INTEGRATED GENERAL PLAN
December 2005
TABLE OF
CONTENTS
Section Page
Introduction................................................................................................................... ............. I- 1
Planning for the Future................................................................................................................. I- 1
Purpose of the General Plan ......................................................................................................... I- 4
Organization of the General Plan ................................................................................................. I- 5
Citizen Participation in Plan Preparation ...................................................................................... I- 7
Land Use............................................................................................................................ ..... LU- 1
Introduction to the Land Use Element...................................................................................... LU- 1
Land Use Element Goals and Policies ....................................................................................... LU- 6
The Land Use Plan.................................................................................................................. LU- 16
Circulation ............................................................................................................................... . C- 1
Introduction to the Circulation Element ..................................................................................... C- 1
Circulation Element Goals and Policies....................................................................................... C- 3
Issues Identification ................................................................................................................... C- 8
Circulation Plan........................................................................................................................ C- 11
Infrastructure Plan.................................................................................................................... C- 26
Open Space and Conservation................................................................................................ OSC- 1
Introduction to the Open Space and Conservation Element ................................................... OSC- 1
Open Space and Conservation Element Goals and Policies ..................................................... OSC- 4
Open Space and Conservation Plan...................................................................................... OSC- 11
Natural Resource Conservation and Protection Plan ............................................................ OSC- 13
Parks and Recreation Plan .................................................................................................... OSC- 20
Safety ............................................................................................................................... .......... S- 1
Introduction to the Safety Element.............................................................................................. S- 1
Safety Issues ............................................................................................................................... S- 1
Safety Goals and Policies ............................................................................................................. S- 3
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Safety Plan ............................................................................................................................... .. S- 8
Noise ............................................................................................................................... ......... N- 1
Introduction to the Noise Element ............................................................................................. N- 1
Noise Element Goals and Policies ............................................................................................... N- 5
Noise Exposure Reduction Plan .................................................................................................. N- 6
Growth Management .............................................................................................................. GM- 1
Growth Management Element................................................................................................. GM- 1
Historic Preservation ................................................................................................................ HP- 1
Introduction................................................................................................................... ......... HP- 3
Historic and Architectural Background ..................................................................................... HP- 4
Issues and Concerns .............................................................................................................. HP- 18
Goals.......................................................................................................................... ........... HP- 20
LIST OF TABLES
Table Page
LU- 1 Land Use Policy Matrix........................................................................................................... LU- 16
LU- 2 Land Use Designations........................................................................................................... LU- 26
LU- 3 Distribution of Land Use ........................................................................................................ LU- 27
LU- 4 Overlay Districts .................................................................................................................... LU- 31
C- 1 Circulation Element Policy Matrix............................................................................................... C- 8
C- 2 Comparison of City and County Classification Systems ........................................................... C- 13
OSC- 1 Open Space and Conservation Element Policy Matrix ........................................................... OSC- 11
OSC- 2 Classification of Park Facilities.............................................................................................. OSC- 23
OSC- 3 School Facilities – Joint Use ................................................................................................. OSC- 24
S- 1 Safety Element Policy Matrix........................................................................................................ S- 8
S- 2 Emergency Operations Responsibilities ..................................................................................... S- 20
S- 3 Emergency Shelters/ Assembly Points ........................................................................................ S- 21
N- 1 Noise Element Policy Matrix....................................................................................................... N- 6
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LIST OF FIGURES
Figure Page
I- 1 Vicinity Map ............................................................................................................................... I- 2
I- 2 Planning Area........................................................................................................................... ... I- 3
I- 3 Relationship of Orange General Plan to State Mandated Elements................................................ I- 6
LU- 1 Composite Land Use Constraints........................................................................................... LU- 18
LU- 2 Floor Area Ratio Defined ........................................................................................................ LU- 22
LU- 3 Land Use Policy Map.............................................................................................................. LU- 23
LU- 4 FAR Overlay Districts ............................................................................................................. LU- 28
LU- 5 Land Use for Commercial Areas ............................................................................................. LU- 34
C- 1 Level of Service ......................................................................................................................... C- 10
C- 2 Roadway Classification Standards ............................................................................................ C- 14
C- 3 Roadway Classification Standards for Critical Intersections ...................................................... C- 16
C- 4 City Master Plan of Streets and Highways ................................................................................ C- 18
C- 5 Bikeways Master Plan............................................................................................................... C- 23
C- 6 Bikeway Standards ................................................................................................................... C- 25
OSC- 1 Components of Open Space and Conservation Plan ............................................................. OSC- 12
OSC- 2 Aggregate Resources............................................................................................................ OSC- 19
OSC- 3 Parks Master Plan................................................................................................................. OSC- 21
OSC- 4 Joint Use Schools ................................................................................................................. OSC- 26
OSC- 5 Trails Master Plan................................................................................................................. OSC- 30
OSC- 6 Trail Standards ..................................................................................................................... OSC- 31
S- 1 Modified Mercalli Scale .............................................................................................................. S- 10
S- 2 Groundshaking Zones – 8.3 San Andreas Earthquake ................................................................ S- 11
S- 3 Groundshaking Zones – 7.5 Newport- Inglewood Earthquake .................................................... S- 12
S- 4 Composite Map of Environmental Hazards................................................................................ S- 13
S- 5 Evacuation Routes..................................................................................................................... S- 22
N- 1A Western Planning Area – 1988 Existing Noise Contours ........................................................... N- 3
N- 1B 2004 Noise Contours – Eastern Planning Area........................................................................... N- 4
N- 2 Examples of Typical Sound Levels ............................................................................................... N- 7
N- 3 California Noise/ Land Use Compatibility Guidelines .................................................................. N- 9
N- 4A Western Planning Area – Future Noise Contours..................................................................... N- 11
N- 4B Eastern Planning Area – 2025 Future Noise Contours.............................................................. N- 12
N- 5 Noise Problem Areas/ Target Reduction Zones .......................................................................... N- 14
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HP- 1 Present Old Towne Boundaries................................................................................................. HP- 2
HP- 2 History Survey Inventory Group Listings ................................................................................ HP- 14
HP- 3 Pre- 1940 Homes .................................................................................................................... HP- 15
HP- 4 Recommended Old Towne Boundaries ................................................................................... HP- 16
HP- 5 Three- Tiered Planning Approach............................................................................................. HP- 22
HP- 6 Historic Preservation .............................................................................................................. HP- 27
INTRODUCTION
PLANNING FOR THE FUTURE
The City of Orange lies in the heart of north- central Orange County, an area undergoing a marked
change in land use. Since the early 1980’ s, mid- rise and high- rise office buildings and business
parks have sprung up on properties formerly occupied by small scale, low intensity offices,
shopping centers and industrial developments. The traditional medium- sized lot, single- family
residential tract has been replaced by denser subdivisions, condominiums and apartment
complexes. In general, throughout the former suburban communities of Orange County, a trend
toward more intensive, urban- type development has appeared.
The City of Orange has witnessed the same type of growth, although not to such large degree as
cities such as Irvine or Santa Ana. Orange benefits from its location near five major freeways
which link the City to residential communities throughout Orange, Los Angeles and Riverside
counties ( Figure I- 1). Growth in the business sector of the community has been focused in the
City Center area west of the Santa Ana Freeway and in commercial areas south of the Garden
Grove Freeway. Most new residential development has occurred in the eastern portion of the City
where vacant land is still available. Although little recycling within older residential
neighborhoods has occurred, in some areas of the Old Towne district, new structures, many
which have been consistent with the style, scale and intensity of the older homes, have been
constructed.
This growth and development have been guided largely by the City’s General Plan which was
adopted in the mid- 1970s and which was amended over time to allow the intensification to occur.
The Plan has served the City well for over a decade. However, continuing growth pressures, as
well as changes to State law governing general plans, have made portions of the City’s 1970s Plan
outdated. This General Plan represents the City’s response to bring the Plan up to date and to
establish definitive land use and development policy to guide the City into the next century. The
planning area addressed by the General Plan is illustrated in Figure I- 2.
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PURPOSE OF THE GENERAL PLAN
State law requires every city and county to adopt a comprehensive, long- term general plan for the
physical development of that city and county. In essence, the general plan should serve as a
jurisdiction’s blueprint for the future. This blueprint should contain policies and programs
designed to provide decision makers with a solid basis for land use decisions.
In order to be considered comprehensive, the general plan must address many issues which are
related to and influence land use decisions. Specifically, in addition to land use, State law requires
that the general plan address circulation, housing, the conservation of natural resources, the
preservation of open space, the noise environment and the protection of public safety ( Section
65302 of the California Government Code). These issues should be discussed to the extent they
apply to a jurisdiction. The general plan may also cover topics of special or unique interest to a
city or county, such as the preservation of historic and scenic resources.
The City of Orange General Plan contains goals, policies and programs which are intended to
guide land use and development decisions into the twenty- first century. The Plan consists of
seven elements, or chapters, which together fulfill the requirements for a general plan. The major
focus of the Plan is to achieve the following goals:
To preserve the character and densities of existing residential neighborhoods;
To upgrade older commercial and industrial districts and thereby attract new business to the
City;
To allow for the intensification of commercial office uses in areas of the City where
infrastructures can accommodate or can be made to accommodate increased use where
residential neighborhoods will not be affected adversely;
To preserve the character of Old Towne and other historic areas;
To provide a circulation system that allows for the efficient movement of people and goods
throughout the City;
To provide a wide range of housing opportunities for all income groups;
To preserve open space areas for a range of uses and purposes, including for active and passive
recreational use, preservation of significant ridgelines, protection and public safety, and the
conservation of aggregate resource areas;
To protect people living and working in the City from natural and man- made hazards such as
flooding, earthquakes, landslides and hazardous materials; and
To protect residents from excessive and potentially harmful noise sources associated with the
urban environment.
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ORGANIZATION OF THE GENERAL PLAN
As indicated above, the Orange General Plan is divided into seven elements which meet the
Organ zation of the General Plan As a Whole
The General Plan as a whole consists of three sections-- the General Plan policy document, the
he technical reports contain background information which was used to formulate policy. The
ach element includes implementation measures designed to achieve stated goals and policies.
inally, the EIR provides the necessary review of anticipated environmental consequences resulting
Organ zation of the Elements
Each of the six mandated General Plan elements is comprised of three sections— the Introduction
he Goals and Policies section presents the City’s long- term objectives for land use, circulation,
requirements of State Law. The six required elements are the Land Use Element, the Circulation
Element, the Housing Element, the Open Space and Conservation Element, the Safety Element and
the Noise Element. In addition, the City adopted in 1983 a Historic Preservation Element as an
optional element. An optional Growth Management Element was adopted in 1992. Figure 1- 3
illustrates the relationship between the General Plan’s six required elements and the State
mandated issues.
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General Plan Technical Reports and the General Plan Environmental Impact Report ( EIR). The
policy document is essentially the six elements outlined above. These elements contain text,
diagrams and maps which are to be used to guide land use decisions. Also included in the
General Plan policy document is a glossary of terms used in the General Plan.
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reports provide statistics and maps which describe conditions in the City as of September 1987.
This material may be updated over time as required.
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Together these measures comprise an implementation plan.
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from the long- term implementation of the General Plan. This review was performed pursuant to
and consistent with the requirements of the California Environmental Quality Act ( CEQA).
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section, the Goals and Policies section and the “ Plan” section. The introduction describes the
purpose of the element and also introduces other plans and programs outside of the General Plan
which may be used to achieve specific General Plan goals.
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housing, preservation and use of open space, and protection of public health and safety. The
goals and policies are arranged by issue or subject, and a brief description of philosophy or
direction behind those objectives precedes each group of goals and policies. Also included are
implementation measures aimed toward achieving stated objectives. For general reference, goal,
policies and implementation measures may be defined as follows:
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Goal: a goal is a broad statement of purpose and/ or direction.
Policy: A policy describes a more definitive course of action.
Implementation: An implementation measure describes specific programs which will be used to
achieve goals and to implement policies.
The third and final section of each element consists of the “ plan,” or the further definition of
programs to be used to implement General Plan policy. For example, the Land Use Element
contains a “ Land Use Plan” which indicates the types and intensities of land use permitted City-wide.
The “ Circulation Plan” in the Circulation Element includes a Master Circulation Plan
showing where existing streets and intersections will be improved and new infrastructure provided
to meet the circulation needs of City residents as well as people coming to Orange to work and
shop. Wherever possible, each plan contains maps, diagrams and tables to illustrate General Plan
policy.
CITIZEN PARTICIPATION IN PLAN PREPARATION
The “ guts” of the General Plan are the goals and policies presented in each element. These goals
and policies clearly state the direction growth and development will take in Orange in the next 10
to 20 years. Implementation of the policies can best be accomplished through the support of the
goals and policies by the residents and business people of Orange.
Many citizen and business committees and groups played a critical role in the development of the
goals and policies contained in this Plan. Beginning in June of 1985, the “ Orange 2000” Advisory
Committee and its nine subcommittees held many meetings for the purpose of identifying,
studying and recommending action on community issues and formulating development strategy
to guide the orderly growth of the City.
The Advisory Committee’s efforts resulted in the preparation of a document titled “ Orange 2000 –
Community Planning Project.” The document contains policy recommendations for the following
issues:
Economic development;
Housing;
Traffic/ Circulation/ Public Transit;
Public safety;
Municipal facilities and public improvements;
Community preservation/ Aesthetics/ Leisure services;
Cultural/ Educational;
Technological development; and
City finances.
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Many of the policy recommendations are included in the General Plan primarily in the form of
goals and policies. Others have been incorporated into the element “ plans” as implementation
programs.
During the General Plan adoption process, the City conducted several public study sessions and
hearings to involve City residents in the adoption process. Prior to formal public hearings, two
public study sessions were conducted in City neighborhoods. The Planning Commission held one
public hearing before forwarding the General Plan to the City Council. The City Council conducted
three public hearings and one formal study session during the months of April through June 1989
before adopting the Plan by resolution.
LAND USE
INTRODUCTION TO THE LAND USE ELEMENT
Purpose of the Land Use Element
The Land Use Element and the Land Use Policy Map are the most important components of the
General Plan. The Land Use Element serves as a guide for future development in the City and has
a major impact on key issues examined in the remaining elements. For example, ongoing
intensification of development in certain areas of the City will affect local roadways as discussed in
the Circulation Element. Future residential development will affect housing goals, programs and
objectives discussed in the Housing Element. Land use policy will also have a bearing on a large
number of issues considered in the remaining elements, including those concerned with the
environment, open space, public facilities and services, safety and noise.
The City intends to achieve a number of objectives through the implementation of the goals and
policies contained in this element. These objectives include:
To continue to provide a balanced and functional mix of development consistent with the
long- range goals, objectives and values of the City;
To provide a guide for both public and private investments, indicating the nature, density and
intensity of that development;
To identify opportunities for new development and the redevelopment and revitalization of
existing development in the City and to identify any constraints that might affect this new
development;
To reduce loss of life, injury, and property damage that might result from flooding, seismic
hazards and other natural and man- made hazards that need to be considered in future land
use planning and decision making;
To preserve those undeveloped portions of the City that are of value to the residents due to
the natural and cultural resources found there; and
To preserve and maintain the existing character of the neighborhoods that comprise the City.
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 single most important feature of this
element is the Land Use Policy Map. This map, a copy of which is contained in the back pocket of
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the General Plan, indicates the location, density and intensity of development for all land uses
city- wide. Finally, the goals and policies contained in this element establish a constitutional
framework for future land use planning and decision- making in the City.
Related Plans and Programs
The scope and content of the Land Use Element is largely governed by the General Plan Law and
Guidelines and the Planning, Zoning and Development Laws for the state. In addition, there are a
number of other plans and programs that need to be considered in the formulation, adoption and
implementation of land use policy. Relevant plans and programs include:
City of Orange Zoning Ordinance: The City of Orange Zoning Ordinance is the primary
implementation tool for the Land Use Element and the goals and policies contained herein. For
this reason, the zoning map must be consistent with the General Plan Land Use Map. The Land
Use Policy Map indicates the general location and extent of future land use in the City. The
zoning ordinance, which includes the zoning map, contains more detailed information about
permitted land uses, building intensities and required development standards.
The land use designations contained in this element and the land use boundaries correspond to
one or more zoning districts identified on the zoning map. Table LU- 2 in the “ Land Use Plan”
section of this element establishes the relationship between land use designations and zone
districts.
Specific Plans: Land use policies call for the preparation and implementation of specific plans for
certain areas of Orange. The General Plan establishes broad parameters of development on a long-term
basis. A specific plan is designed to identify particular land uses and development standards
relating to a specific site or development proposal.
Section 65451 of the Government Code requires a specific plan to contain regulations, conditions,
programs and proposed legislation concerning the following:
The development standards and precise location for land use and facilities;
The standards and precise location designated for streets, roadways, and other transportation
facilities;
Standards indicating population density, building intensity and provisions for supporting
services and infrastructure;
Specific standards designed to address the use, development and conservation of natural
resources; and
Provisions for the implementation of the Open Space and Conservation Element and any other
measures that may be required to implement the General Plan.
LAND USE
Specific plans serve the best interests of the City by establishing detailed controls on
the nature of the future development. Such plans also benefit the developer by
facilitating the processing of subsequent development plans within the area
governed by the specific plan.
Two specific plans have been prepared and adopted within the City and County.
These include the Upper Peters Canyon Specific Plan and Silverado Modjeska Specific
Plan.
Redevelopment Plans and Programs: Federal and State law provides for the
preparation, adoption and administration of redevelopment plans as a means to
revitalize and rehabilitate blighted areas in cities. In many instances, redevelopment
may be the means of last resort to revitalize deteriorating or stagnant urban areas.
The City of Orange Redevelopment Agency has adopted three redevelopment
projects – the Tustin Street Redevelopment Project, the Southwest Redevelopment
Project and the Northwest Redevelopment Project. Virtually all of the commercial
and industrial districts in the City are located within one of these three redevelopment
project areas.
Area Plans: Two additional land use plans exist for the unincorporated areas located
in the eastern portion of the City. The Orange Park Acres Plan was prepared in 1973.
This plan outlines land use policy for the semi- rural Orange Park Acres area located
generally east of Rancho Santiago Boulevard, between Chapman Avenue and
Santiago Canyon Road. The East Orange plan prepared in 1975, describes planning
policy for 1,900 acres of land situated between Irvine Lake and Peters Canyon
Reservoir.
East Orange Study Area: Two additional land use plans exist for the undeveloped
areas located in the eastern portion of the planning area: the 496- acre Santiago Hills II
Planned Community and the 6,335- acre East Orange Planned Community. These two
areas have also been referred to as the East Orange Study Area. Figure I- 1 illustrates
these areas.
Planning efforts for the 18,000 acres of land within the City’s unincorporated Sphere of
Influence began in 1984, with a joint effort by the City, the County of Orange, and The
Irvine Company. This initial work effort resulted in the East Orange Policy Planning
Study, which provided general development goals and policies and identified
preliminary planning areas. Planning efforts continued between 1986 and 1989, with
the intent to provide a long- range comprehensive plan for a portion of the land
known as the East Orange Study Area. Approved in 1989, the East Orange General
Plan focused development in portions of the East Orange Study Area that were the
least environmentally sensitive and preserved those areas that offered the greatest
natural resources. That plan addressed both the Santiago Hills II parcel and the East
Orange parcel. In 2000, the Santiago Hills II portion of the study area was amended
to further reduce development intensity and that property has since received pre-zoning
approvals. The Irvine Company and the City have an ongoing program to
refine land use policy and plans for the East Orange Study Area.
Given that the East Orange Study Area has a relationship to the City’s long term
planning and the expectation that some of the land will be annexed to the City of
Orange, this General Plan contains text, exhibits, and tables incorporating portions of
the study area. This General Plan supersedes the 1989 East Orange General Plan.
Over time, as phased development plans are prepared for the East Orange Study
Area, the planning areas will be annexed to the City. Future development plans,
which may be Planned
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Community or Specific Plans, will use this General Plan as a basis for plan consistency. For any
adopted Planned Community ( PC) or Specific Plan ( SP) that is located in unincorporated territory,
the adopted PC or SP will be considered as prezoning to determine the zoning that will apply
upon annexation. The prezoning will become effective upon annexation to the City.
The Santiago Hills II Planned Community is generally located east of Jamboree Road, the existing
Santiago Hills Phase I development, and Peters Canyon Regional Park; west of SR- 241/ 261; and
south/ east of Irvine Regional Park.
The East Orange Planned Community is located east of SR- 241/ 261. Its three study areas are as
follows:
Area 1 is generally located north of Santiago Canyon Road, west and south of the closed
Santiago landfill, and east of SR- 241- 261.
Area 2 is generally located north of Santiago Canyon Road, west and south of open space and
sections of the Irvine Ranch Land Reserve ( IRLR), and east of Irvine Lake.
Area 3 is generally located south of Santiago Canyon Road and Natural Communities
Conservation Plan ( NCCP) special linkage areas, north and west of the Nature Reserve of
Orange County land, and east of the proposed Jeffrey Road alignment.
The General Plan land use designations for these areas reflect the proposed Planned Community
land uses. Future development in these areas will be required to adhere the adopted General Plan
and Planned Community documents.
Regional Plans: Orange County agencies have developed regional highway and recreation plans
which affect land use policy in the City. The SR- 241/ 261, which bisects the Santiago Hills II and
East Orange Planned Communities, provides regional access to the eastern portion of the City. .
The location and operational impacts ( e. g., noise, air quality, lighting) of the SR- 241/ 261 influence
land use decisions in the eastern portion of the City. Also, the County has developed a master
plan of parks which includes several regional parks within the City’s planning area. The highway
and parks are discussed in greater detail in the Circulation Element and Open Space and
Conservation Element, respectively.
Within the City limits are “ islands” of unincorporated lands. County planning documents
establish land use policy for these areas. The City’s General Plan Land Use Policy Map recognizes
County land use policy for these areas.
The Southern California Association of Governments ( SCAG) is also responsible for much of the
regional planning for Southern California. SCAG has been preparing long range growth and
development plans for the Southern California region since the early 1970s as part of the ongoing
Development Guide Program. This program provides a framework for coordinating local and
regional decisions regarding future growth and development. An important component of this
process is the preparation of growth forecast policies at intervals ranging from three to five years.
The adopted growth forecast policy becomes the basis for SCAG’s functional plans
( transportation, housing, air and water) for the region. The population totals and growth
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distribution are used in planning the future capacity of highways and transit systems, quantity
and location of housing, water supply, and siting and sizing of sewage treatment plants.
Natural Communities Conservation Plan ( NCCP): The Central/ Coastal NCCP Plan affects land use
decisions in the eastern portion of the planning area. In September 1991, Governor Pete Wilson
signed AB 2172 ( NCCP Act) providing enabling legislation authorizing the California Department
of Fish and Game ( CDFG) to enter into agreements with any person for the purpose of preparing
and implementing NCCPs and preparing guidelines for development and implementation of
NCCPs. AB 2172 also permits NCCPs to be prepared by local, state, or federal agencies
independently or in cooperation with other persons.
The purpose of the NCCP program is to provide regional or area- wide protection and perpetuation
of natural wildlife diversity, while allowing compatible and appropriate development and growth.
AB 2172 was designed in recognition of the fact that individual species protection under the state
Endangered Species Act and the Federal Endangered Species Act is costly and historically
ineffective as a mechanism for protection or prevention of extinction of plant and animal species,
and that a habitat- based, multi- species or ecosystem- driven preservation approach has greater
potential for long- term success. The focus of the NCCP program represents a dramatic shift from
focusing on preservation of “ individual species” to “ habitat preservation.”
As part of the Central & Coastal NCCP, a Habitat Conservation Plan ( NCCP/ HCP) and associated
Implementation Agreement were developed to protect the target species and habitat. On July 17,
1996, the Central & Coastal NCCP/ HCP, Implementing Agreement, and EIR/ EIS were approved.
The Implementation Agreement was signed by the United States Fish and Wildlife Service, CDFG,
and participating landowners and cities. Both the City and TIC are signatories to this agreement.
The NCCP/ HCP established a 37,000- acre reserve area, funding mechanisms, a management
program, and mitigation measures to protect sensitive species and habitat. The reserve is
administered by the Nature Reserve of Orange County, which includes representatives of the City,
USFWS, CDFG, The Irvine Company, and other local environmental groups.
The reserve borders the eastern portion of the planning area on the north and south, and includes
portions of the East Orange Study Area. The Central/ Coastal NCCP also includes portions of
Irvine Regional Park and Peters Canyon Regional Park. The 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.
Developments located within the boundaries of the NCCP will be reviewed for conformance with
the NCCP. 1
Irvine Ranch Land Reserve
The Irvine Ranch Land Reserve sets aside more than 50,000 acres of land to be " reserved in
perpetuity as open space and for recreational purposes". This reserve stretches from Weir Canyon
near SR- 91 at the north end of Irvine Ranch, connects with the Cleveland National Forest along
the northeast border of the ranch, continues south to include large regional open space systems in
1 Jones and Stokes, Santiago Hills II and East Orange Planned Communities SEIR/ EIR.
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the northern and southern hillsides of Irvine, and extends to the Laguna Coast Wilderness Parks
and Crystal Cove State Park near Laguna Beach. 2 This land reserve affects the pattern of
developable and undevelopable land in the eastern portion of the planning area.
Scope and Format of this Element
The Land Use Element establishes land use policy through the use of both text and diagrams. The
following section of this element, titled “ Land Use Goals and Policies,” presents the City’s general
goals for the long- term growth and development of the community. These goals are defined
further in the third section, the “ Land Use Plan.” The Land Use Plan consists of : 1) the General
Plan Land Use Policy Map; 2) the descriptions of the land use designations indicated on the policy
map; and 3) the land use policy implication discussion. The Land Use Element Technical Report is
a separate document which contains quantitative information about the distribution of land use in
Orange. This information may be updated on a yearly basis as a means of maintaining a current
database of land use conditions in the City.
LAND USE ELEMENT GOALS AND POLICIES
The goals and policies contained in this element address preservation of some areas of the City,
revitalization of others, and the guiding of new development in those portions of the Planning
Area presently undeveloped. The following goals and supporting policies, objectives and
implementation measures focus on maintaining a balance between residential, commercial and
industrial land use, promoting high quality development, and minimizing existing and potential
land use conflicts.
Balanced Development in Orange
A well- balanced community may be considered one which provides a broad range of housing and
business opportunities as well as recreational, institutional and cultural activities which enhance
the overall living environment. By encouraging such a mix of uses, the City can achieve a balanced
inventory of housing which meets the housing needs of all income groups, can enjoy a stable
employment and tax base, and can provide residents with diverse recreational opportunities.
In much of the Planning Area, this balance already exists. Residential development offers housing
opportunities in a range of types and prices. Commercial uses provide a multitude of shopping
and business opportunities for Orange residents and residents of surrounding communities. The
City’s large industrial district contains large parcels suitable for industrial or business park
development. Finally, parks and schools are distributed throughout the City near residential
neighborhoods.
2 Ibid.
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GOAL 1.0: Land use policy will continue to promote a balance of residential, commercial and
industrial development.
POLICY 1.1: Maintain a balance between jobs and housing, and encourage the types of activities
that will provide employment for the City’s existing and future residents, as well as revenue for
the City.
POLICY 1.2: Balance any economic gain from new development with the protection of existing
residential neighborhoods.
POLICY 1.3: Work with agencies and interests involved with economic development to attract
businesses which will contribute to the City’s economic growth.
POLICY 1.4: Maximize the land use opportunities for the Irvine Lake area by providing a mix of
uses, such as lodging, housing, and recreational uses.
Promoting Commercial Enterprise
Commercial activities have in the past and will continue in the future to play an important role in
the City’s development. Much of the City’s revenue comes from sales tax generated by
commercial establishments. The following policies and implementation measures focus on ways
to promote commercial enterprise by improving the appearance of those commercial districts in
need of revitalization, improving cooperation between the business community and the City, and
encouraging residents to patronize businesses located in Orange.
GOAL 2.0: The City should continue to actively promote the City of Orange as a place to shop
and conduct business.
POLICY 2.1: Take an active role in promoting business in Orange.
Implementation 2.1.1: Examine strategies that will encourage businesses and individuals to do
business in Orange.
Implementation 2.1.2: Coordinate ongoing City services and programs with organized business
activities, including those sponsored by the Chamber of Commerce and other service
organizations.
Implementation 2.1.3: Provide a City liaison to business organizations active in Orange.
POLICY 2.2: Continue to implement ongoing programs and establish new ones designed to
improve the appearance of the commercial districts in Orange.
Implementation 2.2.1: Continue to implement the redevelopment plans for the Tustin Street,
Southwest and Northwest areas.
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Implementation 2.2.2: Continue to use the Southwest Redevelopment Plan to revitalize those
areas of Old Towne within the redevelopment project area.
Implementation 2.2.3: Develop strategies to revitalize the El Modena area.
Promoting Industrial Development in Orange
Industrial development in the older portions of Southern California has undergone a significant
transition in recent years. Traditional industrial activities have been replaced by modern business
parks that are more attractive in appearance and less offensive to adjacent non- industrial land
uses. The following policies emphasize the important role industry will continue to play in the
City’s future and ensure that the quality of the environment is not compromised by such
development.
GOAL 3.0: The City will continue to encourage industrial uses which provide jobs and revenue to
the City without compromising environmental quality.
POLICY 3.1: Encourage the development of unified, mixed use developments in the City’s
industrial district.
Implementation 3.1.1: Revise zoning Code requirements and/ or develop new zone districts to
allow for mixed office/ industrial/ support commercial uses in the industrial district.
POLICY 3.2: Protect residents and the local environment from any potential adverse impact from
industrial operations.
Implementation 3.2.1: Cooperate with those agencies concerned with monitoring and controlling
the emission of smoke, particulate matter, noise, odor and similar industrial nuisances for the
purpose of protecting Orange residents from the hazards associated with such nuisances.
Implementation 3.2.2: Revise zoning ordinance requirements and standards as necessary to
prohibit or effectively control land uses which pose potential environmental hazards.
Promoting Revenue Generating Businesses
Business activities, both commercial and industrial, provide jobs and revenue for the City. The
City is initiating an aggressive campaign to revitalize commercial and industrial districts in Orange
through redevelopment and through programs designed to market the City as a prime location for
future industrial and commercial development.
GOAL 4.0: The City will continue to actively support new and existing commercial and industrial
development to assure the continued viability of the City’s economic base.
POLICY 4.1: Pursue major new property tax and sales tax generators.
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Implementation 4.1.1: Establish an ongoing community relations program designed to retain
existing commercial and industrial businesses in the City.
Implementation 4.1.2: Develop and implement a public relations campaign to identify and attract
new commercial, industrial and office uses to the City.
Implementation 4.1.3: Provide various funding incentives ( e. g., industrial development bonds) to
assist in financing improvements or land cost writedowns that might be used to attract desirable
development.
Implementation 4.1.4: Establish a detailed inventory of land use that could be utilized by realtors,
investors, and persons interested in purchasing a site or building in the City of Orange. The
inventory would include information about zoning, land use, utilities, existing improvements, etc.
for each commercial and industrial property in the City.
POLICY 4.2: Use redevelopment resources to assist in attracting new businesses to the City.
Implementation 4.2.1: Implement the goals and objectives contained in the Tustin Street,
Southwest and Northwest redevelopment plans.
Implementation 4.2.2: Investigate the possibility of establishing information centers in each of
the redevelopment project areas to provide redevelopment information to local businesses.
Maintaining a Balanced Inventory of Housing in Orange
The following goal re- emphasizes goals included in the Housing Element which underscore the
City’s commitment to ensuring that housing opportunities are available to persons of all income
groups. A shortage of affordable housing may make it difficult to attract businesses in the future.
GOAL 5.0: The City will continue to pursue goals to provide housing for all income groups
consistent with the goals and policies contained in the Housing Element.
Promoting Quality Urban Design
The first impression a visitor to Orange receives may be a lasting one, one which makes a visitor
ask “ Could my business thrive in this community” or “ Is this a good place to shop” or “ Can I
afford a home in this community?” The condition of streets, business frontages and residential
neighborhoods makes a strong statement about a community.
GOAL 6.0: The City will continue to promote good urban design.
POLICY 6.1: Emphasize urban design in new development and encourage rehabilitation projects
to incorporate good design features into rehabilitation plans.
Implementation 6.1.1: Continue to review projects for compliance with accepted City design
standards.
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Implementation 6.1.2: Identify priority areas for the undergrounding of utilities.
Implementation 6.1.3: Continue to implement the redevelopment plans for the Southwest, Tustin
and Northwest Project Areas consistent with approved design standards for these areas.
Implementation 6.1.4: Continue to review new development and redevelopment projects to
ensure light and glare impacts on adjacent properties are minimized while still maintaining
adequate safety standards.
Policy 6.2: Identify districts which can benefit from a design theme, and establish urban design
standards.
Implementation 6.2.1: Continue to implement standards for commercial and industrial
development in Old Towne to ensure that existing and future development will be consistent in
terms of design, signage, building height and landscaping.
Implementation 6.2.2: Develop possible incentives and guidelines to encourage implementation
of the design standards in districts where design themes have been or will be established.
POLICY 6.3: Continue ongoing code enforcement efforts and expand code enforcement operations
as required.
Implementation 6.3.1: Emphasize enforcement of the sign ordinance throughout the City.
Implementation 6.3.2: Establish a community relations program that provides code enforcement
information and support to the public.
Implementation 6.3.3: Review all City codes and update as necessary to reflect the latest policies
in regard to community appearance, building, safety and design standards.
Preserving and Maintaining Old Towne
When many people think of Orange, they often think of the historic downtown district and
adjoining residential neighborhoods. The following goal and supporting policies and
implementation measures emphasize the City’s commitment to continue revitalization of the Old
Town historic district.
GOAL 7.0: The Old Towne district will continue to be the focus of revitalization efforts to make it
more attractive to residents, businesses and visitors.
POLICY 7.1: Use both public and private resources to upgrade infrastructure and structures
throughout Old Towne while maintaining the historic character of the district.
Implementation 7.1.1: Implement policies and programs in the Southwest Area Redevelopment
Plan which provide for infrastructure improvements in Old Towne.
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Implementation 7.1.2: Prepare a specific plan for Old Towne detailing infrastructure
improvements, preservation guidelines, circulation patterns, residential densities and other items
as appropriate.
Implementation 7.1.3: Promote restaurant uses in the Old Towne eight block Downtown Core
through zoning mechanisms.
Implementation 7.1.4: Identify underutilized property in the Downtown Core which can be
developed for public parking and other uses which will enhance the character and use of the
district.
Redevelopment in Orange
Portions of the City’s commercial and industrial business districts contained aging development
and infrastructure. Over time, market forces may lead to the recycling of older obsolete structures
and uses to newer high intensity development. However, without necessary circulation and other
infrastructure improvements, such private redevelopment might not be possible.
The City recognizes that new development can benefit the community by providing jobs,
increased commerce and additional tax revenue. The potential negative side effects of new
development may also be reduced through public participation in the redevelopment process. A
City sponsored redevelopment plan can ensure that infrastructure improvements keep pace with
and encourage redevelopment. City involvement can also facilitate consolidation of parcels for
larger scale projects which benefit the community as a whole. In recognition of the benefits of
joining public/ private redevelopment, the City will continue implementation of redevelopment
plans throughout the commercial and industrial districts in the City.
GOAL 8.0: The City will continue to support ongoing redevelopment efforts in a manner
consistent with the General Plan.
POLICY 8.1: Future activities carried out by the Redevelopment Agency must be both coordinated
and consistent with the City of Orange General Plan.
Implementation 8.1.1: Review all proposed redevelopment plans and programs for consistency
with the City of Orange General Plan.
POLICY 8.2: Use of eminent domain must be fair, judiciously applied, and limited to areas where
overriding considerations of public necessity, community and economic benefit can only be met
through its use.
Implementation 8.2.1: Develop city- wide policy on use of eminent domain, including features
such as:
Exercising preference for relocation of displaced owners, tenants and businesses within the
City;
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Defining “ overriding considerations” prior to the adoption of redevelopment plans; and
Utilizing effective communication of policies and plans throughout the redevelopment
process.
Implementation 8.2.2: Emphasize negotiated acquisition in lieu of exercising eminent domain as
the preferable course in City redevelopment policy.
Implementation 8.2.3: Investigate the feasibility of establishing revitalization programs and
projects that emphasize owner participation in the redevelopment efforts.
Reducing Potential Land Use Conflicts
Land use conflicts often occur when newer developments are insensitive to the use, scale or
character of existing development. In other cases, older, obsolete nonconforming uses remain
interspersed among newer development such as old service stations, repair shops or markets
located in the midst of residential development. In both instances, these conflicts can over time
lead to blight and deterioration. The following goals, policies and implementation measures
identify ways land use conflicts can be avoided in the future.
GOAL 9.0: Continue to implement land use policies which focus on reducing land use conflicts.
POLICY 9.1: Work to reduce land use conflicts between residential and non- residential uses.
Implementation 9.1.1: Revise the zoning code as necessary to ensure that dissimilar uses located
adjacent to each other are adequately buffered.
Implementation 9.1.2: Ensure that future high density commercial and residential development
occur in those areas of the City that can accommodate traffic, have adequate access, and that land
use policy identifies as target areas for such development.
POLICY 9.2: Plan transitional areas to minimize any adverse impacts from new development on
existing residential development.
Implementation 9.2.1: Ensure that new development in transitional areas are at densities
consistent with land use policy.
Implementation 9.2.2: Permit higher density development in transitional areas adjacent to major
transportation corridors.
Implementation 9.2.3: Increase efforts to reduce the visual impact of undesirable features of
industrial operations by requiring berms and landscaping to shield parking areas and outdoor
storage areas.
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Implementation 9.2.4: Ensure that all industrial development in the City adheres to minimum
site development and performance standards, including parking, landscaping, screening and
setback requirements.
Implementation 9.2.5: Develop strategies to limit the impact of industrial and commercial traffic
on residential neighborhoods.
POLICY 9.3: Annex all County “ islands” within the City limits.
Implementation 9.3.1: Involve the community in plans concerning development and
redevelopment of annexed County areas.
POLICY 9.4: Prohibit the establishment of any industrial use north of Fletcher Avenue.
Preservation of Open Space Resources
The Open Space and Conservation Element is specifically concerned with establishing goals and
policies related to the preservation and maintenance of open space resource in the City. Because
of the abundance of open space in Orange and the likelihood that much of this land will be
developed in the future, it is important to recognize that the preservation of these areas need to
be considered in the Land Use Element. The following goal recognizes that not all undeveloped
land will be preserved, although areas that offer unique opportunities for recreation or are
otherwise constrained should be maintained as open space.
GOAL 10.0: The City will continue to recognize the need to maintain open space resources for
the purpose of providing recreational opportunities, protecting the public from safety hazards and
conserving natural resources.
Maintaining Infrastructure and Utilities Services
As the City continues to grow either through redevelopment or new construction activity,
additional demands will be placed on infrastructure ( e. g., roads, water lines, sewer lines). Within
older sections of the City, existing infrastructure may not be able to accommodate increased
loads. Either the City or private developers will be required to provide infrastructure adequate to
meet projected needs.
In order to accommodate future demand and thereby avoid potential overload, the City must be
able to anticipate infrastructure needs based on land use policy and must establish methods of
financing identified improvements.
GOAL 11.0: The City’s infrastructure system must be adequate to meet the needs of existing and
future residents.
POLICY 11.1: Identify useful life of key infrastructure ( e. g., storm drains, streets, public buildings,
etc.), and establish appropriate rehabilitation programs.
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POLICY 11.2: Apply fair and balanced financing methods and development fees that ensure
necessary public facilities and infrastructure are provided in concert with new development.
Maintaining Circulation Level of Service
The Circulation Element of the General Plan was developed using assumed average intensity of
development for new development. However, some land use categories permit specific projects to
be developed to a higher intensity than the assumed average. If many such projects are developed
within a small area, the assumed trip generation from that area may exceed the capacity of the
circulation system. A program to monitor new development and anticipate these potential
problems is needed.
GOAL 12.0: Manage development of high intensity land uses in a way that ensures that the
capacity of the circulation system is not exceeded.
POLICY 12.1: Establish a development capacity for each traffic zone in the City, and monitor
development within traffic zones to determine when development capacity is being reached.
POLICY 12.2: Require projects which would exceed the development capacity of the traffic zone in
which they are located to perform detailed circulation system analysis to identify system- wide
impacts and mitigation measures. Require such project to fully fund these measures or include
these measures in the City’s Transportation Systems Improvement Program.
POLICY 12.3: Prepare and implement a City growth management plan which is coordinated with
the Orange County Transportation Commission’s 20- Year Growth Management Plan and the
Orange County Growth Management Plan.
Need for Coordinated Planning
The following goals and policies underscore the City’s resolve to ensure that future planning
considers ongoing planning efforts of other city departments, agencies and special districts. In
addition, ongoing planning efforts undertaken by regional agencies such as Orange County, the
Southern California Association of Governments and others will be examined for consistency with
the City’s long- range objectives.
GOAL 13.0: The City will continue to recognize the need to coordinate planning efforts both
within the City and with other jurisdictions in the region.
POLICY 13.1: Coordinate planning efforts among the various City departments and agencies,
property owners, residents and special districts.
Implementation 13.1.1: Examine ways to share existing and future public facilities among various
agencies and institutions in Orange.
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Implementation 13.1.2: Work with the Orange Unified School District, the Community College
District and Chapman College to prepare master plans for their facilities.
POLICY 13.2: Coordinate planning efforts with adjacent cities and agencies.
Implementation 13.2.1: Continue to participate in joint planning programs which address local
and regional circulation issues.
Implementation 13.2.2: Participate in regional planning programs which identify and address
resource needs.
Implementation 13.2.3: Evaluate major public facilities to ensure that such development is
consistent with the adopted goals and policies of the City’s General Plan.
Public Participation
The City recognizes that the single most important component of any future planning effort
involves public participation. The following goal emphasizes the need for continued public
involvement in all facets of the planning process. Implementation measures designed to achieve
this range from programs to better inform the community of ongoing planning efforts to the
identification of strategies which will encourage more direct public participation in improvement
programs.
GOAL 14.0: The City will continue to involve the public in the planning and decision making
process.
POLICY 14.1: Emphasize public- private cooperation in preparing future plans and programs for
economic development.
Implementation 14.1.1: Develop a marketing strategy to communicate concepts, plans and
benefits of future development to property owners, tenants and lenders.
Implementation 14.1.2: Initiate and encourage public and private improvement campaigns in the
older industrial areas of the City.
Implementation 14.1.3: Identify funding opportunities and explain the benefits of participating in
redevelopment and other rehabilitation programs to homeowners, businesses and others.
Related Goals and Policies
The goals and policies and the land use map contained in this element serve as the framework for
the remaining General Plan Elements. A number of goals and policies included in these other
elements will also support, either directly or indirectly, the goals and policies contained in the
Land Use Element. Table LU- 1, the Land Use Policy Matrix, identifies those goals and policies that
correspond with the major issue areas considered in the Land Use Element.
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Table LU- 1
Land Use Policy Matrix
Issue Area Housing Circulation Open Space &
Conservation
Safety Noise
Balanced Development 3.0
Commercial Enterprise
Industrial Development
Revenue Generating
Development
Balanced Housing 1.0, 3.0,
4.0, 5.0
Urban Design 1.0, 2.0 4.0 6.0
Preserving Old Towne 6.0 2.0
Redevelopment 1.0, 2.0
Land Use Conflicts 1.0, 2.0,
3.0, 4.0
1.0
Preservation of Open Space 1.0, 2.0, 3.0,
5.0
1.0, 3.0
Infrastructure and Utilities
Services
8.0 1.0
Coordinated Planning 1.0, 2.0 1.0
Public Participation 6.0 6.0
This table illustrates the internal consistency of the General Plan by indicating which goals in the other five elements re-emphasize
goals and policies stated in the Land Use Element.
THE LAND USE PLAN
This section of the Land Use Element indicates the location and extent of future development in
the City and identifies standards for that development. Land use planning for the City must
consider two extremes. The first concerns the older, well established communities in the west
where the focus is revitalization of commercial and industrial areas and the maintenance and
preservation of the residential neighborhoods. The other extreme involves the newly developed or
undeveloped portions of eastern Orange where planning is directed towards problems commonly
associated with new development.
Land Use Policy Considerations
A wide range of environmental and man- made factors have been considered in the formulation of
land use policy. Areas of special environmental significance, potential safety hazards, limitations
of existing infrastructure, and the character of the existing neighborhoods have all influenced land
use policy.
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Land Use Constraints
The Safety Element identifies areas of Orange subject to a number of environmental constraints,
including flooding, landsliding and seismic concerns. The Open Space and Conservation Element,
in turn, identifies areas where significant ecological or natural resources are located. These
constraints include both natural and man- made factors that will continue to influence long- range
land use planning. Figure LU- 1 identifies the primary land use constraints in the planning area.
Flooding: The Federal Emergency Management Agency ( FEMA) publishes a series of maps which
identify areas of the City subject to flooding in the event of a major storm. These maps, referred
to as Flood Insurance Rate Maps ( FIRMs) indicate areas that may be inundated in the event of a
100- year or 500- year storm. In addition, the maps indicate the base flood elevations at selected
intervals of the floodway.
The flood map contained in the Safety Element indicates a potential for storm related flooding
along the Santa Ana River, Santiago Creek and Handy Creek. Additional flood hazards include the
potential for inundation from dam or levee failure. Three major flood control reservoirs are located
on streams that run through Orange. The facilities of concern include Prado Dam, Santiago Dam,
Villa Park Dam and Olive Reservoir. Flood damage could occur in the event of failure at any of
these facilities. Figure S- 4 in the Safety Element Technical Report shows which areas of the City
are exposed to dam and reservoir failure hazards.
Hillsides: Topography in portions of the Planning Area contain slopes that may be too steep to
accommodate development. The potential for slope failure may increase due to grading practices
prior to construction and overwatering once developments have been completed. In addition,
many landslides are caused by earthquakes.
Geologic Hazards: The entire Planning Area is located within a seismically active region that has
been subject to major earthquakes in the past. The San Andreas Fault, Whittier- Elsinore Fault,
Newport- Inglewood Fault and San Jacinto Fault are active faults located within 30 miles of
Orange. Other major faults may be buried under alluvium, or fault traces may have been
obliterated due to natural weathering. Two of the most destructive earthquakes that occurred in
California in recent years, the Coalinga and Whittier earthquakes, originated from previously
unknown faults.
A number of smaller fault traces are located in the northern and eastern portions of the Planning
Area. The El Modena Fault traverses the base of the Peralta Hills. The Peralta Hills Fault is located
in the Peralta Hills just north of the El Modena Fault, as shown in the Safety Element.
Wildland Fires: The greatest potential for wildfire is in the undeveloped areas located in the
northern and eastern portion of the planning area. The risk to homes from wildfire will increase as
development spreads into the chaparral covered hillside areas in East Orange.
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Noise: Noise generated from mobile sources such as traffic and aircraft will continue to have the
greatest potential impact on land use. The Noise Element describes the existing noise
environment using maps that indicate high levels of noise in the Planning Area. The Noise
Element also identifies noise sources and recommends goals and policies that will be useful in
reducing the effects of noise if not the actual intensity of noise. Land use policy discourages the
placement of noise sensitive land uses in areas that are subject to high noise levels.
Circulation System Capacity: Lack of available right- of- way and limited access across natural or
man- made barriers may limit intensity of development in certain areas of the City. Land use policy
calls for a continuing program of evaluation of land development impacts on circulation and ties
development capacity to this environmental program.
Resource Issues
A number of resource issues need to be considered in future land use planning and decision-making.
These resources include: significant cultural resources ( archaeological sites and historic
structures) and significant natural resources, such as wildlife habitats, unique plant communities,
and significant vistas and viewsheds.
Archaeological Resources: Archaeological records suggest that Orange County has had a
constant human occupation that may extend as far back as 30,000 years ago. Evidence of the
past occupation of the Gabrieleno people is abundant in and around the City of Orange.
Archaeological surveys performed throughout the area have revealed bedrock mortars, surficial
scatter of tool flakes and fragments and possible campsites and villages. The majority of the finds
have occurred in the hillside areas to the east, and there is a strong possibility that undeveloped
hill areas contain yet undiscovered surface and subsurface cultural deposits.
Historic Resources: Europeans first settled in this part of Orange County in the 1700s with the
establishment of the first ranchos. Large scale settlement did not occur until late 19th century
when the original town site was subdivided. In 1981 a Citywide survey was conducted to identify
historically significant structures. Based on this survey, many homes and structures were
identified as historically significant. Several districts are also considered historically significant.
The areas include the Plaza Historic District, Old Towne, the Nutwood Tract, the Olive
Neighborhood, the McPherson Area and the El Modena area.
Plant Resources: With the exception of the hills on the eastern end of the planning area, Orange
has been completely urbanized and landscaped with largely non- native plant species. The
undeveloped hillside areas contain diverse natural plant communities. These communities include
grasslands, coastal sage scrub, chaparral, woodland and disturbed areas. The Central/ Coastal
NCCP/ HCP, as discussed above, is designed to preserve entire habitat areas while simultaneously
designating other areas for urban development. All areas designated for urban development in the
East Orange Study Area are permitted for development and “ take” by the NCCP.
Animal Resources: Many species of wildlife populate the open, grassy hills and woodland areas of
east Orange. The grasslands provides suitable foraging grounds for mammals and birds, and the
woodland trees are used by many species for nesting. Prior biological studies indicate that these
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are important habitat areas in that they serve as a natural extension of the regionally significant
Weir Canyon and Santiago Oaks Regional Park Wildlife Areas.
Most animal species found in the hills are fairly common varieties such as mourning doves,
finches, gophers, rabbits and garter snakes. Bobcats, coyotes and mule deer have been observed
in outlying areas.
The Central/ Coastal NCCP/ HCP, as discussed above, is designed to preserve entire habitat areas
while simultaneously designating other areas for urban development. All areas designated for
urban development in the East Orange Study Area are permitted for development and “ take” by
the NCCP.
Mineral Resources: Orange contains extensive deposits of sand and gravel within and surrounding
the Santiago Creek and Santa Ana River channels. In 1982, the California Department of
Conservation, Division of Mines and Geology ( CDMG), prepared a report detailing the
characteristics of sand and gravel resource areas in the greater Los Angeles area. The designated
resource regions in the City of Orange include the Lower Santiago Creek Resource Area and the
Santa Ana River Resource Area. Each of these areas are described in greater detail in the Open
Space and Conservation Element.
The goals, policies, and implementation measures contained in this element, to a large extent,
address the issues related to the environmental constraints and resources discussed on previous
pages.
Land Use Designations
Land use designations are necessary to provide some indication concerning the type and nature of
development that is permitted in a given location. While terms like “ residential,” “ commercial”
and “ industrial” generally are well understood by the public at large, more specific designations
like “ Estate Density Residential” or “ Old Towne Commercial” require some explanation. Equally
important, State general plan law requires a clear and concise description of the land categories
indicated on a land use map.
The Orange Land Use Element provides for 15 land use categories. Four categories are established
for residential development, ranging from rural residential development to multiple- family
development. Five commercial categories, one category for industrial development and a public
activities category are hereby established. Open space areas that are to be preserved are placed in
one of three open space designations: “ Parks”, “ Open Space” and “ Ridgelines”. Finally, areas
where mineral or resource extraction is or may occur are designated as “ Resource Area”.
A number of terms are used to define the land use categories described in this element. The term
“ density” in a land use context, is a measure of the population or development capacity of the
land. Density ranges may be explained in terms of persons per acre or units per acre.
Development intensity refers to the degree of development measured in terms of building height,
bulk, floor area ratios and/ or percent lot coverage.
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The concept of “ floor area ratio,” or FAR, is important in that allowable building intensities in the
non- residential land use designations are expressed in terms of FAR. Simply stated, the floor area
ratio is the ratio between total gross floor area of all buildings on a lot and the total area of that
lot. For example, a 21,780 square foot building on an acre lot ( 43,560 square feet) yields a FAR of
0.5, as illustrated on Figure LU- 2. The FAR is used to control use intensity on a lot and not the
actual building height or bulk. As Figure LU- 2 shows, the 0.5 FAR can yield a building of modest
height which covers almost all of the lot, or a taller building which allows for more open space.
The land use designations indicated on the Land Use Policy Map ( Figure LU- 3) are described here
in terms of general land uses and maximum densities/ intensities permitted. Table LU- 2 indicates
the corresponding zone district that applies to each land use designation. The zone districts
specify the permitted uses for each category as well as the applicable development standards.
The density/ intensity maximums outlined in Table LU- 2 serve as development caps. Actual
development intensities are expected to be lower than the caps. In estimating future build- out of
the City and development impacts on the circulation system, average densities were assumed
throughout the Planning Area. These assumptions are outlined in Table LU- 3. The City
anticipates most development will occur at or below the average, although on any single property,
development up to the cap is allowed. However, any development proposed in excess of the
average intensity indicated in Table LU- 3 may be required to perform special studies to show the
development’s ability to mitigate adverse impacts on adjacent properties and the circulation
system City- wide.
Estate Density Residential: This land use category is characterized by large lot, single- family
residential development in a rural or semi- rural setting. Private, non- commercial equestrian and
agricultural uses may be allowed if they are associated with the residential uses. The allowable
density for development in this category ranges from 1 to 2 units per net acre. Population density
ranges from 3 to 7 persons per acre.
Low Density Residential: The Low Density Residential designation applies to conventional single-residential
residential development. Such development is characterized by individual single- family
homes constructed in subdivisions with lot sizes ranging from 4,500 to 12,000 square feet, or by
custom units built on slightly larger lots. Development densities in this category range from 2 to
6 units per net acre. Corresponding population densities range from 6 to 17 persons per acre.
Low Medium Density Residential: The Low Medium Density category covers a variety of
development types, including small lot or zero lot line single- family subdivisions, duplexes and
mobilehome parks, as well as lower intensity apartment and condominium complexes. Such
developments are built at densities ranging from 6 to 15 units per net acre with corresponding
population densities ranging from 17 to 42 persons per acre.
Medium Density Residential: The Medium Density Residential designation allows for the
construction of apartment and condominium/ townhouse units in areas of the City with ready
access to major circulation routes, business districts and public open space areas. Typical
developments may consist of two- or three- story buildings which house multiple dwelling units
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and which provide some form of open space. Residential densities range from 15 to 24 units per
net acre with corresponding population densities of between 42 to 67 persons per acre.
Old Town – Mixed Use: The Old Towne- Mixed Use district contains many unique buildings and
an overall style and intensity of use which required special treatment and consideration in the
land use decision- making process. This designation applies to Chapman Avenue and Glassell
Street within the Old Towne boundaries, as well as to most of the eight block Downtown Core
identified in the Old Towne Orange Design Guidelines. Although commercial uses shall be the
primary uses along these corridors, residential development is also allowed either in conjunction
with a commercial business or as a separate, free- standing land use. Residential densities range
from 6 to 24 units per acre, depending on the underlying zoning.
Development proposed within the Old Towne – Mixed Use designation generally shall have a
maximum floor area ratio ( FAR) of 0.5. If off- site parking is provided, the maximum FAR shall be
1.0. Building design and construction must conform to the standards outlined in the “ Old Towne
Design Guidelines” and any other adopted design and land use guidelines and/ or regulations.
Office/ Professional: The Office/ Professional designation is designed to encourage low- rise office
and professional office park development in appropriate areas throughout the city. The principal
use in the district shall be professional office; however, support retail and service commercial uses
are permitted as necessary to serve adjacent professional office needs. The maximum allowable
development intensity in this category is 0.5 FAR.
General Commercial: The General Commercial designation allows for a wide range of retail and
service commercial uses, professional office developments, and high density residential at specific
locations within the overlay District D. Regional shopping centers, high- rise office projects,
corridor commercial districts, neighborhood corner stores, and high density multi- family
residential developments within overlay District D are all permitted uses in General Commercial
areas. Commercial building intensities shall not exceed an FAR of 0.5 except in areas where higher
FAR overlays apply, as indicated on the Land Use Policy Map, and residential densities shall not
exceed 50 units/ acre.
Recreational Commercial: The Recreational Commercial designation allows for outdoor
commercial recreational uses such as golf courses and typical recreation commercial facilities,
which include, but are not limited to marinas, boat rental buildings, staging areas, fishing
facilities, and other commercial sports facilities. Building intensities shall not exceed an FAR of
0.35.
Commercial Recreation: This use is intended to provide for commercial and office uses with a
specific focus upon entertainment and recreational uses, regional and community serving retail
and service uses, and higher intensity office developments. Building intensities shall not exceed
an FAR of 1.5 from Batavia Street west to the Santa Ana River; between Batavia Street east to
Glassell Avenue, building intensities shall not exceed an FAR of 0.50.
Industrial: The primary uses permitted within the Industrial designation generally involve the
manufacture, processing and distribution of goods. However, wholesale activities associated with
LAND USE
ORANGE GENERAL PLAN
LU- 25
the industrial operations, as well as small- scale, support retail, service commercial and offices may
be established in areas with ready access to major circulation routes. A maximum FAR of 0.4
shall apply to all industrial designations not included within FAR overlay districts.
In recognition of the fact that over time, market forces may create a demand for more office space,
this category also permits higher intensity professional office uses within the industrial FAR
overlay districts. The overlay districts facilitate the development of higher intensity uses in areas
where infrastructure can support such uses. The permitted intensity of use within these areas is
indicated by the FAR overlays on the Land Use Policy Map.
Public Facilities: The Public Facilities designation covers several types of public, quasi- public and
institutional land uses, including schools, City and County facilities, hospitals and major utility
easements and properties. Allowable building intensities within this category vary greatly,
depending on the type of facility or institution. Minor uses such as schools should not exceed an
intensity of 0.5 FAR, and major institutional uses ( hospitals, colleges) will have a maximum FAR
of 2.0.
Open Space – Park: This designation applies to those public lands used for passive and active
recreation. This category includes all park lands owned and maintained by the City of Orange. In
addition, parks operated by the County are also placed in this category.
Open Space: A substantial portion of the east portion of the planning area is to remain in open
space. Much of this area includes steep hillsides or environmentally sensitive areas that should
not be developed. While these areas may be designated as permanent open space, they will not
be developed as public parks. Lands in this category include privately held open space land as well
as public lands.
Open Space – Ridgelines: The City has established policies designed to preserve visually
significant ridgelines. These ridges are identified on the Land Use Policy Map to call attention to
the importance of such preservation. No development or grading is permitted in areas so
designated.
Resource Areas: The Resource Area designation is intended to allow for the continued use of
stream and river channels for aggregate mining and to allow for agriculture uses. Additional
permitted uses include passive and active recreational uses. The City recognizes that mining and
agriculture activity will not continue indefinitely within the Resource Areas. Therefore, this
designation serves as a holding zone.
Once mining or agricultural operations cease, a General Plan amendment will be required to allow
to any use other than a recreational use. Future uses must be compatible with established and
planned land uses surrounding Resource Areas.
Land Use
Table LU- 2
Land Use Designations
Designation Density/ Intensity1 Corresponding
Zone District( s)
Residential
Estate Density
Low Density
Low Medium Density
Medium Density
1- 2 du/ acre
2- 6 du/ acre
6- 15 du/ acre
15- 24 du/ acre
R1- 20, R1- 40
R1- 6, R1- 7 R1- 8
R1- 10, R1- 12, R1- 15
R2- 6, R2- 7, R2- 8, R- 3
R- 3, R- 4
Commercial
Old Towne
Office/ Professional
General Commercial
Recreational Commercial
FAR: 0.5- 1.0
FAR: 0.5
FAR: 0.5
FAR: 0.35
OP, CP, C1, C2
OP
C1, C2, C3, CP
CR- EOPC
Commercial Recreation
Industrial
FAR: 0.5- 1.5
FAR: 0.4
CR
M1, M2
Public Facilities
FAR: 2.0
PI
Open Space
Parks
Open Space
Ridgelines
N/ A
N/ A
N/ A
RO
RO, SH, FP
RO, SH
Resource Areas
N/ A
SG, A1
1 These are maximum permitted base densities/ intensities per net acre. Higher intensities are permitted
within applicable FAR overlay districts shown on Figure LU- 5.
N/ A = Not Applicable
ORANGE GENERAL PLAN
LU- 26
LAND USE
ORANGE GENERAL PLAN
LU- 27
Table LU- 3
Distribution Of Land Use
Land Use Category and Maximum
Permitted Density, Intensity
Typical Density,
Intensity, Factor
Area
( acres)
Total Units, Thousand
Square Feet
Residential
Estate ( 0- 2 du/ ac)
Low ( 2- 6 du/ ac)
Low Medium ( 6- 15 du/ ac)
Medium ( 15- 24 du/ ac)
Total Residential
du/ ac
1.50
3.77
6.71
14.30
1,108
7,738
1,675
793
11,314
1,662
29,273
11,240
11,337
53,512
Commercial
Old Towne, 0.5- 1.0 FAR
Retail ( 50%)
Office ( 50%)
General to 0.5 FAR
General to 2.5 FAR
Retail ( 50%)
Office ( 50%)
General to 3.0 FAR
Retail ( 50%)
Office ( 50%)
Office Professional, to 0.5 FAR
Recreation Commercial
Commercial Recreation
Total Commercial
FAR
0.20
0.30
0.15
0.25
1.00
0.20
1.50
0.355
0.175
0.38
53
53
862
57
57
169
169
60
218
150
1,848
463
695
5,609
402
4,002
1,836
9,586
884
1,661
2,506
Industrial
Industrial to 0.4 FAR
Industrial ( 95%)
Office ( 5%)
Industrial to 0.6 FAR
Industrial ( 40%)
Office ( 50%)
Retail ( 10%)
Industrial to 1.5 FAR
Industrial ( 30%)
Office ( 60%)
Retail ( 10%)
Total Industrial
FAR
0.30
0.40
0.35
0.50
0.25
0.30
0.90
0.25
946
50
43
54
11
85
170
28
1,387
12,362
871
655
1,165
117
1,299
6,680
309
Public Facilities
Open Space
Parks
Ridgeline
Other Open Space
Total Open Space
Resource Areas
Transportation
FAR
0.15
0.00
0.00
0.00
988
1,878
83
5,7052
7,666
208
661
6,456
TOTAL 24,072
Abbreviations: du = dwelling unit; ac = acre; FAR = Floor Area Ratio
1) This table indicates a development cap for types of land uses. The caps are tied to the ability of the proposed circulation system to handle increased building
intensities.
2) Includes Irvine Lake.
Numbers may not add due to rounding.
LAND USE
ORANGE GENERAL PLAN
LU- 29
Overlay Designations
In specific areas of the City, land use policies are hereby expanded to encourage more intensive
development than is permitted in other areas with the same land use designation. The overlay
designations facilitate this intensification of development. The overlay districts indicated on the
Land Use Policy Map permit a greater floor area ratio ( FAR) than that permitted in the base
designation. In this way, more intensive projects are restricted to those areas where such
development is appropriate, and where infrastructure can support intense land use. General
boundaries of the FAR overlay districts are shown in Figure LU- 4.
The Land Use Policy Map exhibits eight overlay districts which apply to commercial and industrial
areas of the City. Table LU- 4 describes each area, indicates the maximum allowable development
intensity in terms of floor area ratio, and also outlines the reason for encouraging intensification of
use in these areas. Figure LU- 4 identifies the locations of these overlay districts.
Implications of Land Use Policy
The Land Use Policy Map and land use designations together indicate in general terms the
distribution and intensity of land use desired. However, in any given land use category, the type
of development which will result will not be uniform throughout the City. For example, properties
designated General Commercial may support a variety of uses, from small neighborhood centers to
high- rise office parks or high- density residential development with support retail/ service
commercial functions. This portion of the Land Use Element serves to clarify land use policy by
describing where particular types and intensities of use should be concentrated.
Six major types of land use are discussed here as follows: residential uses, commercial uses,
industrial uses, major public facilities, open space uses and resource areas. To simplify the
discussion of land use policy, each category is divided into distinct planning areas which may have
very specific policies for future development.
Residential Development
Implementation of the land use policy contained in this element will permit additional residential
development, although this growth will be managed in a manner that is consistent with Citywide
goals and objectives.
Almost 50 percent of the City is designated for residential land use. The total number of units
that could be constructed if development proceeded exactly as outlined on the General Plan Land
Use Policy Map would approach an estimated 80,030 housing units. This represents a doubling
of the total units existing in the City in 1988.
Total buildout rarely occurs due to a variety of factors. First, total buildout assumes that
development will proceed exactly as outlined in the Land Use Element and the Land Use Policy
map. Second, the buildout model assumes that at some point in the planning period,
LAND USE
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LU- 30
development will be complete. Finally, the buildout model assumes that all development will be
at the maximum densities permitted under the land use policy, which will not be the case in many
instances, particularly where development already exists.
The potential development capacity of a community may be better estimated by determining its
“ effective development capacity” which assumes that under the most realistic circumstances, a
community will be developed to about 60 to 80 percent of its buildout capacity ( See Table LU- 3).
The entire Planning Area, if developed in accordance with the density assumptions outlined in
Table LU- 3, would have an estimated 53,000 dwelling units.
LAND USE
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LU- 31
Table LU- 4
Overlay Districts
District
Designation
Area Max. Gen. Plan
FAR Designation
Purpose of
Overlay
District A Katella/ Taft and Main
Street Area
1.5 Industrial To provide for the development of
higher intensity office, professional
along Katella and Taft
District B Eckhoff and Collins Area 0.6 Industrial To provide for office/ professional
development
District C Eckhoff and Orangewood
Area
0.6 Industrial –
3 story height limit
To provide for lower scale
office/ professional and industrial
development
District D Orangewood/ State
College
2.5 General Commercial To permit development of higher
intensity office/ professional,
commercial uses and High Density
Residential ( at 50 du/ acre)
District E City Shopping Center 3.0 General Commercial To permit high intensity office and
support retail development
District F Garden Grove Boulevard 2.5 General Commercial Promote office/ professional
development
District G Town & Country 3.0 General Commercial Promote development of office and
support retail uses
District H Uptown Orange 2.5 FAR, General Commercial
25- 60 du/ ac
To promote high- density residential
development with on- site
supporting amenities in areas of the
City that serve as major
employment nodes. Residential
development at the upper end of
the density range may be allowed
only in conjunction with mixed- use
development
Commercial and Professional Development
Land use policy provides five general categories of commercial land use – Old Towne Commercial,
Office Professional, General Commercial, Commercial Recreation, and Recreational Commercial. In
addition, the Land Use Policy Map provides for FAR overlays to permit higher densities in specified
General Commercial areas. Commercial uses are to be concentrated along two major circulation
corridors ( Tustin Street and Chapman Avenue), three minor corridors ( Katella Avenue, Main Street
and Lincoln Avenue), two regional centers ( The City Center and Mall of Orange) and as otherwise
indicated on the Land Use Policy Map. The corridors and center are the focus of regional and sub-regional
retail and service commercial uses. Although properties south of the Garden Grove
Freeway along Town and Country Drive are also designated General Commercial on the Policy
Map, professional office uses predominate in this area, with commercial uses serving only support
functions.
LAND USE
ORANGE GENERAL PLAN
LU- 32
Tustin Street: Of all the commercial areas in the City, Tustin Street is the most diverse, supporting
a range of uses at widely varying scales of development. Policy calls for the existing pattern of use
to continue at densities not to exceed 0.5 FAR. Lower intensity development is encouraged
adjacent to residential uses, with multi- story buildings required to be set back from or step down
to the residential development, or to provide some other form of compatible treatment.
Retail and service commercial uses will continue to be of the variety which serve City residents
and residents from adjacent communities. Such uses may be contained in regional centers ( i. e.,
the Mall of Orange) or smaller “ mini- mall” developments, or the development may consist of
single uses in single structures. Office development is to remain small- scale.
Although this form of strip development allows for a diversity of use, associated problems include:
1) interruption of traffic flow as vehicles exit from and enter onto Tustin Street at a multitude of
access points; and 2) clutter from signs, a mix of architectural styles and inconsistent landscaping
treatment along the street. The Tustin Street Redevelopment Plan, which encompasses all
commercial properties along the boulevard, is to be used to remedy these problems.
Redevelopment efforts are to focus on:
Encouraging centralization of parking facilities and driveways to the greatest extent possible;
Developing and implementing a signage plan for Tustin Street;
Improving major intersections to facilitate smooth traffic flow;
Developing and implementing a boulevard landscaping plan; and
Retaining existing and attracting new businesses which meet the needs of the community and
which provide maximum tax benefits to the City.
Chapman Avenue: The Chapman Avenue commercial corridor is divided into two distinct
sections. The western section extends from the Orange Freeway east to Batavia Street, and the
eastern section reaches from the Costa Mesa Freeway to Crawford Canyon Road, as indicated on
Figure LU- 3. Land use intensity along both sections of the corridor shall not exceed 0.5 FAR.
Given the western section’s close proximity to two major freeways and the Main- La Veta
employment center, traveler and commuter- oriented commercial uses ( e. g., service stations,
restaurants, and convenience stores) are appropriately concentrated here. However, a full range of
commercial uses, including professional offices, is permitted.
The eastern section shall support uses which readily serve the surrounding residential
neighborhoods. Any commercial use which abuts lower intensity residential development shall
provide buffer zones to minimize potential land use conflicts.
Katella Avenue: Katella Avenue from Glassell Street to Tustin Street provides a suitable location
for low intensity professional office and neighborhood commercial uses. A maximum FAR of 0.5
and a maximum building height of two stories is established. Between the Santa Ana River and
LAND USE
ORANGE GENERAL PLAN
LU- 33
Glassell Street, Katella provides opportunities for Commercial Recreation development, including a
mixture of entertainment and recreational uses, regional and community serving retail and service
uses, and higher intensity office developments. Maximum FAR between Glassell and Batavia
Streets is 0.5 FAR; from Batavia Street west to the Santa Ana River, maximum FAR is 1.5.
Main Street: The Main Street commercial corridor runs from Chapman Avenue south to La Veta
Avenue and actually may be considered an extension of the Chapman Avenue commercial area.
As such, Main Street should support additional office uses as well as commercial uses which serve
the business population. Within the Main Street corridor boundaries indicated on Figure LU- 4,
the maximum FAR shall be 0.5.
Lincoln Avenue: Lincoln Avenue lies somewhat removed from the business centers of the City
and is surrounded by residential uses. Therefore, commercial uses along this corridor should
consist primarily of neighborhood commercial businesses. Development is to be of very low
intensity. Although the General Commercial category allows for a maximum intensity of 0.5 FAR,
new development along Lincoln Avenue generally should not have an FAR in excess of 0.35.
“ The City” Area: “ The City” Area covers all General Commercial areas west of the Santa Ana River
( Figure LU- 4). This area should be the focal point for new mid- rise and high- rise office
development and high- density residential development on selected sites. However, such
development should be balanced with retail uses needed to serve the daytime business
community and surrounding residential uses. Included in this area, high density residential would
be appropriate to address the housing needs of the business community.
Retail/ service uses should be concentrated in the area center, on properties fronting on The City
Boulevard East and West. Building intensities should not exceed an FAR of 0.5 for such
commercial uses.
Mid- rise and high- rise office developments should be located around the commercial uses, as well
as south of the Garden Grove Freeway and north of the Santa Ana Freeway. The Land Use Policy
map indicates a maximum intensity range of 2.5 to 3.0 FAR for properties bounded generally by
Lewis Street, the Santa Ana Freeway, The City Drive South and the Garden Grove Freeway. Higher
intensity uses ( up to 3.0 FAR) should be focused toward the center of this area. Typical
development may consist of 10 to 20 story buildings with structured parking. Parking structures
may also serve the commercial uses adjacent to office development. Surrounding the high- rise
buildings and commercial development, building intensities should not exceed 2.0 FAR.
Mid- rise office buildings ( 1.0 to 2.5 FAR) are appropriate south of the Garden Grove Freeway and
north of the Santa Ana Freeway. High- density residential development ( 25- 60 du/ acre) may also
be appropriate in certain locations north of the Santa Ana Freeway. Because the freeways serve as
a major physical barrier to the commercial uses at The City Center, small- scale support retail and
service uses may be developed in conjunction with the office parks.
LAND USE
ORANGE GENERAL PLAN
LU- 35
High density residential development is appropriate north of the Santa Ana Freeway, east of State
College Boulevard. Typical development may consist of densities at 50 dwelling units per acre.
Due to the freeway and land uses, setbacks and physical design of the development should
address the existing ambient noise levels.
Town and Country: The Town and Country area includes approximately 90 acres of land located
north and south of the Garden Grove Freeway between Main Street and the Santa Fe Railroad line
( Figure LU- 4). Ready freeway access, excellent freeway visibility and the area’s location relative to
the regional commercial center west of Main Street in the City of Santa Ana make this area
appropriate for intense office development rather than regional commercial uses.
Development intensity maximums or caps should range from 2.5 to 3.0 FAR with typical
development consisting of mid- and high- rise buildings in office park settings. Support retail and
service commercial uses may be provided as needed.
Industrial Development: In 1988, the City adopted the Northwest Area Redevelopment Plan to
encompass the industrial district located just east of the Santa Ana River channel. Up until the
late 1970s and early 1980s, this area supported a wide range of industrial uses, from trucking
terminals and concrete batch plant operations to the manufacture of engine parts and high
technology electronics. In particular, the district provided a suitable location for a multitude of
small- scale, independent manufacturing businesses.
In the early 1980s, market conditions encouraged increased development of retail commercial uses
and professional office buildings along high visibility transportation corridors. The City recognizes
that this demand will increase as the tri- city area of Orange- Anaheim- Santa Ana continues to
develop as the major business center for central Orange County. Land use policy anticipates this
trend by permitting and even encouraging intense office uses within appropriate areas of the
City’s industrial district. By adopting a redevelopment plan for the area, the City may ensure that
development proceeds in step with necessary infrastructure improvements and in a manner which
provides the greatest economic benefit to City residents and the business community.
Although the primary use within the industrial district will continue to be the manufacture and
processing of goods, mid- rise office development will be permitted in areas which are afforded
ready freeway access and high visibility and which minimally impact residential neighborhoods.
The Land Use Policy Map identifies these areas as FAR overlay districts within the industrial area.
Future mid- rise office development ( within the Industrial designation) should be focused in these
areas only.
The major district may be described as the Taft- Katella corridor bounded generally by the Santa
Ana River, Grove Avenue, Batavia Street and the Collins flood control channel. Within this
district, building intensities may range from 0.5 to 1.5 FAR, with the higher intensity uses located
on Taft and Katella Avenues near the Santa Ana River. Prior to the intensification of use, adequate
circulation must be provided along Taft and Katella Avenues, particularly at major intersections to
allow for smooth traffic flow to and from the freeway and through the City.
LAND USE
ORANGE GENERAL PLAN
LU- 36
The second overlay district north and south of Collins Avenue allows for FARs of up to 0.6. The
area may also support minor retail and service commercial uses in conjunction with the office
development. As indicated in the Circulation Element, Eckhoff Street south of Orangewood
Avenue may need to have access restrictions to keep office/ commercial traffic from using the street
as a through route to Chapman Avenue.
A third industrial district is established between Orangewood Avenue and the AT & SF Railroad
tracks. Intensities in this area shall not exceed 0.6 FAR, and a three story height limit is
established to protect surrounding residential neighborhoods.
Open Space
Open space policy is designed to preserve undeveloped properties for several purposes, including:
1) the provision of active and passive recreation areas; 2) the provision of ridgelines and scenic
vistas; and 3) the preservation of environmentally sensitive resource areas.
All lands designated OS- P on the Land Use Policy Map are existing or planned City and/ or County
parks. These facilities are to be developed in accord with park plans spelled out in the Open Space
and Conservation Element. Lands with the OS- R designated are ridgelines which shall neither be
developed nor altered in any way, except as specified in the City’s hillside grading guidelines.
CIRCULATION
INTRODUCTION TO THE CIRCULATION ELEMENT
Southern Californians rely heavily on the private automobile as a means of getting to work, to the
grocery store, or to the beach, mountains, desert and other popular recreation spots. Anyone
with a set of car keys is not unfamiliar with the popularity of the car and the traffic conditions
created by the hundreds of thousands of automobiles traveling along the roads and freeways every
day.
Throughout Orange County, the regional freeway and local road systems have not always readily
responded to the needs of the mobile public and in particular, to the infrastructure and traffic
control demands of a rapidly growing population.
Purpose of Element
The purpose of the Circulation Element is to provide for a safe, convenient and efficient circulation
system for the City. In order to meet this objective, the Circulation Element identifies areas where
the system is expected to operate near capacity due to future development and then defines a
system capable of responding to growth occurring consistent with land use policy. This element
describes physical improvements needed to attain circulation objectives and also introduces other
techniques ( e. g. restricted street parking, transportation systems management plans) which can
be used to improve traffic flow.
The element is also intended to serve as a master plan for other infrastructure improvements such
as a sewer lines. As the State’s general plan guidelines point out, the circulation element is
actually an infrastructure plan which “ concerns itself with the circulation of people, goods, energy,
water, sewage, storm drainage and communications.”
Related Plans and Programs
Circulation issues, like the freeways which pass through Orange, extend far beyond the Orange
city limits. Consequently, several County and State agencies have developed circulation plans and
programs which influence transportation planning in the City.
State Programs
The California State Department of Transportation ( Caltrans) is constantly updating freeway
expansion and improvement plans. Four freeways pass through Orange, and any plans proposed
ORANGE GENERAL PLAN
C- 1
CIRCULATION
ORANGE GENERAL PLAN
C- 2
by Caltrans to widen freeways, improve freeway access, or otherwise modify the freeway system
will affect circulation and land use in the City. The City Department of Public Works will continue
to work closely with Caltrans on freeway projects impacting Orange.
County Programs
Master Plan of Arterial Highways: The County Transportation Planning Division of the
Environmental Management Agency has established a Master Plan of Arterial Highways ( MPAH).
The MPAH designates specific roadways as regional transportation routes. These routes are
designed to carry high volumes of intra- city traffic. The City’s master circulation plan must be
consistent with the County’s plan in order for the City to qualify for participation in funding
programs such as the Arterial Highway Funding Program and the Orange County United
Transportation Trust.
Master Plan of Bikeways: The County also has adopted a Master Plan of Countywide Bikeways.
The plan shows locations for both off- road and on- road bike paths.
Growth Management: Adopted in 1988, the Growth Management Plan Element of the County’s
General Plan represents a major County- wide traffic control plan. The element sets forth growth
management policies based on traffic service level objectives ( as well as flood control and
emergency response requirements). Although the plan applies only to unincorporated areas of the
County, the plan will affect phasing and timing of County arterial highway improvements for
roadways passing near Orange.
Eastern Transportation Corridor: In response to the need for new major transportation corridors
within eastern and southeastern Orange County, eleven affected cities and the County have
formed a joint power agency charged with the responsibility of studying and planning these
routes. In 1992, the Foothill/ Eastern Transportation Corridor Agency certified the EIR for SR-
241/ 261 and approved a locally preferred alternative. In September 1994, the Federal Highway
Administration selected a precise alignment for SR 241/ 261 that bisects the East Orange General
Plan area. All phases of SR 241/ 261 have been constructed and 241/ 261 is now fully operational.
Land use planning must take into account the alignment of and access to this corridor.
Bus Service: The Orange County Transit District provides bus service throughout the City and
Orange County. Although bus route and transit stop planning generally responds to identified
transit needs, the City can work with the District to include public transportation considerations
in land use planning decisions.
South Coast Air Quality Management District
The South Coast Air Quality Management District ( SCAQMD), the agency responsible for
monitoring air quality in the south coast region, has adopted Regulation XV as part of its “ Rules
and Regulations.” Intended to reduce pollutant emissions from vehicles commuting between
home and the workplace, Regulation XV also serves to reduce vehicle trips and thereby may be
considered a circulation issue. Regulation XV requires employers of 100 or more persons to
CIRCULATION
ORANGE GENERAL PLAN
C- 3
prepare and implement trip reduction plans. Fines for non- compliance may be levied against
employers.
City Plans and Programs
To collect funds for necessary circulation system capital improvements, the City Public Works
Department has established a Transportation System Improvement Program ( TSIP). The program
sets up a fee structure for new development and redevelopment which requires developers to pay
their “ fair share” of City- wide roadway improvements.
Scope and Format of Element
This element is comprised of four subsequent sections. The first section which follows contains
the City’s goal and policy statements for improving traffic circulation in and around Orange. The
next section identifies circulation issues and problems, and sets the framework and rationale for
providing the improvements presented in the following section, the “ Circulation Plan.” This plan
identifies standards for existing and future intersections and roadways, indicates where road and
intersection upgrades are necessary, and defines the City’s service level objectives to be achieved
by the circulation system. Also included in the Circulation Plan is a discussion of alternate modes
of transportation. Finally, the last section addresses other infrastructure needs and concerns ( e. g.
sewer lines).
CIRCULATION ELEMENT GOALS AND POLICIES
The goals and policies presented below emphasize the importance of establishing a circulation
system which can support existing and future development throughout all areas of the City. The
implementation measures identify specific programs and infrastructure improvements designed to
achieve service level objectives.
Safe, Convenient and Efficient Transportation System
The City’s original street system was established as a grid pattern long before a master plan of
streets and highways was adopted. The Old Towne area contains a classic grid system
configuration. In new parts of the City, however, natural and man- made barriers such as rivers,
hilly terrain, freeways and the presence of the City of Villa Park have given rise to a system
without a definitive pattern. Roads are discontinuous and consequently do not provide through
circulation. The following goals and policies call for street extensions and widenings to improve
traffic flow, and to provide for other system enhancement techniques on a City- wide basis.
GOAL 1.0: Provide a comprehensive circulation system that serves the needs of the existing
community and that will meet projected traffic demands.
POLICY 1.1: Improve overall circulation in the City by focusing on measures designed to improve
movement through key intersections.
CIRCULATION
ORANGE GENERAL PLAN
C- 4
Implementation 1.1.1: Enhance major intersections along arterials with right and left turn- out
lanes, thus allowing through- traffic to experience uninterrupted flow through the intersection.
Implementation 1.2.1: Establish a Technical Advisory Committee ( TAC) to include city staff and
residents from both the cities of Orange and Anaheim for the purpose of studying circulation
problems in northwest Orange.
POLICY 1.2: Coordinate with adjacent cities to plan and develop major east/ west and
north/ south arterials to connect the City with the cities of Anaheim, Tustin, Santa Ana and Irvine,
as well as developing areas within the Orange sphere of influence.
POLICY 1.3: Lessen the impact of through traffic on residential streets.
Implementation 1.3.1: Enhance roads parallel to local residential streets.
Implementation 1.3.2: Discourage through traffic in residential neighborhoods with appropriate
traffic control strategies.
POLICY 1.4: Work with Caltrans to ensure that area freeways provide ready access to and
circulation through the City.
Implementation 1.4.1: Evaluate and develop freeway access to allow for better transition to the
Santa Ana Freeway, Orange Freeway, Garden Grove Freeway and Costa Mesa Freeway.
Implementation 1.4.2: Phase development in coordination with freeway accesses, enhanced
intersections and synchronized signal up- grades.
POLICY 1.5: Cooperate with and support local and regional agencies’ efforts to develop regional
arterials adequate to handle increasing traffic congestion.
POLICY 1.6: Continue to seek funds from available transportation financing and other programs
to assist in financing new roadways.
Implementation 1.6.1: Develop a program to use redevelopment tax increment funds to finance
roadway improvements.
POLICY 1.7: Require developers to pay for the portions of circulation improvements which are
necessary to accommodate traffic generated by the new projects.
Implementation 1.7.1: Continue to use programs which require developer contributions for
needed roadway improvements.
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Implementation 1.7.2: Make use of development agreements, assessment districts and other
measures to ensure that all new developments are adequately served by roadways constructed to
City standards.
GOAL 2.0: Work toward the attainment of roadway service level objectives as defined by the
General Plan.
GOAL 3.0: Coordinate circulation improvements with land use planning to minimize adverse
impacts of the circulation system on land use.
POLICY 3.1: Coordinate land use planning with future development of freeway or transportation
corridors.
Implementation 3.1.1: Require development of parcels adjacent to the Eastern Transportation
Corridor to provide adequate visual buffers between adjacent land uses and the transportation
corridor. Such visual buffers could consist of berms, landscaping, decorative walls, a combination
thereof, or other similar solutions.
Implementation 3.1.2: Identify and prioritize interchanges in future freeway development along
the Eastern Transportation Corridor.
POLICY 3.2: Ensure that the circulation system can accommodate proposed new development.
Implementation 3.2.1: Establish a land use monitoring system and growth management plan
based on traffic zones. Set intensity limits for development within each traffic zone based on the
ability of the planned circulation system to accommodate future traffic.
Adequate Parking Facilities
Traffic flow along heavily traveled roadways can move more smoothly if obstructions to flow can
be eliminated. Parked cars and movement in and out of those cars impede traffic flow. Ensuring
provision of adequate on- site parking may reduce on- street parking and its associated problems.
GOAL 4.0: Consider the parking needs of the community in all land use planning efforts.
POLICY 4.1: Plan for on- site parking in all new developments.
Implementation 4.1.1: Review zoning ordinance parking requirements, and revise as necessary to
conform to actual parking demand.
Implementation 4.1.2: Enforce on- site parking requirements.
POLICY 4.2: Eliminate on- street parking where feasible to improve traffic flow.
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Implementation 4.2.1: Provide for off- street public parking areas in the Old Towne eight block
Downtown Core.
Implementation 4.2.2: Encourage adjacent businesses to consolidate parking facilities and access
points.
Implementation 4.2.3: Investigate the feasibility of developing vacant or underutilized properties
near the Old Towne Plaza with public parking facilities.
Encourage Use of Alternate Transportation
Encouraging the use of alternative means of transportation achieves two goals – reducing the
number of private vehicles on City streets and reducing the level of mobile source air pollutant
emissions.
GOAL 5.0: Encourage alternate transportation methods, including buses and carpools, whenever
possible.
POLICY 5.1: Work with the Orange County Transit District and other transit agencies to assess
City public transportation needs and to assure delivery of public transportation when and where it
is needed.
POLICY 5.2: Make public transportation more accessible and easier to use.
Implementation 5.2.1: Develop funding sources to provide bus bays where the City and OCTD
identify such need.
Implementation 5.2.2: Develop attractive, centrally located public transit stops at major
commercial and employment areas.
Implementation 5.2.3: Encourage the development of alternative local transportation such as
jitneys and independent cabs between major commercial and employment areas.
Implementation 5.2.4: Examine ways to improve existing airport shuttle service for local business
travelers.
POLICY 5.3: Promote the greater use of bicycles, and encourage the use of bike racks and safe
storage facilities at major parking areas.
Implementation 5.3.1: Establish a separate and segregated City- wide system of bikeways
corresponding with that identified in the Master Plan of Bikeways included in the Circulation
Element and the trail system shown in the Open Space and Conservation Management Element.
Implementation 5.3.2: Require that a percentage of required parking spaces in new developments
be set aside for bicycles.
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POLICY 5.4: Recognize that the presence of bicycles on arterial roadways creates traffic hazards
which can be avoided by establishing and encouraging the use of alternate bicycle routes.
POLICY 5.5: Encourage the use of carpools and vanpools for work trips.
Implementation 5.5.1: Support Regulation XV of the South Coast Air Quality Management
District by establishing a requirement for Transportation System Management Plans.
Pleasant Streetscape
Major streets serve as gateways into the City. A coordinated street landscaping and
improvements plan can result in streetscapes which make positive statements about the City,
thereby enhancing business districts and creating pleasant- looking residential neighborhoods.
However, street aesthetic improvements should not compromise the primary purpose of street
upgrading – to provide sufficient right- of- way to allow for the smooth flow of traffic.
GOAL 6.0: Design and maintain city streets so that they are aesthetically pleasing.
POLICY 6.1: Develop a streetscape plan which establishes policies and guidance for future
development of specific arterial streets in the City.
POLICY 6.2: Develop a parking/ median treatment/ landscaping programs for City streets.
Infrastructure Needs
New development and redevelopment will place new demands on the City’s infrastructure ( water
lines, sewer lines, storm drains). In order to accommodate future demands, the City must be able
to anticipate infrastructure needs based on land use policy and establish methods to finance
needed improvements.
GOAL 7.0: Ensure that the City’s infrastructure is adequate to meet the needs of existing and
future residents.
POLICY 7.1: Identify the useful life of key infrastructure ( e. g. storm drains, streets, utilities) and
establish appropriate rehabilitation programs.
POLICY 7.2: Monitor development fees to assure they are fair and justified.
Related Goals and Policies
A number of goals and policies included in the other General Plan Elements will also support the
goals and policies in the Circulation Element. Table C- 1 on the following page identifies those
goals that correspond to major circulation goals.
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Table C- 1
Circulation Element Policy Matrix
Issue Area
Land Use
Housing
Open Space &
Conservation
Safety
Noise
Safe, Convenient,
Efficient Transportation
System
8.0, 9.0
2.0
4.0, 7.0
1.0
Adequate Parking
2.0, 7.0
6.0
Alternate
Transportation
12.0
5.0
Pleasant Streetscape
2.0, 6.0
2.0
2.0
Infrastructure Needs
4.0, 8.0
2.0
1.0
2.0
This table illustrates the internal consistency of the General Plan by indicating which goals and
related policies in the other five elements reemphasize goals contained in the Circulation Element.
ISSUES IDENTIFICATION
The City’s primary circulation goal is to provide a circulation system that has adequate capacity to
meet the demands of future development. Future development is defined to be that development
occurring consistent with adopted land use policy.
Table LU- 3 in the Land Use Element outlines the total development anticipated to exist within the
planning area at build- out. As described in the Land Use Element, “ build- out” assumes that not
all properties will be developed to their maximum potential but that an average density or
intensity of development will occur City- wide. This level of development will result in an
estimated 60 percent increase in traffic volumes over measured 1987 volumes. Without
improvements to the circulation system, traffic conditions in Orange will deteriorate significantly.
Circulation System Deficiencies
A traffic study performed in Orange in 1988 found that several segments of the circulation system
operate at unacceptable service levels. Inadequate right- of- way, poorly configured intersections,
and a lack of continuous north- south and east- west arterial highways contribute to peak hour
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congestion near employment centers. A number of streets can be described as operating at or
near roadway design capacity, such as East Chapman Avenue near Yorba Street, segments of
Tustin Street, Santiago Boulevard, Katella Avenue, and City Drive within The City shopping center.
Congestion along Chapman Avenue east of the Costa Mesa Freeway may be attributed to the lack
of another major through east- west route accessing the Costa Mesa Freeway and employment
centers in west Orange.
In addition, peak hour capacity bottlenecks occur where business populations are concentrated,
such as on streets around the Town and Country area, and at freeway access points on Chapman
Avenue, Katella Avenue, Lincoln Avenue and La Veta Avenue.
Future Conditions
As indicated above, implementation of General Plan land use policy will result in an approximate
60 percent increase in traffic volumes above 1988 levels. A traffic model has been developed and
is used by the City Public Works Department to determine what improvements to the circulation
system are needed to achieve the City’s service level objectives articulated below.
The traffic model, known as the Orange Traffic Model, or OTM, enables land use and circulation
alternatives to be examined in conjunction with one another to determine where future system
deficiencies will occur. To develop a circulation plan which will solve existing system deficiencies,
which will accommodate growth consistent with land use policy, and furthermore, will preserve
service level objectives, consultants to the Public Works Department tested many new system
components such as road widenings and roadway extensions. The analysis resulted in the
development of the Circulation Plan and Master Plan of Streets and Highways described in the
following section, “ Circulation Plan.”
Service Level Objectives
The Master Plan of Streets and Highways has been developed in recognition of the need to relieve
existing congestion and to provide a circulation system that can accommodate future anticipated
growth. The plan also takes into account the fact that growth anticipated to occur east of the
planning area will use the street system in Orange. The goal of the system is to ensure that all
streets operate at an acceptable level of service. The City defines an “ acceptable level of service” in
traffic engineering terms as Level of Service “ D” or better.
A roadway’s ability to handle traffic loads is generally described by the Level of Service,
abbreviated as LOS. The LOS is a description of the ratio of a road or intersection’s design
capacity to existing or projected traffic volumes ( a volume to capacity ratio, or V/ C). For example,
a roadway which carries 24,000 vehicl