection List established by a GMA in which the City participates. LOS will be measured according to the procedures outlined in the LOS Policy Implementation Manual established by OCTA. In order to achieve this standard, the City will require that the necessary improvements to transportation facilities identified as adversely impacted shall be completed prior to completion of a development project. Achieving the adopted LOS standard and implementing exacted transportation improvements will also take into consideration extraordinary transportation circumstances that may affect identified intersections and/or timing of the required improvements. An example of an extraordinary circumstance would be when arterial roadways serve temporarily as substitute freeway access (thus affecting LOS performance) while construction of additional freeway improvements is underway. Development Mitigation New development in accordance with the policies of the Land Use Element may occur throughout the planning area over the next 20 years. Most new development will occur either within one of eight focus areas identified in the Land Use Element, or within the eastern portion of the planning area. Infill Development within Focus Areas Infill is the development of vacant sites in previously built-up areas. Infill development in Orange may occur in the future within eight focus areas as described in the Land Use Element. Much of this infill development will take the form of mixed-use residential, office, and commercial projects, designed to provide opportunities for people to live, work, and shop within more compact locations or districts. However, potential exists for infill development to further degrade traffic congestion on some of the City's major arterial roadways, including South Main Street, Chapman Avenue, Katella Avenue, Tustin Street and La Veta Avenue. Growth management strategies for these areas focus on timely development of circulation system improvements related to infill development projects. Strategies emphasize use of alternative transportation methods, particularly transit, within the focus area corridors. New Development in East Orange Most new development in Orange's planning area will occur in currently undeveloped areas located generally east of Jamboree Road. This area is well served by the SR 241 and SR 261 toll roads, and future improvements to Santiago Canyon Road will provide arterial connections between the toll roads and future residential and commercial recreation areas. This circulation system provides beneficial connections to those living in east Orange who travel north to Riverside County or south to Irvine or other destinations in the South County. Growth management strategies for new development in east Orange focus on collecting transportation impact fees and ensuring that needed roadway improvements are completed in step with new development as new homes and businesses are occupied. ORANGE GENERAL PLAN GM-8 AiIIIVnemnrrvi GROWTH MANAGEMENT Transportation Corridor (SR 241) to the east. The state and federal highway and freeway systems are therefore an integral part of the City's transportation planning process. Coordination with Caltrans and the Transportation Corridor Agencies regarding future improvements to these roadways is imperative to prevent unintended traffic impacts on the City's roadway system. Freeway System Deficiencies Many of the transportation problems facing the City and Orange County are based on the inadequate capacity of freeways to serve peak period travel demands. This lack of capacity has resulted in poor levels of service, characterized by severe congestion and low travel speeds, as well as diversion to local streets during peak periods. The most severe congestion on the freeway system that affects the City's roadway system occurs at the "Orange Crush," where the Santa Ana, Orange, and Garden Grove Freeways come together. In addition, the Riverside Freeway is severely congested by commuters coming from the Inland Empire to jobs in the South Central Orange County area during peak periods.As freeways become more congested,additional impacts result on the City's roadway system. City Roadway Deficiencies The Orange County Master Plan of Arterial Highways (MPAH) defines an arterial highway system intended to support and serve existing and projected land uses within both incorporated and unincorporated areas of the County. The arterial system is designed to serve as part of a balanced transportation system(autos,trucks, buses, bicycles, pedestrians, and emerging technologies). Smart Streets, Principal, Major and Primary Arterial Highways are intended to accommodate the bulk of intra-regional traffic and complement both the freeway system and the local street network. Secondary Arterials and Commuter Streets serve mainly as collectors which move traffic from local streets to the Smart Street, Principal, Major and Primary Arterial system. As congestion continues to increase on the freeway system, more drivers will switch to using City arterials, particularly those parallel to freeways, or arterials serving the same trip destinations as the freeways. Consequently, these arterials, such as Tustin Street and Lincoln Avenue, will become increasingly congested at peak hours, pending improvements to the freeway system. Likewise, arterials providing access to the Costa Mesa and Garden Grove Freeways, such as Chapman, Katella, Lincoln, and Taft Avenues, are experiencing similar congestion. Chapman Avenue east of the Costa Mesa Freeway acts as the absent easterly extension of the Garden Grove Freeway, attempting without adequate capacity to serve a major population and recreational demand in east Orange and the South County area. Level of Service Standards Level of service is a qualitative measure that characterizes traffic congestion on a scale of A to F with LOS A representing a free-flow condition and LOS F representing extreme congestion. The LOS standard for traffic circulation in the City is LOS D for all roadway segments and signalized intersections. The circulation system shall be implemented in a manner that is designed to achieve LOS D or the current level;whichever is the farthest from LOS A. Intersections exempt from this standard include facilities under the jurisdiction of ORANGE GENERAL PLAN GM-7 GROWTH MANAGEMENT IIKT.007Agmimmimmilweip Policy 1.io: Apply traffic calming measures, where appropriate, to residential neighborhoods affected by cut-through traffic in accordance with the City's Residential Neighborhood Traffic Management Program. Policy 1.11: Adopt and maintain a 5-year CIP in conformance with the provisions of Measure M for the purpose of maintaining the LOS standards established in this Element. Policy 1.12: Promote traffic reduction strategies through the measures adopted within the City's Transportation Demand Management(TDM)Ordinance. GOAL 2.0: Provide for adequate regional and local transportation facilities. Policy 2.1:Cooperate with other agencies to address regional issues and opportunities related to growth,transportation, infrastructure,and other planning issues. Policy 2.2:Plan for future maintenance and expansion of the City's roadway and bikeway systems and other infrastructure on an annual basis. Anticipate changes in funding availability, project priority, and project feasibility. Policy 2.3: Continue to work toward achieving a balance between residential, industrial, commercial, and public land uses. Support programs that match Orange residents with local jobs to reduce long commutes and improve the fiscal and public health of the community. Policy 2.4: Explore infill development or mixed-use opportunities wherever possible as developable space becomes more limited. Policy 2.5: Continue to work with OCTA and other regional transit agencies to provide such amenities as bus shelters, shade, and other special streetscape treatments at transit stations that encourage the use of regional bus and train services. Policy 2.6: Participate in interjurisdictional planning forums within the City's established GMAs as adopted by the Regional Advisory Planning Council. GROWTH MANAGEMENT PLAN The Growth Management Element expresses the City's approach to managing future growth. Consequently, although there is some overlap among the policies presented in this Element and in other General Plan elements, this Element is defined as the key resource document for growth management policies and issues and Measure M compliance. The following section presents the key growth management challenges facing the City in coming years and the City's approach to addressing the challenges. Interjursidictional Coordination and Cooperation The City recognizes that federal and state highways are a significant part of Orange's transportation system,and therefore greatly influence operation of the City roadway system. The City is bisected by the Costa Mesa Freeway (SR 55) in addition to being ringed by the Riverside Freeway (SR 91)to the north, the Orange Freeway (SR 57) and Santa Ana Freeway 1-5) to the west, the Garden Grove Freeway (SR 22) to the south, and the Eastern ORANGE GENERAL PLAN GM-6 9;;,& OIL y` GROWTH MANAGEMENT ISSUES , GOALS , AND POLICIES The City of Orange's population is projected to increase by approximately 27.5 percent between 2008 and 2030, based upon buildout of the City's General Plan. Strong demand for transportation facilities and services will require continued reinvestment by the City and other service providers. It is important to balance future growth within Orange with roadways and other transportation services and facilities. The goals and policies of the Growth Management Element address two key issues: i) reducing traffic congestion and 2) ensuring provision of adequate regional transportation facilities. These goals and policies tie together all development goals under the unifying theme of growth management, and indicate Orange's commitment to continue to work with other jurisdictions to address regional concerns. GOAL 1.o:Reduce traffic congestion within the City. Policy 1.1:Establish LOS D as the level of service standard for traffic circulation within the City for both roadway segments and peak-hour signalized intersection movements. Policy 1.2:Ensure completion of transportation improvements as agreed upon by the City and developer prior to completion of a development project. Policy 1.3:Ensure that new development pays its fair share of street improvement costs, including regional traffic mitigation. New revenues generated from Measure M, if available, shall not be used to replace private developer funding which has been omitted for any project. Policy 1.4:Continue to collect transportation impact fees for improvements within the City boundaries and work with adjacent jurisdictions to determine that an appropriate level of transportation impact fees are maintained within the established County GMAs. Policy 1.5:Require new development projects to link issuance of building permits for the appropriate portion of the development plan to roadway improvements required to achieve the appropriate LOS. Monitor the implementation of this requirement for each new development project on an annual basis. Policy 1.6:Integrate land use and transportation planning to provide adequate transportation system service standards. Policy 1.7:Promote the expansion and development of alternative methods of transportation. Policy 1.8:Encourage the development of housing within close proximity to jobs and services. Policy 1.9:Ensure that new developments incorporate non-motorized and alternative transit amenities such as bike racks, bus benches and shelters,and pedestrian connections. G ORANGE GENERAL PLAN GM-5 GROWTH MANAGEMENT er Table GM-1 Growth Management Terms Defined Term Definition appropriate actions to achieve the LOS standards described in this Element. Measure M Requirements In i99o, Orange County voters approved Measure M, authorizing a half-cent retail sales tax increase for a period of zo years effective April -1, 199i. County voters approved the renewal of Measure M, known as OC Go, extending the half-cent sales tax increase through zo3i. As of fall 2020,OC Go is expected to generate approximately$11.6 billion through zo41. Revenue generated by Measure M is returned to local jurisdictions for use on local and regional transportation improvements and maintenance projects.To qualify for this revenue, each jurisdiction must comply with the Countywide Traffic Improvement and Growth Management Program.The Countywide Growth Management Program is designed to foster a cooperative process among local Orange County jurisdictions to coordinate and implement traffic improvements, and to promote stronger planning on a countywide basis, while maintaining local authority over land use decisions. It is also designed to maintain local authority regarding performance standards, such as traffic LOS, while considering regional impacts. Specifically, to receive an allocation of Measure M funds, the City of Orange must submit a statement of compliance with the growth management components of the program. Requirements include the following: adoption of a Growth Management Element that includes: o traffic LOS standards; o a development mitigation program; and o a development phasing and annual monitoring program; participation in interjurisdictional planning forums; development of a 5-year CIP; addressing housing options and job opportunities;and adoption of a Transportation Demand Management Ordinance. The City's compliance with these components has been addressed elsewhere in the Growth Management Element or is referenced where adopted by a separate action in a separate document. Implementation of the Growth Management Element is incorporated throughout the City's established development review and monitoring process where possible. The processes related to the Element are also crafted to be compatible with regional programs, including applicable Congestion Management and Air Quality Management Plans. This element will be reviewed annually to determine if appropriate changes are needed based on experience and changed circumstances. ORANGE GENERAL PLAN GM-4 x'4,r. GRGROWTH MANAGEMENT Table GM-1 Growth Management Terms Defined Term Definition Capital Improvement A 5-year list of capital projects to meet, maintain, and improve the City's adopted traffic Level of Program(CIP) service (LOS) and performance standards. The CIP includes: 1) the description of the proposed project improvements, 2) the anticipated funding source, and 3) the estimated cost in current dollars. Critical Movement Any of the conflicting through or turning movements at an intersection which determine the allocation of green signal time. Deficient Intersection A trust fund that may be established to implement necessary improvements to existing Fund intersections which do not meet the LOS standards adopted in this Element. Such a fund may be established from transportation fees,mutually agreed upon by the Growth Management Element in which the deficiency exists. Deficient Intersection A list of intersections that:1)do not meet the City's LOS standards for reasons that are beyond the List control of the City(e.g.ramp metering effects,traffic generated outside the City's jurisdiction,)and 2)are not brought into compliance with the LOS standard in the most current 5-year CIP.Additional intersections may be added to the list only as a result of conditions that are beyond the City's control. Development A program which establishes the requirement that building and grading permits shall be approved Phasing Program or issued in a manner that assures implementation of required transportation improvements through either construction of said improvements and/or timely provision of mitigation fees as determined by the City during the development's approval process.The City shall specify the order of improvements and/or timing of payment of the required mitigation fees (as they relate to the number of dwelling units,square feet of development,or trip generation),based,at a minimum,on mitigation measures adopted in conjunction with the environmental documentation and other relevant factors. Growth Management Subregions of Orange County established by the Regional Advisory Planning Committee to promote Areas(GMAs) inter-jurisdictional coordination to address infrastructure concerns and implement needed improvements. GMAs are comprised of elected officials and staff from local agencies whose jurisdictions are covered,at least in part, by the GMA.The City of Orange is included in three of ii Growth Management Areas(#3,#4, and#7)in the County, requiring representatives of the City to meet regularly with the surrounding communities of Anaheim, Santa Ana,Villa Park, Irvine,Tustin, Garden Grove,and Yorba Linda. Growth Management The Growth Management Element of the City's General Plan as required by the Orange County Element voter-approved Revised Traffic Improvement and Growth Management Ordinance, also known as Measure M or OC Go. Level of Service A qualitative measure of the relationship between the volume and capacity of a roadway, usually LOS) described by the letters"A"through"F." LOS A describes freely flowing traffic conditions and LOS F describes congested roadways. LOS D is usually considered the industry standard for traffic analysis purposes. Local Transportation The body responsible for the implementation of Measure M as designated by the Orange County Authority Board of Supervisors and the Orange County Transportation Authority(OCTA). Measurable Traffic A traffic volume resulting in a one percent increase in the sum of the critical movements at an intersection. Measure M The Revised Traffic Improvement and Growth Management Ordinance adopted by Orange County voters on November 6,199o.The Measure authorized the imposition of a half-cent retail sales tax for a period of zo years effective April 1, 1991. A November zoo6 ballot measure renewed the program through 2o31.The sales tax increase will be allocated to local Orange County jurisdictions for use on local and regional transportation improvements and maintenance projects. As of fall zozo,Measure M,also known as OC Go,is expected to generate approximately$.1.6 billion through zo41. Performance A comprehensive road improvement and financing plan which monitors the level of service Monitoring Program requirements in this Element while taking into account measurable traffic impacts on the circulation PMP) system.This program will annually review the status of public and private roadway improvements associated with the 7-year CIP and Development Phasing Programs to assure that the City is taking Aammummusemt ORANGE GENERAL PLAN GM—3 GROWTH MANAGEMENT transportation infrastructure. The Plan also explains how the goals and policies will be achieved and implemented. The Growth Management Element applies to all new development within the City with the possible exception of approved vested projects or projects with development agreements. Those projects would require individual legal review to determine Growth Management Element applicability. The City may consider, on a case-by-case basis, future project exemptions to encourage redevelopment activities or the development of affordable housing. Privately initiated Land Use Element amendments, zone changes, and other discretionary projects will be specifically reviewed for consistency with the Growth Management Element policies. Relationship to Other General Plan Elements A major goal of the Growth Management Element is to ensure that the management and implementation of traffic improvements within the City are coordinated and timed concurrently with anticipated development and redevelopment projects, consistent with policies and plans set forth in the Land Use, Circulation & Mobility, Housing and Infrastructure Elements. This Element does not replace or supersede other General Plan elements—such as the Circulation & Mobility Element—that also specify goals and policies for transportation and circulation issues. Instead, the Growth Management Element addresses, amplifies, and supports traffic Level of Service (LOS) standards included in the Circulation & Mobility Element and provides a means to implement the City's Master Plan of Streets and Highways. Similarly, the Growth Management Element supports the vision, conditions, and parameters under which future development and redevelopment may occur, as expressed within the Land Use Element. The Growth Management Element consists of goals, objectives, and policies to serve as a guide for the selection of mitigation measures and conditions of approval for projects processed in the City. It has been crafted to minimize duplication of Measure M and Congestion Management Program(CMP)requirements. The Growth Management Element works in tandem with the Housing Element to direct housing to the most appropriate sites. It also describes the desired relationship between the phasing and construction of development and roadway infrastructure to serve new development. Similarly,the Infrastructure Element describes the City departments and other service providers responsible for providing sewer, water, storm drains, and dry utilities to future development within Orange's planning area. Definitions For the purposes of this Element and compliance with Measure M, several terms used throughout the Element are defined in Table GM-1. 11=111111111•1111111rir WC ORANGE GENERAL PLAN GM-2 GROWTH tia , -- T AGEMENT ENERAL PLAN INTRODUCTION AND VISION FOR THE FUTURE The Growth Management Element contains policies for the planning and provision of traffic improvements that are necessary for the City's orderly growth and development. The policies and programs presented in this Element are for the establishment of traffic Level of Service (LOS) standards, a development mitigation program, a development phasing program,and an annual monitoring program. Orange's Vision for the Future, presented in the General Plan introduction, includes the following objectives related to the Growth Management Element: The City will build upon existing assets to create a living, active, and diverse environment that complements all lifestyles and enhances neighborhoods, without compromising the valued resources that make Orange unique. Orange recognizes the importance of managing development in a manner that ensures adequate public services and infrastructure and limits impacts on the natural environment. Policies, plans, and programs outlined within this Element are designed to improve residents' quality of life by ensuring that needed roadway and circulation improvements are completed in step with both new development and future infill development. Purpose of the Growth Management Element The purpose of the Growth Management Element is to mandate that (i) growth and development be based upon the City's ability to provide an adequate circulation system, and that (2) such growth and development meet the requirements of the Orange County voter- approved Revised Traffic Improvement and Growth Management Ordinance, also known as Measure M or OC Go. Scope and Content of the Growth Management Element The Growth Management Element comprises three sections: i) Introduction; 2) Issues, Goals, and Policies; and 3)Growth Management Plan. The Issues,Goals, and Policies section provides guidance to the City with regard to complying with Measure M growth management requirements. Contents of the Growth Management Element describe the City's approach to managing future growth concurrently with ORANGE GENERAL PLAN GM-1 a ram.•., s CIRCULATION AND MOBILITY 3 CIRCULATION & MOBILITY IMPLEMENTATION The goals, policies, and plans identified in this Element are implemented through a variety of City plans, ordinances, development requirements, capital improvements, and ongoing collaboration with regional agencies and neighboring jurisdictions. Specific implementation measures for this Element are contained in the General Plan Appendix. ORANGE GENERAL PLAN CM-34 e tro s,_....tttllllllta- 40., a CIRCULATION AND MOBILITY J W SYCAMORE AVE r e F a__ of h0Wo:a u z W PALM AVE E PALM AVE I-U) N J N J1/1 0 et J g z S Z Z m I N W MAPLE AVE I-WI E MAPLE AVE W W•••, N Nil x U re Z LL z St Z.. azA' z 4.ta P21 w PLAZA IZZWCHAANAVEMAWECHAPMANAV f" N N y z 1 r x g V m • v) a a.Y j k.1 ® O u *o JT W U i i z z / LL en co a K ax WALMONDAVE 2 H EA_MOND AVE I El IO. F- > w O E WASHINGTON AVE Jx (0 E en E PALMYRA AVE rN F N w W KELLY AVE fA rein x z E VAN BIBBE!=E w co 0 U W N LEGEND No Time Limit 0 150 300 450 6Gto XV Time Limit Note:Possession of City issued parking permit enables holder to exceed specified time limit Figure CM-6 Public Parking Lots in Old Towne Orange Note: Possession of City issued parking permit enables holder to exceed specified time limit GPA 2010-0001(8/10/10) ea?- Yr^r= ORANGE GENERAL PLAN CM-33 Yv CIRCULATION AND MOBILITY provided on-site for most uses. The Code also establishes minimum stall dimensions consistent with current standards for other jurisdictions. These regulations apply to all new developments, and may be applied to current uses that are modified or expanded. Particular concern has been expressed within the community regarding current and expected future parking shortages in Old Towne. Figure CM-6 identifies the location of existing public parking lots in Old Towne. Most Old Towne parking lots have a maximum time limit of three hours, with or without a permit. However, some parking lots, such as the OTC parking located off Chapman Avenue, have no time limit. Orange will continue to provide sufficient parking to meet community demands. In Old Towne, the City will study the benefits of creating a parking district and the feasibility of developing underutilized parking lots surrounding The Plaza as public parking facilities. The City may encourage the use of shared parking, consolidated parking facilities, and underground parking or parking structures to provide additional off-street parking to meet future demands in areas throughout the City with higher concentrations of commercial uses. Circulation System Aesthetics The City has determined that it is necessary and desirable to improve certain roadways and their rights-of-way to enhance the experience for all users of these corridors. Major commercial corridors have been designated within the Urban Design Element to be improved with pedestrian-scale enhancements. Enhancements could include street trees, sidewalk improvements, lighting, bus shelters, and crosswalks. These improvements not only offer a more aesthetically-pleasing experience for all users in these corridors, they also may offer increased safety and security. Streetscape improvements offer safety and security to both motorists and non-motorists through increased visual cues, better visibility, and increased activity. Many streetscape enhancements provide not only a comfortable environment for the pedestrian and bicyclist, but also offer drivers visual cues that a non-motorist could be expected in an area. Improvements such as striping, bus shelters, and pedestrian-scaled signage guide the non- motorist towards areas that are most appropriate for their use. These same cues help the motorist to see where the presence of pedestrians and bicyclists is most likely to occur. For example, a well-marked crosswalk guides the pedestrian towards the location in the right-of- way most appropriate for crossing, while also alerting the motorist to slow down and look out for pedestrian traffic. Visibility offered by pedestrian-scaled lighting benefits non-motorists and motorists alike. Pedestrians and bicyclists are better able to see their way, which increases their feelings of security. Improvements that create a sense of security for pedestrians encourage increased use and activity. This increased activity, in turn, leads to a greater feeling of safety. The City has acknowledged the importance of improving the experience of users on many of its major commercial corridors. AGIENNIRMIMISirtmi ORANGE GENERAL PLAN CM-32 CIRCULATION AND MOBILITY o An east/west corridor on Walnut Avenue from the western City limits to Santiago Boulevard o North/south corridors on Main Street from Taft Street to Palm Street, on Batavia Street from Chapman Avenue to La Veta Avenue, and on Parker Street from La Veta Avenue to the City limits Establishing Class III routes along Almond Avenue, Feldner Street,and Bedford Street The City has completed a paved bike trail along Santiago Creek from Tustin Street to the western City limit that continues on to Main Place Mall and the Discovery Science Center as well as two additional segments to the bike trail,which extends the Santiago Creek Trail from Tustin Street to Grijalva Park, and also connect Grijalva Park at Santiago Creek to Collins Avenue along the City-owned portion of the Tustin Branch Trail right-of-way between Walnut and Collins Avenues. The Santiago Creek trail is planned to extend through and beyond the City, connecting the regional Santa Ana River Trail to Santiago Oaks Regional Park and wilderness areas east of Orange. The City will continue to work towards designing a comprehensive bike trail system that is highly accessible and safe for those who wish to use it. The City has proposed Class II and III routes along many north-south and east-west arterials, all of which connect to pedestrian trails and Class I routes. The City responds to the need to provide safe and efficient bike travel by making every effort to provide bikeways separate from the roadway. When bicyclists must share the road with automobiles, the City will work to improve overall safety. Currently, two bicycle parking facilities are located in Orange, at the OTC (Metrolink station) and the Old Towne West Metrolink Parking Structure. The City will work to provide greater bike amenities including delineated bike lanes and clear signage along bike trails.The City will also install bicycle racks and safe storage facilities at parking areas for City facilities, as appropriate, and will require privately developed projects to incorporate on-site bicycle facilities in accordance with the City's Zoning Code(Title.7 of the Orange Municipal Code). Parking Facilities Although parking is often considered a separate issue from vehicle circulation, it is important to address on-street parking because it has a direct effect on roadway capacity. In order to facilitate improved traffic flow along Orange's major arterials, the City generally plans to permit on-street parking only on streets I classified as Primary or Secondary Arterials or Collector Streets. J J Off-street parking deficiencies can ij reduce business activity, and can cause I vehicles to re-circulate on public streets, j which increases traffic volumes and congestion by reducing capacity for through traffic. The City's Zoning Code includes parking requirements to ensure that an adequate number of spaces are ORANGE GENERAL PLAN CM-31 A.1111111111111R. - •r!` s CIRCULATION AND MOBILITY 2'MINLEVEL _ 6'•12`BIKE PATH LEVELZ MIN. I. CLASS I - BIKE PATH: OFF-ROAD NOTE. 1 BIKE PATHS CLOSER THAN 5'FROM THE EDGE OF PAVEMENT SHALL INCLUDE A BARRIER PARKING STALLS OR 6"SOLID WHITE OPTIONAL 4'SOLID STRIPE STRIPE(SEE NOTE 1) 4i PARKING 5'MIN 5'MIN. PARKING MOTOR VEHICLE LANES BIKE , BIKE STRIPED PARKING LANE LANE 6"SOLID WHITE VERTICAL CURB .nia_STRIPE ROLLED CURB 12'MIN (SEE NOTE 2)•MOTOR VEHICLE LANES 11'MIN.(SEE NOTE 2) . PARKING PERMITTED WITHOUT PARKING STRIPE OR STALL 6"SOLID WHITE r =STRIPE 111'I. N) ROLLED CURB 12'MIN.(SEE NOTE 2) MOTOR VEHICLE LANES 11'MIN.(SEE NOTE 2) NOTES 3'MIN. 1 THE OPTIONAL SOLID WHITE STRIPE MAY BE ADVISABLE WHERE STALLS ARE UNNECESSARY BECAUSE PARKING IS LIGHT)BUT THERE IS 5'MIN CONCERN THAT MOTORISTSBIKELANETOBEATRAFFIC MISCONSTRUEAYLANETHE r ' 2 13'IS RECOMMENDED WHERE THERE IS SUB= I, 5` STANTIAL PARKING OR TURNOVER OF PARKED CARS IS HIGH(E G COMMERCIAL AREAS) 4'-5'MIN. MOTOR VEHICLE 4'-5'MIN. BIKE LANE LANES BIKE LANE • MOST CURBS ARE 2'REQUIRING 5'MIN BIKE LANES. PARKING PROHIBITED CLASS II - BIKE LANE: ON ROAD Figure CM-5 Bikeway Standards W: S ORANGE GENERAL PLAN CM—30 o.: CIRCULATION AND MOBILITY 4 J•' •u,(b,(/(/,I{".(11 MI,/GN•rance 1Y t o o • 1` LY a•). w.. Clear 12 WOW' .w. ty /,• I Piro ,,. 1.*:,fr4reFencewYb`all 11 '` • olraty we..ti.Lfs ,,. r. (p s i M Curbface or t,l=1 II i1 :. u v Sidewalk Fdge Traa wmm 10 1TrailR9h401-W y 10'-2 1-1 Opera anti r trail WitlM 10• Minenurn t Mantenance Setback 6' Zona-Width Vanes General Riding and Hiking Trail Riding and Hiking Trail Next to Roadway Vim;,; I!) 4i/='„ l.iJ Y 11 r------,2., sv -.. Trbl Width 10' \ '.`.\1:}:'••'u: J::,$:i•' ..//'••\\\ .•.5 i.•i' /+ TrailNMllt 10' r Operation and Oporatico—nd Malnte.arcc I Maintenance Zone. +rr . r Watercourse Channel Vanes Pedestrians and Bicyclists Equestrians Trail Adjacent to Watercourse Channel Figure CM-4 Trail Standards Cross-sections for each type of route are shown in Figure CM-5. As shown in Figure CM-3, several future bike routes are planned within Orange, including the following high-priority projects: Completing Class I bike routes along Santiago Creek and the Tustin Branch Trail Establishing Class II bike lanes, including: WV. ORANGE GENERAL PLAN CM-29 This Page Left Intentionally Blank) CM-28 414 V ay r . r 1 y rr-.,i y/ r i t 4.p City of f ` a Ts,,,,.... p,.. v t Anaheim i r' 3I r 1' ti. J t tom, s I s, s I•. r 1 F 14, City of rr IL C -Ogg"ism Vi to Park 41, 4t. i.Iiiriiii,1/1illigradillillia; 'Min= , ._ '_ 411k- f .rilli_e§r1" lektiPP ss r' tillit its +-_,: 2- 1:.: • - t:9wgigtelfI1AVfriiiiimr,ingliN q g Ittlarr JR Alliiiill igi I I-^ lip•Maiififfiromli-tt - t ::.` a 1 .:. i - •.. tttttttttt . t 1 tj ••,••-•. g pal ,1 i fit. '.. _ l_. b I r 1 r , j ` -.,4`` e'Not. :4 ..< . 7, .,..... ."....`--,.Ily/ - -ink 431 iII rats +f a IF City of c- I-iir ter: I _ t. Santa Ana r RI r` Agf i I i, Ira LEGEND C=•:i Planning Area Bikeways Recreational Trails 11 1 Sphere of Intuence A Existing Class I(Off Street, •-"'" Existing Recreational Trailas.. Existing Traffic Signal City Boundary Existing Class II(On Street) Proposed Recreational Trail Surrounding Cities Proposed Grade Separated . Existing Class III(On Street) Land Use 1` fi Fig rways Link To Regional Trail Proposed Oar I(Off Street) + Aotrtety Centers f f Railroads s Proposed Os5 it(On Street) PublicFacilitlesGradeSeparated rf se ®•• Proposed Clas NI(On Street) Parks e S - a _. .• sa ns scum:Pt,of cove common q services Determent 2015 Figure CM-3 Plan for Recreational Trails and Bikeways CM-28 r'\ L, ' a ,t1a., .„„ City of C1'Pura s f `Anaheim 9 r E le-j II .. 1 L f ' 99 City of y Vi to Park . r' il ritior• . „ PF4 J esi 1 N. ore f 11, ta.. i;{ /- . } /• ill• T" r / 1 • c', rQ 1 I( , s, I e.a e.., g air e k City of I_ J? s' t jI fSantaAnai ' a*y":-'_ iltLs% LEGEND V 1.,.J Planning Area Bikeways Recreational Trails ram, tj__1 Sphere of Influence 9 Enisring Traffic Signal — Existing Class II(On Street) Proposed Recreational Trail I d City Boundary Surrounding Cities Proposed Grade Separated _- Proposed Class I(Ott Street) Land Use 2. i we Link To Regional Trail Proposed Class II(On Street) Mil Activity Centers y\ Highways I i-^ Railroads Grade Separated Proposal Class III(On Street)Public Facilities t+•s•, ••i Edaling Class 1(Off Street) — Existing Recreational Trail Parks r Milos 4 MC o 0.2 s4 ae se Source.City of Orange Community Services Department,2006, Figure CM-3 Plan for Recreational Trails and Bikeways CIA-28