Costa Mesa City Council
September 15, 2026

1394

City of Costa Mesa
Agenda Report

77 Fair Drive
Costa Mesa, CA 92626
Item #: 26-381 Meeting Date: 9/15/2026
TITLE: PUBLIC HEARING TO CONSIDER ADOPTION OF THE FAIRVIEW DEVELOPMENTAL

CENTER SPECIFIC PLAN AND RELATED AMENDMENTS TO THE ZONING CODE, LAND USE

ELEMENT OF THE GENERAL PLAN AND CERTIFY THE ENVIRONMENTAL IMPACT REPORT

DEPARTMENT: COMMUNITY DEVELOPMENT DEPARTMENT / ADVANCED PLANNING

AND HOUSING DIVISION

PRESENTED BY: MELINDA DACEY, PRINCIPAL PLANNER; ANNA MCGILL, ADVANCED PLANNING MANAGER; KAREN GULLEY AND MOLLY MENDOZA, PLACEWORKS

CONTACT INFORMATION: MELINDA DACEY, PRINCIPAL PLANNER, (714) 754-5611

RECOMMENDATION:

Staff recommends the City Council:

1. Adopt Resolution No. 2026-XX titled “A Resolution of the City Council of the City of Costa Mesa, California, Certifying the Environmental Impact Report and Adopting the Findings of Fact and Statement of Overriding Considerations and Mitigation Monitoring and Reporting Program for the Fairview Developmental Center Specific Plan Project;” and

2. Adopt Resolution No. 2026-XX titled “A Resolution of the City Council of the City of Costa Mesa, California, Amending the Land Use Element of the General Plan and Update the Land Use Map to Change the Land Use Designation of the 110 Acre Fairview Developmental Center (FDC) Site Located at 2501 Harbor Boulevard from Multi -Use Center to Refer to the 95 Acre FDC Specific Plan (FDCSP) and Change the Remaining 15 Acres to Public/Institutional;” and

3. Introduce Ordinance No. 2026-XX titled “An Ordinance of the City Council of the City of Costa Mesa, California, Adopting the Fairview Developmental Center Specific Plan (FDCSP) and Amend Sections 13-20, 13-28, 13-30, Chapter V, Article 7, and Add Chapter XVIII “Specific Plans” to Title 13 of the Zoning Code, and Amend the Zoning Map to Change the Zoning Designation of the 110 Acre Fairview Developmental Center (FDC) Site Located at 2501 Harbor Boulevard to Refer to the 95 Acre FDCSP and Change the Remaining 15 Acres to Institutional and Recreational (I&R).”

BACKGROUND:

The Fairview Developmental Center (FDC) is a 110-acre State-owned property located at 2501 Harbor Boulevard in the City of Costa Mesa. The site was historically developed and operated as a residential care facility for individuals with developmental disabilities. Through extended negotiations, the State will retain ownership of 15 acres for the Southern Regional Emergency Operations Center (SREOC), which is not included in the FDCSP area. The FDCSP boundary encompasses approximately 95 acres. Of this, 1395

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the California Department of Developmental Services (DDS) will retain 15 acres for housing similar to Harbor Village Apartments, leaving approximately 80 acres available for future development. Prior staff reports noted different acreage for the FDC site and the acres identified within this report are reflective of the final available land for the FDCSP and supersede all previously identified acres.

Legislative Context

The FDC Specific Plan effort commenced in 2022, after Senate Bill (SB) 188 was enacted by the State legislature and inter alia added section 14670.31 to the Government Code. SB 188 provides a framework for the reuse of the FDC property and codifies a partnership between the Department of General Services (DGS), DDS, and the City of Costa Mesa, including defined roles for each entity. This bill also stated that the State did not intend to follow the traditional state surplus property process. To support this effort, the State allocated $3.5 million in State funding to the City to develop a Specific Plan, conduct necessary studies, and manage a community -based planning process. The Legislature’s intent for the redevelopment of the FDC site is to prioritize aff ordable housing and housing to the greatest extent feasible, including a minimum of 200 units of permanent supportive housing, open space, and housing for individuals with developmental disabilities, and for the City to create a Specific Plan for the FDC site that implements the provisions of Government Code section 14670.31.

To that effect, Government Code section 14670.31(c)(4) includes reference that a “development plan shall provide for housing and affordable housing at a level consistent with the January 2020 council- adopted strategy of 1,500 units and the housing assessment in the Department of General Services’ 2021 Infrastructure Assessment of up to 2,500 units for the site (emphasis added).” DGS prepared its May 27, 2021, Infrastructure Assessment as a part of its due diligence since the FDC site was identified as surplus and DGS needed to understand what would affect the State’s disposition of the site. The 2021 study evaluated likely constraints for redevelopment with a specific set of assumptions such as the total 110-acre site being available, the existing roadway configuration remaining unchanged and a financial feasibility component that included 500 affordable housing units. At the time the legislation was drafted, these were known factors for the FDC site. However, subsequent actions affecting these predefined unit counts identified within the legislation have occurred, which include:

 The City’s adoption of its Sixth Cycle (2021 -2029) Housing Element 1 in November 2022 (amended in 2023), increasing the affordable units for the site;  The Southern Regional Emergency Operations Center (SREOC) utilizing 15 -acres of the 110 - acre site, thereby reducing available land for redevelopment; and  The financial feasibility analysis conducted as a part of the planning process for the FDCSP found that development of fewer than 3,450 units would not be financially feasible (discussed in further detail below).

Due to the factors described, and acknowledging the predefined unit count in the legislation, City staff requested clarification from the State regarding the legislative intent and inclusion of the predefined unit counts. In addition, the community and Planning Commission have also inquired about this topic.

Accordingly, DGS provided a letter to the City, dated July 2, 2026, that reiterates the intent of Government Code section 14670.31, and provides overall support for a specific plan that can accommodate up to

1 The FDC site is a Housing Element Site with a minimum of 2,300 residential units (920 lower -income units, 690 moderate- income units, and 690 above moderate-income units).
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4,000 units. DGS further notes in its letter that when it drafted the requirements of the planning process, it specifically used the phrasing consistent with in the legislation instead of “between” or “not less than, and not more than” or other limiting language. DGS also reiterated that the “legislation required that the planning process address ’economic feasibility of future development’” (subsection (c)(1)), “maximize interested third-party potential purchases” (subsection (c)(2)), and have as an explicit intent to “provide certainty for the community and a potential developer” (subsection (c)(2)). As is clear from these requirements, the City’s task under the statute is to advance the land use process such that the Specific Plan is reasonably certain to be financially viable to implement.” The DGS letter is included as Attachment 12 and can also be accessed here:
https://costamesa.legistar.com/View.ashx?M=F&ID=15709361&GUID=7019DFA6-4238-4BA1-A05D- 0858848AEBE5

City and State Agreement

The City and DGS executed State Standard Agreement No. HD229063 in December 2022, consistent with SB 188. The Agreement was later amended on September 22, 2025 (collectively, the Agreement).

As outlined in the Agreement, the final development plan must align with both the City’s adopted vision and the State’s interests. While the s ite is owned and controlled by the State (DGS), the Agreement outlines the City’s responsibilities for leading the land use planning process. The Agreement envisions that the City’s planning work for FDC would include the following deliverables:

• Robust Community Engagement Strategy (and implementation thereof); • Comprehensive Conditions Report on the property and its setting; • Economic Market Demand Report;
• Water Supply Assessment and coordination among Water Agencies; • Project Conceptual Alternatives & a Preferred Plan Framework; • Draft Specific Plan with Implementation Strategies;
• Public Draft Initial Study and Notice of Preparation, if required; • Public Draft Environmental Impact Report;
• Draft Final Environmental Impact Report and Mitigation Monitoring and Reporting Program; • Final Draft Specific Plan and Environmental Impact Report; and • Public hearings for EIR certification and Specific Plan adoption, including any General Plan and Zoning amendments identified as necessary for consistency.

In accordance with the Agreement, the development of the FDCSP has progressed to the final stages of the City’s planning process which include:

1. Public Review Draft Specific Plan;

2. Draft Environmental Impact Report (DEIR);

3. Public Hearing Draft Specific Plan;

4. Public Hearings with the Planning Commission and City Council; and

5. Adoption of the Final Specific Plan, and associated amendments for consistency, and certification of the Final Environmental Impact Report (FEIR).

The Planning Commission conduct ed a publ ic hearing on the draft FDCSP and its components, associated Zoning Code and General Plan amendments for consistency, and the FEIR for recommendation to City Council. Further details are discussed below. The City Council is conducting a public hearing relating to the Planning Commission’s recommendation on the FDCSP. 1397

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Financial Feasibility Analysis

The City’s project team prepared a financial feasibility analysis that was presented to the Planning Commission and City Council in 2025, available here:
https://costamesa.legistar.com/View.ashx?M=F&ID=15709362&GUID=D5AF92F2-BFE5-4D6D-93E7- 7F691E7B80A5).

As required by the Agreement with the St ate, and reiterated in the July 2, 2026, DGS letter, the City oversaw preparation of a Financial Feasibility Analysis (“Analysis”) for the FDC site, using three land use concepts as test cases. The three land use concepts included different unit counts, at Concept 1/2,300 units, Concept 2/3,450 units, and Concept 3/4,000 units, along with land use components identified during community outreach. Incorporating market demand and pricing, the Analysis provides a detailed summary of the development cost at the FDC site, excluding the cost that affordable housing developers will pay to build and operate their projects. The Analysis also includes project-wide infrastructure costs, such as demolition, roads, water, and sewer, along with public safety and open space needs for the level of development. Feasibility alternatives (i.e., changes in the assumptions for each land use concept that would make each concept more feasible) were included to identify adjustments that could make the overall project financially feasible.

Financial feasibility analyses are prepared and analyzed from the perspective of potential developers and ask the question: do the concepts provide enough market rate housing units to offset the costs to support the affordable housing, the DDS housing, and other amenities, such as public safety and parks and recreation facilities. It can be used to predict the potential feasibility of a project with the most accurate information on hand at the time the analysis is conducted. While these analyses try to anticipate future market trends, unforeseen trends or market factors could adjust identified feasibility when a future master developer is ready to construct. The Analysis is a ‘snapshot’ of the current market and its considerations. For FDC, the Analysis evaluated the three concepts to determine how and whether a developer could redevelop the site and achieve an industry standard internal rate of return for project feasibility (15%). Table 1 is a summary of the results of the financial feasibility analysis:

Table 1: Total Cash Flow and Annual Internal Rate of Return 2,300 Units
(Previously Concept 1)
3,450 Units
(Previously Concept 2)
4,000 Units
(Previously Concept 3)
Cash Flow Sums with Financing and Cost/Revenue Escalation Total Cash Inflow $810,300,000 $2,148,000,000 $2,905,000,000 Total Cash Outflow -$962,700,000 -$1,779,000,000 -$2,235,000,000 Total Net Cash Flow -$152,360,000 $369,100,000 $669,8900,000 Financial Feasibility Metrics
Annual Internal Rate of
Return (IRR) -20% 14.6% 16.7%
Feasibility Surplus/(Gap) ($233,000,000) ($5,020,000) $26,700,000

The financial feasibility analysis found that Concept 2 and Concept 3 were financially feasible; however, Concept 2 has a financing shortfall, commonly referred to as a “gap” in project financing. Based on the financial feasibility analysis, staff initially recommended a residential unit mix of 3,600 to 3,800 units for the preferred land use plan as a reasonably expected development range at the FDC site, but studied 1398

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up to 4,000 units as directed by City Council while not pre-committing the City to a specific course of action.

Community Outreach

The community outreach and engagement process for the FDCSP began in 2023, with the first of five workshops. Each of the five workshops consisted of three separate ses sions and dates at various locations throughout the community, for a total of 15 public engagement sessions. These workshops were advertised through various efforts, including mailers to 46,000 households, social media posts, newspaper advertisements, and electronic notifications through the interested parties list and City newsletters. The workshops focused on various topics to garner community input throughout the planning process for the specific plan.

 Workshop No. 1 – November 2, 3, and 6, 2023 – Topics included the introduction of the project, FDC site context, requirements under State statute, and Housing Element requirements of the site. Community engagement included asking community members componen ts of a great neighborhood as the beginning of the visioning process.  Workshop No. 2 – January 23, 25, and 29, 2024 – Topics included background information for the project, project timeline and a summary of Workshop No. 1. Community engagement focused on the draft Vision and Guiding Principles, and feedback around mobility and open space concepts.
 Workshop No. 3 – February 29, March 4 and 6, 2024 – Topics included Refined Vision Statement, Housing, Mobility and Traffic, Parks and Open Space, and Infrastru cture.

Community engagement activities included stations of these topics with sticker dot exercises to learn more about the community’s preferences to further identify the details of the specific plan.  Workshop No. 4 – July 24, 25, and 31, 2024 – Topics included three land use concepts, key features, and analysis for each concept. This led into a land use concept survey that was available online from July 24 through August 30, 2024.
 Workshop No. 5 – March 24, 26, and 30, 2026 – The topic introduced the comm unity to the Public Review Draft Specific Plan and all of its components based on prior community engagement efforts.

In addition to the above community engagement meetings, City staff held a focus group meeting with various golf course clubs on July 15, 2026, to discuss the secondary access road contemplated in the FDCSP and outline the future process. City staff coordinated the meeting with golf course club members after the March 2026 workshops, where staff determined that additional discussions with these groups were needed. The purpose of the stakeholder meeting was for the City to connect with representatives of the various golf course clubs at the Costa Mesa Country Club, to provide an overview of the project, share information about the secondary a ccess road, the fact sheet ( https://fdcplan.com/wp- content/uploads/Fact-Sheet_FDC-Secondary-Access_Road-Golf-Course_Final.pdf), and related impacts to golf course holes of the Mesa Linda Golf Course with respect to the secondary access road.

The City’s golf course architect, Origins Golf Designs, also attended the stakeholder meeting. The Specific Plan includes an implementation action (Section 8.2.6.A.15) for the City and the Master Developer to continue coordinating additional outreach with the Master Developer as and when a detailed project application is submitted to the City for review.

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Item #: 26-381 Meeting Date: 9/15/2026

On July 23, 2026, staff conducted a community “question-and-answer” format meeting at the Norma Hertzog Community Center where City staff presented the FDC Specific Plan, covering the site's history, planning process, housing goals, conceptual land use plan, environmental review, and upcoming next steps. The meeting included a moderated public question -and-answer session. The primary topics raised by attendees included:

 Housing density (2,300–4,000 units)
 Affordable housing levels and feasibility
 Traffic and circulation
 School capacity
 Emergency access
 Impacts to the Costa Mesa Country Club
 Open space
 Commercial uses
 Public amenities
 Infrastructure funding
 City's role versus the State's in redevelopment

Staff provided information on the draft Specific Plan regulations and how the Draft EIR evaluated these topics (traffic, schools, public safety, infrastructure, and other impacts), including mitigation measures.

Staff emphasized that the Specific Plan land use plan is conceptual, and the future Master Developer must submit a detailed Development Review Application that includes plans, public amenities, phasing and proposed development agreements . This is described in further detail below under, Implementation – Phasing and Subsequent Applications.

The proposed secondary access road was described as a fire safety requirement, although construction may not occur for many years. Staff also clarified that developers would fund onsite infrastructure and pay impact fees, while ongoing public services would be supported through property taxes and City revenues.

Prior FDC Project Updates at City Council, Planning Commission, and Parks and Community Services Commission

On December 12, 2023, the City Council received an overview of the planning process, the historic background of the FDC site, potential housing types (including both market-rate and affordable options), and considerations for future development. The staff report and attachments are available online at:
https://costamesa.legistar.com/MeetingDetail.aspx?ID=1141509&GUID=345AA40A-863E-4705-8AC0- 6F703488A2F9

On March 25, 2024, the Planning Commission received a presentation that included a summary of the public workshops and outlined the upcoming steps in the planning process. The staff report and attachments are available online at:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=6600445&GUID=BE5C5BFB-7FF3-4EC5- B6A4-16240D272894

At both meetings, the project team also presented detailed information on the economic and market considerations for affordable housing development. Topics included financing strategies, eligibility 1400

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requirements, and the trade-offs needed to achieve feasibility. As part of the research and analysis, PlaceWorks conducted interviews with affordable and market -rate housing developers, advocacy groups, and industry experts familiar with Orange County housing trends. These interviews explored preferences related to housing types, supportive services, private and public open space amenities, and neighborhood design. Insights gathered have directly informed the market demand and market feasibility analysis, the outcomes of which are included in this report to guide the development of a preferred land use plan.

The Planning Commission conducted three meetings on the Preferred Land Use Plan Framework on May 27, 2025, June 23, 2025, and August 25, 2025. Over the course of these three meetings, staff presented a comprehensive background on the City and State roles of the FDCSP, the findings of the Financial Feasibility Study (discussed above), community outreach summary, three different land use alternatives (balanced land use components that support affordable housing that is financially feasible with long-term flexibility), components of a Specific Plan, development realities of State housing laws, and environmental review. At the August 25, 2025, meeting, the Planning Commission adopted PC Resolution No. 2025 -17 recommending a draft preferred land use plan for the FDCSP to the City Council for purposes of environmental review pursuant to the California Environmental Quality Act.

Link to May 27, 2025 Meeting Agenda, staff reports and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=7408827&GUID=E7162FB0-6F1B-49C8- 8A10-A2B71A59E397

Link to June 23, 2025 Meeting Agenda, staff reports and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=7443281&GUID=794883F8-79F0-429F- 89AA-27A1037F3206

Link to August 25, 2025 Meeting Agenda, staff reports and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=7523283&GUID=C8358D22-1767-42E4- 9683-A0A0A9E45E27&Options=&Search=

On October 9, 2025, City staff presented the FDCSP to t he Parks and Community Services (PACS) Commission that included an overview of the project, timeline, and the Planning Commission’s Open Space recommendations. The purpose of the meeting was to obtain PACS feedback regarding park amenities for consideration and inclusion in the FDCSP. At this meeting, the PACS Commission and wider community emphasized the need for a minimum amount of open space within the specific plan, particularly neighborhood sports fields for local sports programs.

Link to October 9, 2025 Meeting Agenda, staff reports and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=7693105&GUID=A38BE8F7-2C3F-4912- 8FEC-E46C6A295BCB&Options=&Search=

On October 21, 2025, the City Council considered the Planning Commission recommendation of the preferred land use plan for the FDCSP. After public comment concluded, the City Council d eliberated the plan and ultimately directed staff to move forward with the Planning Commission’s recommendation (which included a scope of environmental study in the form of the Draft Preferred Land Use Plan, up to 4,000 units, without committing the City to a specific course of action on the Specific Plan) and additionally increased the minimum open space by two acres resulting in the following change to the total open space acres: 12 acres increased to 14 acres. Table 2 depicts the Land Use categories that 1401

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were utilized for the CEQA environmental review and preparation of the Public Review Draft Specific Plan.

Link to October 21, 2025 Meeting Agenda, staff report and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=7702666&GUID=68E67F0E-2180-4D5E- BF92-87ED2CB439DB&Options=&Search=

Table 2 – Preferred Land Use Plan Designations and Affordable Housing

Land Use Development
Minimum
Development
Maximum
Total Residential Units1,4 2,300 units minimum 4,000 units maximum  Very Low Income 575 units2 -
 Low Income 345 units -
 Moderate Income 690 units -
 Above Moderate Income 690 units -
Commercial 10,000 sf minimum 35,000 sf maximum
Public Open Space3 14 acres minimum No maximum

Notes for Table 2:

1. The Very Low, Low, Moderate, and Above Moderate-income categories is defined in the City’s Housing Element.

2. The very low-income units shall include 200 Permanent Supportive Housing Units in accordance with Government Code section 14670.31. Housing developed on -site by DDS may count towards meeting this requirement.

3. Public Open Space includes areas planned for possible use of the following, including but not limited to: public parks, trails, plazas, and other types of open spaces available to the general public. It does not include private and common open space that is considered an on-site amenity for housing and is primarily accessible by the residents of the housing development.

4. Total units include the residential development within the 15-acres of land retained by DDS.

5. The Plan also contemplates a secondary access at the southeast corner of the site through the golf course, requiring the reconfiguration of up to six holes.

With this information known, the project team was able to move the FDCSP project into the next stages of the planning process which are discussed in detail below.

Public Review Draft Specific Plan

The City released the public review draft specific plan for a 30 -day public comment period that began on March 16, 2026, and concluded on April 15, 2026. The public comments received during this process resulted in refinements to the Draft FDCSP that inclu de further text refinements to the vision and guiding principles, purpose statements, and addressing project phasing details and specific plan implementation processes. Staff also made edits to align with new terminology for uses that were presented to the Planning Commission on April 13, 2026, at a study session as part of zoning code updates to Land Use Classifications for various nonresidential uses, which returned for recommendations to City Council at the Planning Commission’s July 13, 2026, hearing. City Council introduced the nonresidential code amendments for first reading by on August 4, 2026 and adopted them on September 1, 2026. In addition, the residential parking minimums were removed to be 1402

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consistent with City Council’s direction for Housing El ement sites rezoning at its March 17, 2026, hearing. This change was made for consistency due to the FDC site being a Housing Element site.

Prior to this change, there were no parking minimums for affordable housing units and the market rate units included a 1.25 parking ratio for each one-bedroom unit and a 2.25 parking ratio for each two- or more bedroom unit. The 0.25 for each of these ratios were inclusive of guest parking.

The more substantial edits occurred in Chapter 8, Administration & Implementation. The edits include:

• Further refinements to the planning application process with some slight reorganization; • Development impact fees were added to section 8.3.3;
• New Transportation Demand Management section 8.3.4;
• New Funding and Financing subsection 8.3.5.A;
• Further refinements to Table 8-3, Implementation and Conceptual Phasing, were made; and • New Table 8-4, Ongoing Ownership, Maintenance and Funding.

A new planning application implementation action was added requiring the future Master Developer to conduct outreach and community engagement once the final secondary access road alignment through the golf course —and any necessary redesign —is determined. This is included i n the FDC Development Review Application requirements in Section 8.2.6.A as item number 15.

On July 27, 2026, the Planning Commission held a study session on the FDCSP and its associated Zoning Code and General Plan amendments, and the Draft EIR. At the s tudy session the Planning Commission received public comments, asked questions of staff, and provided feedback related to the draft specific plan. Public comments raised concerns about the scale of development and concerns that traffic will increase on Har bor Boulevard and within the existing College Park neighborhood. Other comments received were related to the availability of sports fields, and petitioning the State to make Merrimac Way a public road so a new secondary road is not needed through the Mesa Linda Municipal Golf Course. The Planning Commission provided varying feedback on the FDCSP, including proposed edits to the plan itself regarding appropriate referencing throughout the plan and updates to the permitted uses table. Additionally, the Commission asked clarifying questions regarding the secondary access road and other alternative routes considered, the financial feasibility and its impact on the number of units studied under the FDCSP, and the status of the State’s disposition process. Further discussion on traffic, updates made to the FDCSP, and financial feasibility considerations are included in the analysis section below.

Link to July 27, 2026 Meeting Agenda, staff report and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=8144200&GUID=13F93617-431F-4E0E- BAED-FB1ACBB62095&Options=&Search=

Link to July 27, 2026 written public comments (See items marked as NB-2):
https://costamesa.legistar.com/View.ashx?M=E3&ID=1429415&GUID=D14C456A-C716-444D-B92A- 5460E080F1C8

On August 10, 2026, the Planning Commission conducted a public hearing on the FDCSP and the associated Zoning Code and General Plan amendments for internal consistency, and the Final EIR.

The Planning Commission received public testimony for and against the plan. Concerns continue to be raised regarding the number of units included in the plan and the resulting traffic, in addition to the 1403

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secondary access road that crosses through the Mesa Linda Golf Course. The staff report for the Planning Commission hearing included discussion on the following:

 Updates made to the FDCSP in relation to the Ju ly 27, 2026, Planning Commission study session feedback;
 Maximum units allowed in the specific plan and f inancially feasible residential unit count reductions below 4,000 but above 3,450 units;
 The level of service traffic analysis included in the Final EIR;  General Plan and Municipal Code amendments for internal consistency; and  The Final Environmental Impact Report.

The Planning Commission considered all public testimony and ultimately recommended (4-2) that the City Council adopt the FDCSP as drafted with incorporating information from the August 10, 2026 Planning Commission Memorandum relating to an update to figures in the level of service traffic study, the associated Zoning Code and General Plan amendments for internal consistency, certify the Final EIR, and adopt findings of fact and statement of overriding considerations. The Planning Commission Resolution No. PC-2026-22 is included as Attachment 9.

Link to August 10, 2026 Meeting Agenda, staff report and associated attachments:
https://costamesa.legistar.com/LegislationDetail.aspx?ID=8164832&GUID=9C7F2239-13C0-4A25- A31D-73774C7CC4D3&Options=&Search=
Link to written public comments (See items marked as PH-1):
https://costamesa.legistar.com/View.ashx?M=E3&ID=1436219&GUID=7764137B-AF15-4922- 8FC5-93FCC2FD99EB

California Department of Housing and Community Development (HCD)

The FDCSP is an implementation program (Program 3B) identified within the City’s Sixth Cycle Housing Element, in addition to being a site identified within the sites inventory. The site includes a Regional Housing Needs Allocation (RHNA) of 920 lower -income residential units, 690 moderate - income residential units, and 690 above moderate-income residential units for a total of 2,300 units.

This establishes the FDCSP minimum residential unit threshold for the site as shown in Table 2. The City Council recently amended the Housing Element on September 1, 2026. As a part of the amendment to the Housing Element, HCD issued a formal review letter dated August 21, 2026, indicating that the City’s revisions to the Housing Element meet the statutory requirements of State Housing Element Law and that the City’s Housing Element can be certified pending City Council approval of the pending rezone (includes other Housing Element sites) for the FDCSP, which means adoption of the Specific Plan and associated amendments to the Zoning Code and General Plan for internal consistency. The HCD letter is included as Attachment 10.

Department of Developmental Services (DDS) Letter Regarding Merrimac Way

On September 4, 2026, DDS provided a letter to the City confirming and supporting information that the City prepared and included in the Secondary Access Road Fact Sheet (https://fdcplan.com/wp- content/uploads/Fact-Sheet_FDC-Secondary-Access_Road-Golf-Course_Final.pdf), which states that Merrimac Way is a privately maintained road by the State with emergency vehicle access only.

DDS further explains that Merrimac Way cannot be used for daily through traffic for the safety and protection of the community members who reside at Harbor Village who have developmental 1404

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disabilities. DDS also indicates that Merrimac Way will remain private and restates their intention that the road will continue to be limited to the general public regardless of when their lease may come up for negotiation with the Harbor Village operator. The DDS letter is included as Attachment 11.

ANALYSIS:

FDC Specific Plan

The FDCSP was developed based on extensive community outreach and input from the public. The FDCSP is a planning tool that provides a regulatory framework acting as a zoning docum ent to guide future redevelopment, and improvements for the FDC site which includes specific land use regulations and development standards to carry out the community’s vision.

The FDCSP is comprised of a total of eight chapters . These chapters establish the regulatory framework for the future redevelopment of the FDC site and include development and design standards to achieve the community’s vision. Each chapter includes a purpose statement that explains the intent of the chapter, objective development and design standards (where applicable), and chapter specific topics. For example, Chapter 4, Land Use & Urban Design, includes the following sections: Purpose, Land Use Plan, Urban Design, Housing Plan, Uses, and Development and De sign Standards.

Whereas Chapter 6, Open Space, Landscaping & Public Art, includes: Purpose, Open Space and Trails Plan, Landscaping and Trees, and Public Art. The various sections of each chapter implement the community’s vision. Details of the various community outreach activities, including their dates, are included in Chapter 2, Introduction, of the FDCSP. The eight chapters are as follows:

1. Chapter 1, History & Disposition Process , documents the location, history of the FDC property and state law pertaining to operations and reuse of the site.

2. Chapter 2, Introduction, provides existing conditions, and the purpose, authority, and intent of the Specific Plan and summarizes the planning process, including community outreach.

3. Chapter 3, Vision & Guiding Principles , establishes the vision and guiding principles which serve as a guide for this Specific Plan and future development.

4. Chapter 4, Land Use & Urban Design , provides the concept ual land use plan, statistical summary, and objectives for housing developments and overall urban design on the Specific Plan site. It includes objective development and design standards.

5. Chapter 5, Mobility, describes the roadway network, including the different types of roadways and their requirements, bicycle and pedestrian connections, and intersections improvements.

6. Chapter 6, Open Space, Landscaping & Public Art , identifies the kinds of open space that will be incorporated within the Specific Plan area, and those that can be implemented as part of future development.

7. Chapter 7, Infrastructure & Public Services , provides information on the facilities and infrastructure needed to support future development, including electricity and natural gas, water and sewer, waste management, and nearby public services.

8. Chapter 8, Administration & Implementation , outlines the processes and procedures for development approvals as well as implementation of the Specific Plan, including conceptual phasing.

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Implementation – Phasing and Subsequent Applications

Chapter 8 of the Specific Plan requires the Master Developer, once selected by the State of California, to file a Development Review Application with the City on the details for the entire site, including but not limited to:

 The location and size of Planning Areas
 Maximum number of units in each Planning Area
 Backbone infrastructure (roadway, utilities, etc.)
 Open space locations
 Proposed phasing plans
 Development projects

The City will review this application to ensure compliance with the Specific Plan. Subsequent development projects for individual Planning Areas would need to be consistent with the approved Development Review Application. Any proposal that involves City property, including the gol f course or city land, must also be reviewed and decided upon by the City Council.

Implementation – Affordable Housing

With regard to affordable housing, the Specific Plan requires the Master Developer to submit an Affordable Housing Plan detailing how t he requirements of the Specific Plan would be implemented.

Details include, but are not limited to, location, structure, tenant, size/bedroom count of units, total number of affordable units, provisions for income certification and screening, financial of ongoing administrative and monitoring costs, fair housing marketing plan, and construction phasing plan schedule. The Affordable Housing Plan is subject to the approval of the Community Development Director or at the Director’s discretion, the Planning Commission.

Implementation – Future Development Impact Fees

A short-term implementation action is also identified within Chapter 8 for the City to conduct a nexus study to identify project specific impact and/or in-lieu fees related to the FDCSP future development.

This study is currently under way, and it is anticipated to identify FDC project specific fees to be collected by the City for items such as public services (police, fire, libraries) , traffic impacts, etc . The school district already collects fees for residential construction projects at a price per square foot and all developers would be required to pay those fees directly to the school district prior to building permits being issued by the City.

At the July Planning Commission study session, commissioners reviewed the Public Hearing Draft Specific Plan and provided comments related to internal consistency in the document. Accordingly, non-substantive amendments have been made to the draft which are depicted as strikethrough text which denotes text being removed, and underline text for text being added. These edits can be found in Chapter 4, Chapter 5, and Chapter 8, and are available at the following webpage:
https://www.costamesaca.gov/home/showpublisheddocument/64123/639215145597715649.

In addition, map figures were updated to address misspelled words, and existing bus stops were added to Figure 5 -16. Other edits made to the FD CSP included flexibility around Merrimac Way being considered the secondary access road in the event that future negotiations between the State and the 1406

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Harbor Village operator allow for the opportunity to make Merrimac Way publicly accessible, rather than being limited to emergency only access. This edit was made by staff in response to public comments. No further edits to the FDCSP were requested by the Planning Commission during the August 10, 2026, hearing.

Specific Plan Revisions Subsequent to Planning Commission Recommendation

After the August 10, 2026 Planning Commission hearing, staff made non-substantive edits to correct figures within the FDCSP where Victoria Street was inadvertently identified as Hamilton Avenue and incorporated other internal consistency updates within the FDCSP . For example, the “Purpose” sections of the FDCSP Chapters refer to the Guiding Principles found in Chapter 3 in some chapters, but it was not consistently applied throughout the document; the Economic and Development Services Department officially changed its name to Community Development Department so references were updated accordingly; and other miscellaneous edits were made for typo graphical nit s, internal document references, and further alignments related to the Planning Commission at their July 27, 2026 study session to ensure hierarchy of priority for pedestrians, bicyclists, and motorists. Staff corrected certain applications to ensure proper decision authority. Staff also incorporated language to ensure that the street sections identified within Chapter 5 could be modified if greater pedestrian and bicycle safety are proposed by the future Master Developer, in addition to making it clear that street furniture items are allowed within the future right-of-way parkways.

Other additional updates have been incorporated into the FDCSP for City Council consideration in response to public comments relating to the secondary access road as well as providing some clarity relating to “who” the affordable housing units in the affordable housing plan are for that meets the intent of State fair housing laws and goes beyond just the income levels. Under Chapter 8, Section 8.2.6.A, FDC Development Review Application, the following has been added:

16. Use of City-land, including any portion of the golf course, for an access road will require the Developer to enter into an agreement with the City that considers the following:
a. Result in the least possible changes or impact to existing uses; b. Developer-funded replacement or reconfiguration of impacted uses to a condition that considers prior conditions;
c. Developer-funds all survey and design work, subject to City review and approval; d. The equivalent of the appraised value of City land to be directed to City public benefits; e. Construction schedule, staging, and coordination plan to be approved the City; f. The agreement may be a standalone agreement or in combination with another agreement.

Under Chapter 8, Section 8.2.6.E, Affordable Housing Plan and Density Bonus Program, the following has been incorporated into the plan to “set aside” a portion of the affordable housing units that meet applicable fair housing laws:

At least 10-20 percent of the affordable units shall be set aside for households who live or w ork in Costa Mesa with a priority for households that are first responders, teachers, public service employees, or seniors.

These edits provide additional clarity relating to these items that are being raised by the community for City Council considerati on to either include, remove or modify them within the FDCSP. A t racked 1407

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change version of the specific plan is available online where edits are depicted as strikethrough text which denotes text being removed, and underline text for text being added here:
https://www.costamesaca.gov/home/showpublisheddocument/64770/639246341164296886 In addition, t hese edits are incorporated in Exhibit A of the draft Ordinance fo r City Council consideration.

Traffic Analysis

The City includes Level of Service (LOS) standards within the General Plan and has adopted Transportation Impact Analysis Guidelines for the City. LOS is a transportation performance measure to determine how efficiently traffic moves through the roadway network and intersections within a City.

LOS utilizes various “grades” that include the summary:

• LOS A: Free-flow conditions. Little to no delay. Drivers move freely. • LOS B: Stable flow with slight delays. Minor restrictions noticeable. • LOS C: Still stable, but operations become more restricted. Speeds may drop. • LOS D: Approaching unstable. Significant delay and reduced speeds. • LOS E: Near capacity. Heavy congestion. Very low speeds. Reliable flow is no longer guaranteed.
• LOS F: Breakdown. Stop‑and‑go conditions. Demand exceeds capacity.

LOS helps planners and engineers understand how much congestion exists, or will exist, when compared to existing and future conditions to evaluate a project and determine whether improvements are needed. The City’s LOS standards for all intersections are to retain an LOS D, or better. Appendix J.2 of the Draft EIR includes the transportation study that discusses LOS based on the project’s current 4,000 residential unit mix, non-residential uses, and 14 acres of open space.

The study looked at 26 intersections (15 of which are located on Harbor Boulevard) surrounding the project site, and utilized a traffic modeling tool as a standard best practice. The traffic model incorporated current traffic patterns, traffic patterns with the project, and cumulative traffic patterns which also include traffic growth associated with Housing Element sites. The results of the analysis during peak traffic conditions indicate that the interse ctions at Placentia Avenue and Victoria Street, and Harbor Boulevard and Fair Drive would operate at an LOS E, without intersection improvements.

With the intersection improvements included in the FDCSP (Figure 5-14, Intersection Improvements), the LOS level will become LOS D or better at Harbor Boulevard and Fair Drive, which meets the City’s minimum acceptable LOS standard. For reference, the intersection of Fairview Road and Adams Avenue is an example of an LOS D intersection operating in the City today . The following table has been included in the response to comments in the DEIR, which shows the intersection LOS with improvements.

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On August 10, 2026, the Planning Commission received a memorandum from staff which indicated that an illustration for Intersection No. 26 (Harbor Boulevard and Harbor Center) in Figure No. 3 and Figure No. 6 of the Appendix J.2 traffic analysis did not accurately render the lane geometry. The memorandum included revised exhibits with the applicable intersection clouded in red for Planning Commission that included incorporating this information as a part of their recommendation to the City Council. The memorandum has been included as an appendix in the revised Findings of Fact and Statement of Overriding Considerations that was published to the City’s environmental notices webpage on August 20, 2026, which is included within the linked Exhibit A of the City Council draft Resolution to certify the FEIR.

Link to August 10, 2026 Memorandum to Planning Commission (See item labeled as PH-1):
https://costamesa.legistar.com/View.ashx?M=E2&ID=1432600&GUID=368A4788-EE0B-4CAC- B5E7-757496DB5EAB

General Plan and Municipal Code Consistency

Government Code section 65300.5 mandates that General Plan elements, and parts thereof, be integrated, internally consistent, and include a compatible statement of polic ies for the adopting agency. Staff has confirmed that the proposed FDCSP is consistent with the goals and policies of the Land Use, Circulation, Housing, Noise, Safety and Open Space and Recreation Elements of the City’s General Plan. The Land Use Element is proposed to be amended to be consistent with the FDCSP by removing the existing general plan designation of Multi -use Center (MUC) throughout the Land Use Element and referring to the FDCSP. This change is proposed because the FDCSP establishes its own site-specific land use regulations. In addition, a new “Specific Plan” section is being added to the Land Use Element. Since the Southern Regional Emergency Operations Center (SREOC) is adjacent to the FDCSP, and per the City and State agreement, the SREOC’s land use designation is proposed to change from MUC to Public and Institutional. The Land Use Element amendments are included as Exhibit A to the draft Resolution relating to the Land Use Element , where strikethrough text denotes text being removed, and underline text denotes text being added. Exhibits depicting the existing and proposed land use map designations for the FDCSP, and the SREOC, are available as Exhibit B in the draft Resolution.

Since the MUC land use designation is being removed from the Land Use Element, the complimentary zoning designation for this land use designation must also be removed from the Zoning Code (Title 13 1409

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of the Costa Mesa Municipal Code). Targeted amendments to the Zoning Code remove all references to the “Institutional and Recreational Multi-use” (I&R-MLT) Designation. In addition, a new chapter titled “Specific Plans” is proposed to be added to the Zoning Code and refers to the FDCSP, but it will also list Costa Mesa’s other adopted specific plans. This Zoning Code amendment allows the FDCSP to be implemented and supersede other zoning code requirements where there may be inconsistencies.

This is due to the FDCSP incorporating its own site -specific zoning regulations (setbacks, heights, open space standards, etc.). Since the SREOC has a zoning designation of I&R -MLT, the site will be rezoned to “Institutional Recreational,” which is a zoning designation that is consistent with the SREOC operations. The Zoning Code amendments are included in the draft Ordinance as Exhibit B, where strikethrough text denotes text being removed, and underline text denotes text being added. Exhibits depicting the existing and proposed zoning map designations for the FDCSP, and the SREOC, are included in Exhibit C.

The proposed amendments to the Land Use Element and Zoning Code bring these documents into internal consistency and are therefore consistent with the purposes of the General Plan and Municipal Code. The General Plan and Zoning Code amendments associated with the FDCSP were made available for review on July 17, 2026.

ENVIRONMENTAL CONSIDERATIONS:

The City issued a Notice of Preparation (NOP) on October 29, 2025, which started the environmental review process for the FDCSP. The NOP was available from October 29, 2025, through December 5, 2025. A public scoping meeting was also held on November 17, 2025. The purpose of the NOP is to notify potential Responsible Agencies (Agencies) that the City, as Lead Agency, plans to prepare an EIR for the project and to solicit comments and suggestions regarding (1) the scope and content of the EIR and (2) the environmental issues and alternatives to be considered in the EIR, pursuant to the California Environmental Quality Act Guidelines (CEQA Guidelines) (Title 14 of the California Code of Regulations) section 15082. The NOP also provides agencies, organizations, tribes, and interested parties of the preparation of the EIR and requests for comments on the scope and contents of the environmental document. The NOP was submitted to the State Clearing house per statute, and the following project number was assigned: SCH No. 2025101405. All subsequent project related environmental documents can be accessed on the State Clearinghouse webpage utilizing this project number.

A Notice of Availability (NOA) of the Draft Environmental Impact Report (DEIR) was issued on May 14, 2026, which began a 48 -day public review and comment period that began on May 14, 2026, and concluded on July 1, 2026, pursuant to Public Resources Code section 21092 and CEQA Guidelines section 15087. The DEIR was prepared to analyze potential impacts of the project and identify measures to mitigate the environmental effects. The DEIR determined that the proposed project would result in potentially signifi cant impacts related to the following environmental topics: air quality, biological resources, cultural resources, geology and soils, greenhouse gas emissions, hazards and hazardous materials, noise, transportation, and tribal cultural resources. In additi on, the DEIR describes and evaluates project alternatives that may reduce or avoid any identified significant adverse impacts of the project. Topics that could not be mitigated to less than significant include air quality, biological resources, cultural resources, and greenhouse gas emissions.

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Responses to public comments on the DEIR are included in the Final EIR (FEIR). The FEIR incorporates text edits made to the DEIR that are shown in double underlined text. In addition, the public comments do not warrant recirculation of the EIR and response to public comments are included.

Those who submitted comments were notified that the FEIR was available according to statutory requirements and the FEIR was included for Planning Commission recommendation to City Council to certify the FEIR and adopt the statement of overriding considerations.

The DEIR identified that the FDCSP project would result in the following:

No Impact or Less than
Significant Impact
Significant Impacts that
can be Mitigated to Less
than Significant Impact
Significant and
Unavoidable Impacts
Aesthetics Geology and Soils Air Quality
Energy Hazards and Hazardous
Materials
Biological Resources
Hydrology and Water Quality Noise Cultural Resources
Land Use and Planning Transportation Greenhouse Gas
Emissions
Population and Housing Tribal Cultural Resources
Public Services
Recreation
Utilities and Service Systems

Significant and Unavoidable Impacts

The DEIR includes an Executive Summary that contains Table ES -2, Summary of Significant Environmental Impacts and Mitigation Measures, which identifies all of the potentially significant and significant impacts that can be mitigated to a level that is less than significant with mitigation measures incorporated, and significant and unavoidable impacts that cannot be mitigated to a level that is less than significant with mitigation measures incorporated. A summary of the significant and unavoidable impacts are discussed below.

Air Quality: The DEIR found that the FDCSP would cumulatively contribute to air quality impacts with all new future development (residential and non-residential) that results in cumulative construction and operational criteria pollutant emissions. This is due to nonattainment designations in the South Coast Air Basin (SoCAB) and inconsistency with the South Coast Air Quality Management District’s (South Coast AQMD’s) Air Quality Management Plan (AQMP) (Impact AIR -1), short -term emissio ns that exceed the South Coast AQMD’s thresholds during construction (Impact AIR -2), long-term emissions exceed South Coast AQMD’s thresholds and cumulative contribution to the SoCAB’s nonattainment designations (Impact AIR -3), sensitive receptors being ex posed to pollutant concentrations (Impact AIR-4), and cumulative impacts would be cumulatively considerable (Impact AIR -5). Each of these identified impacts include mitigation measures that reduce the overall impact, but not to a level that is less than significant.
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Biological Resources: The DEIR found that the FDCSP may impact an aquatic resource (potential wetland) if the off-site improvements that may be needed in relation to the secondary access road at the Costa Mesa Country Club affect the man-made pond on the Mesa Linda Golf Course (Impact BIO- 2). The biological report notes that the man-made pond may be a wetland and would need to go through an aquatic resource delineation process with appropriate state and federal agencies. The other biological re source impacts (Impact BIO -1 and Impact BIO -3) indicate that the impacts would be reduced to a level that is less than significant with mitigation incorporated. Impact BIO -1 requires on- site surveys to be completed prior to construction activities commence for specific flora and fauna due to presence of suitable habitat on the FDC site. Impact BIO-3 requires compliance with Migratory Bird Treaty Act and pre-construction surveys are required to be conducted during the bird nesting season prior to commencement of construction activities, or avoidance during the bird nesting season.

Cultural Resources: The DEIR found that the FDCSP would result in the loss of a historic resource.

The FDC site as a whole (buildings and internal walking paths) contribute cumula tively towards a historic district designation, even though the individual buildings themselves are not identified as a historic resource. The FDCSP envisions the complete redevelopment of the property that will result in the buildings being demolished, as well as the walking paths. This results in a significant and unavoidable impact. Mitigation measures include the completion of a Historic American Building Survey (HABS) with a scaled district map, detailed description of the site with historic narrative, and high-resolution digital photographs of the site. In addition, the FDCSP incorporates a requirement that at a minimum, three interpretive panels be placed on the site during redevelopment that explain the site’s history (Impact CUL -1). Other cultural r esource impacts (Impact CUL -2 and Impact CUL -3) indicate that the impacts would be reduced to a level that is less than significant with mitigation incorporated in relation to site grading and construction activities. The mitigation measures include archaeological monitoring and procedures for inadvertent discoveries that may arise during construction.

Greenhouse Gas Emissions: The DEIR found that the operation of the FDCSP project would cumulatively increase Greenhouse Gas (GHG) emissions that exceed the South Coast AQMD thresholds (Impact GHG-1 and Impact GHG-2) and mitigation measures will not reduce the impact to a level that is less than significant. Mitigation measures utilize the Air Quality mitigation measures because both of these topics overlap.

CEQA Alternatives

The DEIR evaluated the proposed project against three alternatives including a No Project Alternative, General Plan buildout with no specific plan (minimum 2,300 residential units from the Housing Element), and adaptive reuse of the His toric District. Chapter 4 of the DEIR includes a more detailed description of each alternative. The DEIR identified the adaptive reuse of the Historic District as the environmentally superior alternative, but it would not meet all of the City’s goals and would not eliminate any of the significant and unavoidable impacts associated with the project, though it would likely reduce the severity. The DEIR notes that this alternative would still result in the demolition of buildings and alterations to walking paths to accommodate the redevelopment, but it does not improve connectivity and mobility and only partially enhances open space and recreation. As such, a statement of overriding considerations is included for justification for the City to continue to move f orward with the current 1412

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project and opt not to pursue the Historic District alternative studied under the FEIR.

All applicable environmental documents referenced above (NOP, NOA, DEIR and FEIR) are available on the following City webpage:
https://www.costamesaca.gov/government/departments-and-divisions/community- development/planning/environmental-notices-and-reports

ALTERNATIVES:

Maximum Units Allowed by Specific Plan

The July 27, 2026, Planning Commission study session and August 10, 2026, Planning Commission hearing included the financial feasibility analysis that was completed as a part of the planning process for the FDCSP. This study is required under statute, specifically, the planning process must address the “economic feasibility of future development” ( section 14670.31(c)(1)), “maximize interested third - party potential purchases” ( section 14670.31(c)(2)) and an explicit intent to “provide certainty for the community and a potential developer” (section 14670.31(c)(2)) as indicated in the DGS letter from July 2, 2026. Accordingly, Concept No. 2 (3,450 units) and Concept No. 3 (4,000 units) from the fi nancial feasibility analysis
(https://costamesa.legistar.com/View.ashx?M=F&ID=15709362&GUID=D5AF92F2-BFE5-4D6D- 93E7-7F691E7B80A5) indicates that the likely feasible development threshold is between 3,500 and 4,000 residential units.

The Planning Commission and City Council directed studying up to 4,000 units for the purpose of identifying and understanding the potential environmental impacts and ensuring mitigation and appropriate standards within the FDCSP. The Planning Commission subsequently recommended City Council approve a specific plan with a 4,000 maximum unit count at their August 10, 2026 meeting .

However, the City Council could approve of a specific plan that is less than 4,000 but equal to or greater than 3,500 units.2 For relevant comparison, in terms of existing projects located within the Costa Mesa community, the Baker Block project located at 125 Baker Street East, Costa Mesa, is 58 dwelling units per acre (du/ac) and Halcyon House, located at 585 Anton Boulevard, Costa Mesa, is 81 du/ac. At 4,000 units, the development density would be 50 du/ac.

3,800 Unit Alternative

Assuming 3,800 units, which is 48 dwelling units (rounded up) per gross acre (80 acres), an estimated addition of 2 acres of ground level open space could be provided in the FDCSP. This unit range would be consistent with the City’s affordable housing goals identified in the Housing Element for the FDC site and is also consistent with the statutory requirement to provide a financially feasible plan. This unit alternative is consistent with legislation, the Agreement with the State and meets the Housing Element certification criteria outlined by HCD in the August 21, 2026 letter.

3,500 Unit Alternative

Assuming 3,500 units, which is approximately 44 dwelling units (rounded up) per gross acre (80 acres), an estimated additional 5 acres of ground level open space could potentially be provided in the FDCSP.

2 The reduction in units does not result in changes to the EIR. 1413

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This alternative is still financially viable and could potentially provide additional open space, as identified as a need and priority through community input. This unit al ternative is consistent with legislation, the Agreement with the State and meets the Housing Element certification criteria outlined by HCD in the August 21, 2026 letter.

The above alternatives are the City’s best estimates at trade -offs with reducing the residential unit count and increasing the amount of potential ground level open space, based on estimated acreage of planning areas shown in Figure 1. The alternative options are still based on prior analyses and fall within the range studied. As such, the City Council may choose to recommend a lower residential unit count.

2,300 Unit Alternative

Questions have been raised about the feasibility of a 2,300 -unit development. As noted in the report, the FDC site at 2,300 units with 920 affordable lower-income units is consistent with the City’s adopted Housing Element. The 2,300-unit alternative does not meet the industry standard for the internal rate of return (15 percent) and is therefore not financially feasible. Any alternative that reduces the number of affordable units for the FDC site would require an amendment to the Housing Element, would significantly reduce the buffer for lower-income housing citywide (currently at 454 units or 10 percent) and would risk HCD certification of the City’s Housing Element. The 2,300-unit alternative would likely propel a developer to utilize State density bonus law to achieve additional units to make the project more financially feasible. A secondary access road is still required under this unit alternative. In addition, this unit alternative is not consistent with legislation, or the Agreement with the State.

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Figure 1: FDC Planning Areas and Acreage

FISCAL REVIEW:

There are no direct fiscal impacts associated with the adoption of the FDCSP. The City received State Grant Funds (Fund 231) in the amount of $3.5 million from the State of California Department of Development Services in 2023, of which approximately $3.1 million has been expended or committed as of this Council Agenda date. Additional FDCSP expenses related to the environmental study and other eligible expenses will be funded from the remaining grant funds, which currently have a balance of approximately $0.4 million.

LEGAL REVIEW:

The City Attorney has reviewed the report, resolutions and ordinance and has approved them as to form.

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PUBLIC NOTICE:

Pursuant to Title 13, Section 13 -29(d), of the Costa Mesa Municipal Code, three types of public notification have been completed no less than 10 days prior to the date of the public hearing:

1. Mailed notice. A public notice was mailed to all property owners and occupants within a 500- foot radius of the project site on Wednesday, September 2, 2026. The required notice radius is measured from the external boundaries of the FDCSP boundary.

2. On-site posting. A public notice was posted on each street frontage of the project site on Friday, September 4, 2026.

3. Newspaper publication. A public notice was published once in the Daily Pilot newspaper on Friday, September 4, 2026.

Any public comments received for the September 15, 2026, City Council meeting, may be viewed at this link: CITY OF COSTA MESA - Calendar (legistar.com)

CITY COUNCIL GOALS AND PRIORITIES:

The FDCSP meets the following City Council Goals and Priorities:

• Diversify, stabilize and increase housing to reflect community needs. • Strengthen the public’s safety and improve the quality of life. • Advance environmental sustainability and climate resiliency.

CONCLUSION:

Staff recommends that the City Council move forward with the Planning Commission’s recommended action to certify the FEIR and adopt Findings of Fact and Statement of Overriding Considerations, adopt the FDCSP and the associated General Plan and Zoning Code amendments for internal consistency identified within this report and its associated attachments. The City Council could approve the Planning Commission’s recommendation to adopt the FDCSP with a 4,000 unit maximum or identify a maximum unit threshold that is less than 4,000 units to incorporate into the FDCSP, as discussed under the alternatives section above.

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ATTACHMENT 1
Resolution No. 2026-xx Page 1 of 5

RESOLUTION NO. 2026-xx

A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF COSTA MESA,

CALIFORNIA, CERTIFYING THE FINAL ENVIRONMENTAL IMPACT REPORT,

ADOPTING FINDINGS OF FACT AND STATEMENT OF OVERRIDING

CONSIDERATIONS AND MITIGATION MONITORING AND REPORTING P ROGRAM

FOR THE FAIRVIEW DEVELOPMENTAL CENTER SPECIFIC PLAN PROJECT

THE CITY COUNCIL OF THE CITY OF COSTA MESA HEREBY FINDS AND DECLARES AS FOLLOWS:

WHEREAS, in June 2022, the California State Legislature adopted SB 188, enacting Government Code section 14670.31, which outlines the general terms under which the State of California, through the State Department of General Services (DGS) and the State Department of Developmental Services (DDS), will collaborate with the City of Costa Mesa (City) to determine the future of the FDC site; and WHEREAS, on October 4, 2022, the City Council of the City of Costa Mesa (City Council), authorized the City Manager to enter into a Standard Agreement with the DGS and receive State funds in an amount not to exceed $3.5 million to develop the Fairview Developmental Center Specific Plan (FDCSP); and
WHEREAS, in December of 2022, the City of Costa Mesa and DGS entered into Standard Agreement Number HD229063; and
WHEREAS, the FDCSP project was prepared based on City Council direction and public outreach and input through several community workshops at various locations throughout the Costa Mesa community including a Community Q&A; and WHEREAS, all workshops and the Community Q&A were advertised through various means, includi ng social media posts on Facebook, Instagram, Next Door, postcard mailers to 46,271 residential homes, email notifications to interested parties, flyer distribution and A -frame signs placed outside of City facilities, announcements made at Planning Commiss ion and City Council meetings, and newspaper advertisements; and
WHEREAS, on October 29, 2025, pursuant to the California Environmental Quality Act (CEQA) a notice of preparation (NOP) was issued and submitted to the State Clearinghouse where the FDCSP was assigned project number SCH No. 2025101405; and
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Resolution No. 2026-xx Page 2 of 5

WHEREAS, the NOP started the CEQA environmental review process by notifying agencies, organizations, tribes, and interested parties about the City’s plans to prepare an Environmental Impact Report (EIR), and that the written public comment period began October 29, 2025, through December 5, 2025; and WHEREAS, on November 17, 2025, a public scoping meeting was held at City Hall to solicit comments and suggestions regarding the scope and content of the EIR and environmental issues and alternatives to be considered in the EIR; and WHEREAS, on May 14, 2026, a notice of availability Draft Environmental Impact Report (DEIR) was published in a newspaper of general circulation which included a 48- day public review period that occurred from May 14, 2026, through July 1, 2026, and the DEIR were made available for public review pursuant to the requirements of the CEQA Guidelines; and
WHEREAS, on May 14, 2026, the DEIR was uploaded to the City’s environmental notices webpage, provided to the County Clerk -recorder’s Office for posting, and submitted and uploaded to the State Clearinghouse (State Clearinghouse No. 2025101405); and
WHEREAS, on July 16, 2026, the Airport Land Use Commission held a duly noticed public hearing and determined that the FDCSP was consistent with the Airport Environs Land Use Plan for John Wayne Airport; and
WHEREAS, on July 27, 2026, the Planning Commission held a study session on the FDCSP where it received a presentation for the introduction of the July 2026 Public Hearing Draft Specific Plan, associated Zoning Code, Zoning Map, Land Use Element and Land Use Map amendments and the Draft EIR, and after public comment the Planning Commission received and filed the report and provided feedback on the FDCSP; and
WHEREAS, on August 10, 2026 , the Planning Commission conducted a duly noticed public hearing to discuss and consider the FDCSP project and proposed amendments to Zoning Code, Zoning Map, Land Use Element and Land Use Map, with all pers ons having the opportunity to speak for and against the proposal and recommended that the City Council certify the Final EIR, adopt the findings of fact and 1418
Resolution No. 2026-xx Page 3 of 5

statement of overriding considerations, and the mitigation monitoring and reporting program; and
WHEREAS, the City Council conducted a public hearing on September 1 5, 2026, for the purpose of considering the ECRSP project; and
WHEREAS, the City Council has duly considered the totality of the record and all evidence submitted into the record, including public testimony and the evaluation and recommendations by staff and Planning Commission, presented at said hearings; and WHEREAS, notices of said public hearings were made at the time and in the manner required by law; and
WHEREAS, the CEQA Final EIR for t his project reflects the independent judgement of the City of Costa Mesa.

NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF COSTA MESA HEREBY RESOLVES as follows:

BE IT RESOLVED that based on the evidence in the recor d and the findings contained in Exhibit A , the City Council hereby certif ies the Final EIR prepared for the project pursuant to CEQA Guidelines s ection 15090, adopt findings of fact pursuant to CEQA Guidelines section 15091, adopt statement of overriding considerations pursuant to CEQA Guidelines section 15093, and adopt the Mitigation Monitoring and Reporting Program.

BE IT FURTHER RESOLVED that the Costa Mesa City Council does hereby find and determine that adoption of this Resolution is expressly pre dicated upon the activity as described in the staff report and compliance with all applicable federal, S tate, and local laws. Any approval granted by this resolution shall be subject to review, modification, or revocation if there is a material change that occurs in the operation, or if the applicant fails to comply with any of the conditions of approval.

BE IT FURTHER RESOLVED that if any section, division, sentence, clause, phrase or portion of this resolution, or the document in the record in support of this resolution, are for any reason held to be invalid or unconstitutional by a decision of any court of competent jurisdiction, such decision shall not affect the validity of the remaining provisions.

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Resolution No. 2026-xx Page 4 of 5

PASSED AND ADOPTED this 15th day of September, 2026.

_____________________________
John Stephens, Mayor

ATTEST: APPROVED AS TO FORM:

________________________ _____________________________ Brenda Green, City Clerk Kimberly Hall Barlow, City Attorney

STATE OF CALIFORNIA )
COUNTY OF ORANGE ) ss

CITY OF COSTA MESA )

I, BRENDA GREEN, City Clerk of the City of Costa Mesa, DO HEREBY CERTIFY that the above and foregoing is the original of Resolution No. 202 6-xx and was duly passed and adopted by the City Council of the City of Costa Mesa at a regular meeting held on the 15
th day of September, 2026, by the following roll call vote, to wit:

AYES: COUNCIL MEMBERS:

NOES: COUNCIL MEMBERS:

ABSENT: COUNCIL MEMBERS:

IN WITNESS WHEREOF, I have hereby set my hand and affixed the seal of the City of Costa Mesa this 16
th day of September, 2026.

___________________________
Brenda Green, City Clerk
1420
Resolution No. 2026-xx Page 5 of 5

Exhibit A

Fairview Developmental Center Specific Plan
Environmental Impact Report Files - State Clearinghouse No. 2025101405

Click on the “Links” below to access the document.

Final Environmental Impact Report (FEIR) - Link
FEIR Appendix A – Comment Letters Received - Link
FEIR Appendix B – Engineering Analysis Report - Link
FEIR Appendix C – Revision to Appendix J.2 of the DEIR – Link Findings of Fact and Statement of Overriding Considerations - Link Draft EIR - Part 1 - Link
Draft EIR - Part 2 - Link
Draft EIR - Part 3 - Link
Draft EIR - Part 4 - Link
Mitigation Monitoring and Reporting Program (MMRP) - Link Appendix A.1: Notice or Preparation (NOP) and Scoping Meeting Comments - Link Appendix B.1: Air Quality and GHG Modeling – Link
Appendix C.1: Biological Technical Report - Link
Appendix C.2: Tree Survey and Arborist Report – 2026 - Link Appendix C.3: Tree Survey and Arborist Report – 2024 - Link Appendix D.1: Archaeological and Built Environment Resources Inventory Report - Link Appendix E.1: Paleontological Resources Evaluation - Link Appendix F.1: Phase I Environmental Site Assessment - Link Appendix F.2: Phase II Investigation Report - Part 1 - Link Appendix F.2: Phase II Investigation Report - Part 2 - Link Appendix G.1: Water Supply Assessment - Link
Appendix H.1: Noise and Vibration Assessment - Link
Appendix I.1: Response to service letter and questionnaire - Link Appendix J.1: VMT Assessment - Link
Appendix J.2: Transportation Study - Link
Appendix K.1: Existing Conditions Infrastructure Report - Link Appendix K.2: Dry Utilities Summary Memo - Link
Appendix L.1: Alternatives Trip Generation - Link
1421
ATTACHMENT 2

Resolution No. 2026-xx Page 1 of 6

RESOLUTION NO. 2026-xx

A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF COSTA MESA,

CALIFORNIA, AMENDING THE LAND USE ELEMENT OF THE GENERAL PLAN

AND UPDATE THE LAND USE MAP TO CHANGE THE LAND USE DESIGNATION OF THE 110 ACRE FAIRVIEW DEVELOPMENTAL CENTER (FDC) SITE LOCATED AT 2501 HARBOR BOULEVARD FROM MULTI -USE CENTER TO REFER TO THE 95 ACRE FDC SPECIFIC PLAN (FDCSP) AND CHANGE THE REMAINING 15

ACRES TO PUBLIC/INSTITUTIONAL

THE CITY COUNCIL OF THE CITY OF COSTA MESA HEREBY FINDS AND DECLARES AS FOLLOWS:

WHEREAS, in June 2022, the California State Legislature adopted SB 188, enacting Government Code section 14670.31, which outlines the general terms under which the State of California, through the State Department of General Services (DGS) and the State Department of Developmental Services (DDS), will collaborate with the City of Costa Mesa (City) to determine the future of the FDC site; and WHEREAS, on October 4, 2022, the City Council of the City of Costa Mesa (City Council), authorized the City Manager to enter into a Standard Agreement with the DGS and receive State funds in an amount not to exceed $3.5 million to develop the Fairview Developmental Center Specific Plan (FDCSP); and
WHEREAS, in December of 2022, the City of Costa Mesa and DGS entered i nto Standard Agreement Number HD229063; and
WHEREAS, on June 13, 2023, the City released the solicitation of a Request for Proposals (RFP) for the FDCSP that was released via PlanetBids, the City’s web- based procurement system, where four proposals were received and evaluated by City staff based on the selection criteria identified in the RFP, and of the four proposals, PlaceWorks was selected as the qualified consultant to complete the FDCSP scope of work; and
WHEREAS, on August 1, 2023, the City Counc il approved the agreement between the City and PlaceWorks pursuant to the RFP; and WHEREAS, on November 2, 3, and 6, 2023 , a publicly noticed community workshop (Workshop No. 1) took place at various locations within the City to gather community input and feedback relating to the existing conditions within the FDCSP and gain insight on the community’s vision for the area; and 1422

Resolution No. 2026-xx Page 2 of 6

WHEREAS, on December 12, 2023, the City Council held a study session and received a project status update on the FDCSP; and
WHEREAS, on March 25, 2024, the Planning Commission held a study session and received a project status update on the FDCSP; and
WHEREAS, throughout 2024, Workshop No. 2 (January 23, 25, and 29), Workshop No. 3 (February 29, March 4, and 6), and Workshop No. 4 (July 24, 25 and 31) were publicly noticed and each workshop was held at various locations within the City to gain community input on the draft Vision and Guiding Principles (including further refinements throughout), mobility, open space, housing, infrastructure and learn the community’s preferences on these items to incorporate greater detail within the FDCSP; and
WHEREAS, Workshop No. 4 included three land use concepts, key features and applicable analysis for each concept and a land use concept survey was made available from July 24 through August 30, 2024; and
WHEREAS, on May 27, 2025, June 23, 2025, and August 25, 2025, the Planning Commission held publicly noticed study sessions that included project background information, financial feasibility findings, summary of community engagement, and three land use scenarios to obtain their input and provide recommendation to the City Council for a land use plan scenario to be studied for environmental review purposes and inclusion in the FDCSP which does not pre-commit the City to any action for adoption; and
WHEREAS, on October 9, 2025, the FDCSP was presented to the Parks and Community Services Commission to obtain feedback about park amenities for consideration and inclusion in the FDCSP; and
WHEREAS, on October 21, 2025, the City Council held a publicly noticed study session to review the Planning Commission’s recommended land use plan for the FDCSP and the City Council directed staff to move forward with the Planning Commission’s recommendation to st udy 4,000 residential units, 35,000 square feet of non-residential area, and increased the minimum open space requirement from 12 acres to 14 acres which does not pre-commit the City to any action for adoption; and 1423

Resolution No. 2026-xx Page 3 of 6

WHEREAS, on October 29, 2025, pursuant t o the California Environmental Quality Act (CEQA) a notice of preparation (NOP) was issued and submitted to the State Clearinghouse where the FDCSP was assigned project number SCH No. 2025101405; and
WHEREAS, the NOP started the CEQA environmental review p rocess by notifying agencies, organizations, tribes, and interested parties about the City’s plans to prepare an Environmental Impact Report (EIR), and that the written public comment period began October 29, 2025, through December 5, 2025; and WHEREAS, on November 17, 2025, a public scoping meeting was held at City Hall to solicit comments and suggestions regarding the scope and content of the EIR and environmental issues and alternatives to be considered in the EIR; and WHEREAS, on March 16, 2026, the Public Review Draft Specific Plan was made available for a 30-day public comment period that concluded on April 15, 2026; and WHEREAS, on March 24, 26, and 30, 2026, Workshop No. 5 was held at various locations within the community to introduce the community to the draft specific plan, inform them of its components, and obtain their feedback on the draft document; and WHEREAS, on May 14, 2026, a notice of availability Draft Environmental Impact Report (DEIR) was published in a newspaper of general circulation which included a 48- day public review period that occurred from May 14, 2026, through July 1, 2026, and the DEIR were made available for public review pursuant to the requirements of the CEQA Guidelines; and
WHEREAS, on May 14, 2026, the DEIR was u ploaded to the City’s environmental notices webpage, provided to the County Clerk -recorder’s Office for posting, and submitted and uploaded to the State Clearinghouse (State Clearinghouse No. 2025101405); and
WHEREAS, on July 14, 2026, the Public Hearing Draft Specific Plan was made available on the project webpage which incorporates public comments received during the March 2026 public comment period for the FDCSP; and WHEREAS, on July 15, 2026, City staff held a focus group meeting with Costa Mesa Count ry Club golf course clubs to discuss the secondary access road contemplated in the FDCSP and outline the future process; and 1424

Resolution No. 2026-xx Page 4 of 6

WHEREAS, on July 16, 2026, the Airport Land Use Commission held a duly noticed public hearing and determined that the FDCSP was c onsistent with the Airport Environs Land Use Plan for John Wayne Airport; and
WHEREAS, on July 23, 2026, the City held a Community Q&A event to provide the community the opportunity to ask questions of staff in order to prepare the community for upcoming p ublic hearings with the Planning Commission and City Council; and
WHEREAS, all workshops and the Community Q&A were advertised through various means, including social media posts on Facebook, Instagram, Next Door, postcard mailers to 46,271 residential h omes, email notifications to interested parties, flyer distribution and A -frame signs placed outside of City facilities, announcements made at Planning Commission and City Council meetings, and newspaper advertisements; and
WHEREAS, on July 27, 2026, the Planning Commission held a study session on the FDCSP where it received a presentation for the introduction of the July 2026 Public Hearing Draft Specific Plan, associated Zoning Code, Zoning Map, Land Use Element and Land Use Map amendments and the Draft EIR, and after public comment the Planning Commission received and filed the report and provided feedback on the FDCSP; and
WHEREAS, the implementation of the FDCSP requires amendment s to Section 13-20, 13- 28, 13 -30, and Chapter V, A rticle 7, of the Zoning Code and add Chapter XVIII “Specific Plans” to Title 13 of the Zoning Code, and update the Zoning Map, The Land Use Element of the General Plan and Land Use Map for consistency with the FDCSP to rezone the FDC site and change the Land Use Designations; and WHEREAS, on August 10, 2026 , the Planning Commission conducted a duly noticed public hearing to discuss and consider the FDCSP project and proposed amendments to Zoning Code, Zoning Map, Land Use Element and Land Use Map, with all persons having the opportunity to speak for and against the proposal and recommended that the City Council certify the Final EIR, adopt the findings of fact and statement of overriding considerations, and the mitigation monitoring and reporting program; and
1425

Resolution No. 2026-xx Page 5 of 6

WHEREAS, the City Council conducted a public hearing on September 15, 2026, for the purpose of considering the FDCSP project; and
WHEREAS, the City Council has duly considered the totality of the record and all evidence submitted into the record, including public testimony and the evaluation and recommendations by staff and Planning Commission, presented at said hearings; and WHEREAS, notices of said public hearings were made at the time and in the manner required by law; and
WHEREAS, on September 15, 2026, the City Council adopted Resolution No. 2026-XX certifying the Final Environmental Impact Report, adopting Findings of Fact and Statement of Overriding Considerations and the Mitigation Monitoring and Reporting Program for the FDCSP project.

NOW, THEREFORE, THE CITY COUNCIL O F THE CITY OF COSTA MESA HEREBY RESOLVES as follows:

BE IT R ESOLVED that based on the evidence in the record the Land Use Element of the General Plan is hereby amended whereby strikethrough text denotes text being removed and underlined text denotes text being added as shown in Exhibit A and update to the Costa Mesa Land Use Map to change the land use designation of the FDC site located at 2501 Harbor Boulevard from “Multi -use Center” to refer to the 95- acre FDCSP area as “FDCSP” and change the remaini ng 15 acres of the 110-acre site to “Public/Institutional” as shown in Exhibit B.

BE IT FURTHER RESOLVED that the Costa Mesa City Council does hereby find and determine that adoption of this Resolution is expressly predicated upon the activity as described in the staff report and compliance with all applicable federal, S tate, and local laws. Any approval granted by this resolution shall be subject to review, modification, or revocation if there is a material change that occurs in the operation, or if the applicant fails to comply with any of the conditions of approval.

BE IT FURTHER RESOLVED that if any section, division, sentence, clause, phrase or portion of this resolution, or the document in the record in support of this resolution, are for any reason held to be invalid or unconstitutional by a decision of any court of competent jurisdiction, such decision shall not affect the validity of the remaining provisions.
1426

Resolution No. 2026-xx Page 6 of 6

PASSED AND ADOPTED this 15th day of September, 2026.

_____________________________
John Stephens, Mayor

ATTEST: APPROVED AS TO FORM:

________________________ _____________________________ Brenda Green, City Clerk Kimberly Hall Barlow, City Attorney

STATE OF CALIFORNIA )
COUNTY OF ORANGE ) ss

CITY OF COSTA MESA )

I, BRENDA GREEN, City Clerk of the City of Costa Mesa, DO HEREBY CERTIFY that the above and foregoing is the original of Resolution No. 202 6-xx and was duly passed and adopted by the City Council of the City of Costa Mesa at a r egular meeting held on the 15
th day of September, 2026, by the following roll call vote, to wit:

AYES: COUNCIL MEMBERS:

NOES: COUNCIL MEMBERS:

ABSENT: COUNCIL MEMBERS:

IN WITNESS WHEREOF, I have hereby set my hand and affixed the seal of t he City of Costa Mesa this 16
th day of September, 2026.

___________________________
Brenda Green, City Clerk

1427
C o s t a M e s a G e n e r a l P l a n | L U - 1
Chapter 2
Land Use Element
Introduction
The Land Use Element is the keystone element of the Costa Mesa General Plan. This Element unifies the other elements by providing an overall policy context for future physical change. Goals and policies define the community’s desired balance among social, environmental, and economic considerations, while maintaining those characteristics of the community that reinforce quality neighborhoods and viable business districts.

As Costa Mesa implements this General Plan, the City aspires to keep Costa Mesa an eclectic community with welcoming public spaces; attractive, walkable residential neighborhoods; exceptional parks and community services; and, a diverse economy that meets the needs of local residents while also attracting investment from regional and international markets.

Looking southeast over Costa Mesa’s Westside District.

Updated September 24, 2025 – General Plan Amendments:

GP 18-02, October 2, 2018 PGPA-24-01, July 15, 2025
GP 18-03, November 13, 2018 PGPA-24-02, August 5, 2025
GP 20-01, July 12, 2021 PCTY-25-04, November 4, 2025
ATTACHMENT 3

EXHIBIT A
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L a n d U s e E l e m e n t
LU - 2 | C o s t a M e s a G e n e r a l P l a n
Purpose
The Land Use Element shape s new physical development in the City and its sphere of influence and provides strategies to preserve, protect, and enhance established neighborhoods and districts consistent with the community’s vision. Through implementation of the Land Use Element, the City seeks to accomplish the following:
▪ Target new development opportunities at key locations while ensuring compatibility with established neighborhoods
▪ Increase homeownership opportunities in the City
▪ Establish and maintain an orderly pattern of development in the City ▪ Establish a land use classification system that implements land use policies ▪ Identify acceptable land uses and their general locations ▪ Promote consistency with standards for residential density and non-residential building intensity for existing and future development
▪ Accommodate a diversity of businesses to provide a solid tax base and ample employment opportunities, to attract visitor/tourist spending, and to hedge against periodic downturns in business sectors
▪ Provide open space, park areas, and public spaces where residents can enjoy passive and active recreational pursuits
▪ Ensure that new development is economically and environmentally sustainable The Land Use Element serves as the long -range planning guide for development in the City by indicating the location and extent of development to be allowed , in conjunction with any future housing opportunities identified within a sites inventory of the Housing Element. More than any other element, the Land Use Element will have a major impact on the form and character of Costa Mesa over the next 20 years. The Land Use Element applies to all properties within the corporate City limits, as well as properties within Costa Mesa’s sphere of influence, as established by the Orange County Local Agency Formation Commission (LAFCO). Together, these areas comprise the “planning area.” Figure LU -1 illustrates the planning area boundaries in Chapter 1, Introduction.
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L a n d U s e E l e m e n t
C o s t a M e s a G e n e r a l P l a n | LU - 3

Figure LU-1: Planning Area

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L a n d U s e E l e m e n t
LU - 4 | C o s t a M e s a G e n e r a l P l a n
Land Use Context-2015
The City has implemented strategic efforts over the years to provide a sustainable balance of residential, commercial, industrial, and public and institutional uses. Land use planning ensures that compatible and complementary uses are arranged in patterns that achieve efficiencies for projected growth, mobility, and commerce. This Land Use section describes the general location, type, and intensity of development throughout Costa Mesa in baseline year 2015.

Planning Context
Development History
Costa Mesa’s incorporated ci ty limits encompass approximately 10,143 acres, or approximately 15.8 square miles. The City lies on an elevated mesa landform less than one mile from the Pacific Ocean. The Spanish name Costa Mesa means coastal tableland. Like throughout much of Southern California, the earliest settlers were Native Americans who fished and farmed. Spanish land grants in the 1800s brought Europeans into the area, with additional growth facilitated by extension of the railroad and , later, discovery of oil. Until the 1950s, agriculture remained the most important economic component of Orange County, and Costa Mesa was home to thousands of acres of sweet pota to, corn, tomato, and strawberry crops. Remnants of this agricultural heritage remain s through 2015 on properties north of Interstate 405, amid the urban development of South Coast Plaza and the Segerstrom Center for the Arts.

During World War II, the U.S. military established a number of bases in Orange County, including the Santa Ana Army Air Base in Costa Mesa (now the Orange County Fairgrounds). In the years following World War II, the surge in population and demand for affordable ho using soared as returning veterans with new families looked to buy homes. The accelerated demand for suburban homes resulted in the conversion of thousands of agricultural land to large single-family housing tracts. Today, single family homes remain the predominant use in Costa Mesa.

From the 1970s through 1990s, Costa Mesa experienced significant growth in retail and office development, with development of regional shopping malls and high-rise office buildings north of I-405.

Investment in the industrial district south of West 19th Street included a substantial presence of surfing and similar action sports businesses, several of which have grown to be multi-million dollar international brands.

Established Land Uses (2015)
Costa Mesa is 99 percent built out, with the largest vacant parcels located in the North Costa Mesa area.

The two largest available properties are; the 31-acre Segerstrom Home Ranch and the 33-acre Sakioka Lot 2 site: both are currently in agriculture production , as of 2015 , and lie north of I -405. The North Costa Mesa Specific Plan regulates land uses on these properties. -4-
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L a n d U s e E l e m e n t
C o s t a M e s a G e n e r a l P l a n | LU - 5
Residential
As of 2015, approximately 46.2 percent of land in the planning area consisted of residential neighborhoods. Single-family neighborhoods cover approximately 30 percent of the land in the City .

There are a greater number of multi -family units ( 28,413 units) than single-family units (14,210 units).

Costa Mesa contains a number of distinct residential neighborhoods, including:
1) Eastside 5) North Costa Mesa/Mesa Del Mar/Halecrest Hall of Fame 2) Westside 6) Bristol/Paularino
3) Mesa Verde 7) South Coast/Wimbledon Village
4) College Park

Opportunity for new large-scale, single-family development is limited due to the built -out nature of the City’s residential areas and limited acreage of vacant land. The accelerated demand for suburban homes experienced in the mid-1950s and 1960s resulted in the conversion of thousands of agricultural acres to large single -family housing tracts. Single -family residential construction primarily consists of infill development, particularly in Eastside and Westside Costa Mesa. From 2012 to 2016, new small lo t subdivisions have been approved in multi-family zones in Eastside Costa Mesa. Medium- and High-Density Residential land uses account for 17 percent of the net acreage. Medium -Density Residential areas are distributed throughout the City. High-Density neighborhoods are clustered around Orange Coast College, along Mesa Verde Drive East, along Adams Avenue, around Vanguard University, in the northeast portion of the South Coast Metro area, in Downtown, and in the southeast portion of the City. In addition, the Housing Element identifies where future housing opportunities are appropriate throughout the City.

These sites are identified in the sites inventory of the Housing Element.

Mesa Verde residential neighborhood with a mixture of single -family and multi -family units, as well as parks and schools.
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L a n d U s e E l e m e n t
LU - 6 | C o s t a M e s a G e n e r a l P l a n
Because many residential units were constructed prior to City incorporation, particularly on the Eastside, existing residential densities in the Medium - and High-Density land use designations may exceed the currently allowed number of dwelling units per acre.

Commercial Uses
Costa Mesa contains seven commercial corridors: 1) South Coast Corridor 2) Bristol Street Corridor, 3) Harbor Boulevard Corridor, 4) East 17 th Street Corridor, 5) North Newport Boulevard Corridor, 6) South Newport Boulevard Corridor, and 7 ) West 19 th Street Corridor . Established commercial land uses encompass 9.6 percent of the land area, or 770 acres.

South Coast Plaza, located along the Bristol Street Corridor, contains the largest single concentration of retail uses in the City and accounts for 30 percent of the commercial square footage; the adjacent Town Center area accounts for nearly 20 percent of the area planned for office space throughout the City.

The Harbor Boulevard commercial corridor accounts for almost one-third of the City’s commercial land.

Businesses along the boulevard account for 40 percent of the City’s total retail sales, indicating that Harbor Boulevard’s trade area is of a regional scale. The major factor for this is the concentration of auto dealerships on Harbor Boulevard.

The 92-acre East 17 th Street commercial corridor contains a variety of commercial uses, including retail, service, and office. The area generally serves local residences and businesses.

Major retail centers other than South Coast Plaza include the CAMP, the LAB Anti-Mall, South Coast Collection (SOCO), Metro Pointe, and The Triangle. Each offers its own unique mix of shopping and dining experiences, as well as entertainment for the residents of Costa Mesa and Orange County at large.

Costa Mesa Downtown and The Triangle consists of a mixture of neighborhood and community-serving commercial uses.
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L a n d U s e E l e m e n t
C o s t a M e s a G e n e r a l P l a n | LU - 7
Industrial Uses
Established i ndustrial land use s encompass approximately 10.5 percent of land and are primarily concentrated in three major districts: The Westside District, the Airport Industrial/Business Park District, and the Harbor Gateway District.

The Westside District is the City’s oldest industrial area; it covers approximately 312 acres and represents

82.5 percent of land area designated for Light Industrial. The remaining 17.5 percent of Light Industrial uses are located in areas along Baker Street. Light Industrial uses consist of small manufacturing and service industries, as well as larger industrial operations.

The Westside District contains several large manufacturing firms and a high percentage of smaller industrial operations, frequently in multi-tenant structures. The Southwest District is one of Costa Mesa’s major employment centers, providing about one-fourth of all local manufacturing-related jobs.

The 390-acre Airport Industrial Area is a component of the much larger Irvine Business and Industrial Complex, which extends into the cities of Irvine and Tustin. This area is characterized by large parcels and wide landscaped building setbacks. Several firms have located their main or regional headquarters in the area and are often the single tenants in large structures.

Industrial space directly adjacent to John Wayne Airport provides opportunities to airport-related industries. Some of these properties include hangars with access to the runway.

The 323-acre Harbor Gateway District is an Industrial/Business Park located within the north part of Costa Mesa, northeast of I-405 and the Santa Ana River. This district is a part of a larger industrial area extending northward into the c ity of Santa Ana. The primary users of this industrial area are large single -tenant manufacturing firms and corporate offices. Included within this district is a 14.5-acre portion of the Home Ranch area property and the unique “lifestyle” South Coast Collection (SOCO) shopping center . SOCO includes over 300,000 square feet of design showrooms, creative studios, specialty retail and food stores, The Airport Industrial/ Business Park District includes a concentration of industrial, office, and commercial uses.
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L a n d U s e E l e m e n t
LU - 8 | C o s t a M e s a G e n e r a l P l a n
a weekly farmers’ market, and outdoor gathering spaces. The OC Mix, located in SOCO, is a marketplace for gourmet foods, coffee, wine, and over 30 owner-operated retail and specialty shops under one roof.

Public/Institutional, Golf Course, and Fairground Uses
The Public/Institutional designation applies to publicly and privately owned properties that provide recreation, open space, health, and educational opportunities, as well as uses that provide a service to the public.

A major land acquisition by the State in 1950 was responsible for the public ownership of the Costa Mesa Golf Course and Country Club and Fairview Park. In 1950, 750 acres were acquired for a State institution.

In 2015, the Fairview Developmental Center occupied 114 acres of the original 750-acre site. Acquisitions by the City and County have expanded this area to include the County’s Talbert Regional Park adjacent to the Santa Ana River and the City’s adjoining Canyon Park. See Table LU-1: Public and Institutional Land Acquisitions, for various public and institution uses government land acquisitions.

A total of 1, 263.4 acres are designated Public/Institutional. When combined with the Costa Mesa Golf Course and Orange County Fair & Event Center , these uses constitute 25 percent of the planning area.

This high percentage of land area designated for public and institutional use primarily reflects past and current use by various governmental agencies: The Santa Ana Army Air Base during World War II, the original 750-acre land acquisition by the State of California, and land acquisitions by the City and Orange County.

The golf course designation includes the Mesa Verde and Santa Ana Country Clubs (both private) and the City-owned Costa Mesa Golf Course and Country Club. The Fairgrounds property includes the 150 -acre Orange County Fair & Event Center, which is owned by t he 32nd District Agricultural Association, a State special-purpose district in the Division of Fairs and Expositions of the California Department of Food and Agriculture formed in 1949. Its board is appointed by the Governor of California.

Orange Coast College, founded in 1947, includes over 80 academic program areas and over 50 career and technical programs.
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C o s t a M e s a G e n e r a l P l a n | LU - 9
Table LU-1: Public and Institutional Land Acquisitions
Government Land
Acquisition Public and Institutional Uses
Santa Ana Army Air Base Orange Coast College, Costa Mesa High School, Davis Middle School, Presidio Elementary School, TeWinkle
Park, the National Guard Armory, Orange County
Fairgrounds, Jack R. Hammett Sports Complex, Civic
Center Park, City Hall, and Vanguard University
750-acre land (1950) Costa Mesa Golf Course and Country Club and Fairview Park, Fairview Developmental Center (see
Multi-Use Center designation)
City and County expansion Talbert Regional Park and Canyon Park

Table LU-2: Established Land Uses (2015) , summarizes the existing land uses in Costa Mesa that were surveyed in 2015, including number of acres, residential units, building square feet, hotel and motel rooms, and estimated employees.

Orange Coast College Vision 2020 Facilities Master Plan Costa Mesa is home to Orange Coast College, which is one of three colleges in the Coast Community College District. Orange Coast College is located at 2701 Fairview Road in the central portion of Costa Mesa. The District has been involved in preparing the Orange Coast College Vision 2020 Facilities Master Plan, which involves construction of new academic, administrative, residential , and parking facilities on the campus. In November 2015, the Coast Community College District Board of Trustees approved the Final Orange Coast College Vision 2020 Facilities Master Plan Program EIR.

The proposed Master Plan involves following improvements:
▪ Renovation of two existing buildings, totaling approximately 54,000 assignable square feet (ASF) and demolition of approximately 200,900 ASF.
▪ A new planetarium and an 818-bed student housing project would be added to the campus; the proposed project would also involve improvements to the pedestrian circulation network in and around campus, and the enhancement of open -space areas through landscape an d pedestrian plaza improvements.
▪ Reconfiguration of existing parking lots and vehicular entryways, and the addition of a parking structure in the Adams Avenue parking lot on campus.
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LU - 10 | C o s t a M e s a G e n e r a l P l a n

Table LU-2: Established Land Uses (2015)
Land Use Net
Acres1
% of
Acres
Residential
Units Population Building Square
Feet
Lodging
Rooms Employees
Single-Family 2,314 28.8 14,210 39,508 -- -- --
Multi-Family 1,402 17.4 28,413 71,032 -- -- 100
Office 332 4.1 -- 7,224,000 -- 24,000
Commercial 770 9.6 -- 11,403,000 -- 23,400
Lodging:

Motel/Hotel 60 0.8 -- -- Motel: 2,272
Hotel: 1,877 1,400
Industrial 841 10.5 -- 13,087,000 -- 27,300
Public Facilities/
Institutional 491 6.1 -- -- -- 6,2005
Schools/Colleges 525 6.5 -- -- -- 4,300
Golf 553 6.9 -- -- -- 100
Parks/Recreation 592 7.4 -- -- -- --2
Agriculture 72 0.9 -- -- -- 200
Other4 70 0.9 -- 555,000 -- 300
Vacant Lands 20 0.3 -- -- -- --
Total 8,042 100.0% 42,623 110,540 32,269,000 4,149 87,3003 Sources: City of Costa Mesa, Stantec, and MIG, 2015.

Note:

1. Net acres includes all private property land areas for the entire Planning Area, excluding all public right-of-way.

2. Park employment is counted under Public Facilities

3. Employees is calculated using building square footage and employment generation rates by land use category. Center for Demographic Research, California State University, Fullerton identifies 87,097 jobs for 2015 based on 2014 projections.

4. Other land uses refers to religious institutions, utilities, railroad properties, and other classifications that are not classified under the existing land use categories.

5. Refer to the Multi-Use Center discussion for the Fairview Developmental Center site.

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C o s t a M e s a G e n e r a l P l a n | LU - 11
Table LU-3: Land Use Designations (2015)
Land Use Designations Residential
Density Floor-Area Ratio Acres
Developed
Acres
Undeveloped
Net
Acres
% of
Acres
Residential*
Low-Density Residential <8 du/ac
N/A
2,087.4 0.8 2,088.2 25.9%
Medium-Density Residential <12 du/ac 858.1 1.1 859.1 10.7% High-Density Residential1,2 <20 du/ac 866.12 2.912 869.03 10.8% Non-Residential*
Commercial-Residential <17.4 du/ac

0.20/High Traffic

0.30/Moderate Traffic

0.40/Low Traffic

47.9 0.0 47.9 0.6%
Neighborhood Commercial <20 du/ac

0.15/High Traffic

0.25/Moderate Traffic

0.35/Low Traffic

0.75/Very Low Traffic

40.3 0.2 40.5 0.5%
General Commercial <20 du/ac

0.20/High Traffic

0.30/Moderate Traffic

0.40/Low Traffic

0.75/Very Low Traffic
599.82 8.5 608.32 7.5%
Commercial Center3, <20 du/ac

0.25/High Traffic

0.35/Moderate Traffic

0.45/Low Traffic

0.75/Very Low Traffic
117.18 0.3 117.48 1.5%
Urban Center Commercial3 20 to 80 du/ac N/A5 59.74 66.6 126.34 1.6% Cultural Arts Center4 Varies4 1.774 57.3 0.0 57.3 0.7%
Regional Commercial <20 du/ac 0.652/0.894 147.9 0.0 147.9 1.8% Industrial Park <20 du/ac

0.20/High Traffic

0.30/Moderate Traffic

0.40/Low Traffic

0.75/Very Low Traffic
630.13 2.4 632.53 7,9%
Light Industrial6 <20 du/ac

0.15/High Traffic

0.25/Moderate Traffic

0.35/Low Traffic

0.75/Very Low Traffic
374.2 4.0 378.1 4.7%
Public and Institutional -- 0.25 1,263.2 0.3 1,263.4 15.7 Golf Course -- <0.01 553.7 0.0 553.7 6.9%
Fairgrounds -- <0.10 150.0 0.0 150.0 1.9%
Multi-Use Center 15 to 25 du/ac 0.25 102.6 0.0 102.6 1.3% Totals 7,955.6 87.1 8,042.4 100%
Notes: * Residential density may exceed those identified within Table LU-3 to accommodate the density of sites identified as housing opportunity sites within the sites inventory of the Housing Element.

1. Within the Medium and High Density Residential designation, existing residential units legally built in excess of the dwelling units per acre standard may be rebuilt at the same higher density subject to other zoning code standards. The allowable density or number of units to be redeveloped would be limited to the 1990 General Plan density with a 25% incentive bonus for Medium-Density or a 50% incentive bonus for High Density or the existing number of units, whichever is less.

2. See High Density Residential text regarding areas in North Costa Mesa where the density allowance exceeds 20 units per acre. Site Specific Density of 20.4 du/acre approved for 1.86-acre 38 unit project at 1957 Newport Blvd. and 390 Ford Road.

3. See Commercial Center, Regional Commercial, and Urban Center Commercial text for site specific density and FAR.

4. See text for Mixed-Use Development and Cultural Arts Center provisions for additional discussion.

5. Varies, depends on development agreement for site.

PGPA-24-02, Adopted August 5, 2025
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Jobs/Housing Relationship
The variety and distribution of land uses in Costa Mesa enable people to live near their jobs, to shop within a reasonable distance from their homes or work, to use the City’s parks and recreational facilities, and to carry out other daily activities conveniently. Information from the 2010 Census indicates that 32 percent of residents work in the City. Fifty-one percent work within 20 minutes of their homes. The City recognizes the importance of providing both job and housing opportunities to reduce vehicle trips and overall, create a higher quality of life.

Table LU-4: Housing, Population, and Employment, presents historical data for Costa Mesa’s population, number of housing units, and employment opportunities, and includes projections to the year 2040. The table is based upon OCP-2015 Projections and data from the U.S Census.

Table LU-4: Housing, Population, and Employment
Year 20001 20102 20153 20203 20404
Housing 40,406 40,104 42,496 43,484 54,503
Population 108,724 109,960 111,276 113,900 116,400
Employment 88,294 88,416 87,097 89,600 93,200
Sources: 1. 2000 U.S. Census; 2. 2010 U.S. Census and SCAG 2016-2040 Regional Growth Forecast by Jurisdiction Report. ; 3. Center for Demographic Research, California State University, Fullerton, 2014 and SCAG 2016 -2040 Regional Growth Forecast by Jurisdiction Report. ; 4. Center for Demographic Research, California State University, Fullerton, 2022 and SCAG 2016-2040 Regional Growth Forecast by Jurisdiction Report.

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Key Land Use Issues
Residential Neighborhood Compatibility
Early subdivisions in Costa Mesa established patterns that markedly affect the design of current developments. Prior to the City’s incorporation, residential development—particularly in the Eastside and Westside neighborhoods—consisted of subdivisions with long, narrow lots . As residential development occurred, construction on these narrow, deep lots often took the form of subdivisions usually consisting of a row of detached or attached residential units on one side of the parcel and the driveway access for the residential units on the opposite side.

In 2013, the Small Lot Ordinance was adopted to promote affordable ownership housing by providing more flexible development standards and maintenance mechanisms for underutilized multi -family residential lots within the densities allowed by the General Plan. The Small Lot Ordinance allowed new homeownership opportunities in the form of detached single-family residential development on small lots with a maximum of 15 dwelling units.

Promotion of Home Ownership
According to the 2010 Census data, Costa Mesa’s renter -occupied units consisted of 58 percent of the total occupied units, whereas owner-occupied units consisted of 42 percent of the total occupied units, a difference of nearly 16 percent. Most owner -occupied unit s consist of single -family homes and condominiums, and the majority of renter-occupied residences consist of apartments. The City strives to improve the balance of owner-occupied and renter-occupied units to create more stability in terms of property maintenance and residents’ social investment in their neighborhoods and the community.

Revitalization of Commercial Districts
Although most of the issues experienced with small parcels and narrow, deep parcels are related to residential development, several commercial districts face similar constraints. While large retail developments like the Triangle have resulted from lot consolidation, smaller commercial lots along Newport Boulevard and 19th Street, for example, pose challenges for new businesses due to substandard parking facilities. Along the east side of Newport Boulevard, many small parcels retain the or iginal residential structures that have been converted to commercial use. Additionally , along Newport Boulevard, north of 19th Street, commercial uses have more limited exposure and visibility due to the one- way traffic flow and wide separation from land uses to the west. Newport Boulevard’s one -way traffic flow, diversity of ownership patterns, and eclectic mix of uses contribute to its lack of unity and identity, which in turn makes it difficult to attract new development proposals and/or businesses. The City will need to continue t o monitor activity on Newport Boulevard , Harbor Boulevard, and other commercial districts with similar challenging circumstances to determine if additional adjustments to land use policy and zoning regulations are needed to incentivize reinvestment. -13-
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Live/Work Development in Industrial Areas
The Westside has long supported an intertwined mix of industrial, commercial, and residential uses.

Industrial uses have predominated in this southwest corner of the City, including many that once supported the marine industry. In 2005, the City adopted a mixed-use overlay zones within the Westside and SoBECA Urban Plans. The Urban Plans do not promote any major intensification of land uses. The emphasis is on improving the Urban Plan area by providing visual enhancement and encouragin g the development of live/work units or residential lots with the plan area , thereby revitalizing marginal properties and creating opportunities for home ownership. The objectives of the Urban Plans include:
▪ Encourage the construction of Live/Work Units that combine residential and nonresidential uses in the same unit without exceeding the development capacity of the General Plan transportation system.
▪ Attract more residents and merchants by allowing mixed -use development in the form of a live/work loft, which offers first-floor retail/office uses and upper story living spaces in the same unit.
▪ Encourage adaptive reuse of existing industrial or commercial structures, which would result in rehabilitated buildings with unique architecture and a wider array of complementary uses. ▪ Stimulate improvement in the Urban Plan area through well -designed and integrated urban residential development that is nontraditional in form and designed with flexible open floor plans and which complements the surrounding existing development. ▪ Meet demand for a new housing type to satisfy a diverse residential population comprised of artists, designers, craftspeople, professionals, and small-business entrepreneurs. ▪ Promote new type of urban housing that would be target-marketed to people seeking alternative housing choices in an industrial area. An urban loft would be an alternative to a traditional single- family residence, tract home, or small-lot subdivision.

Costa Mesa values the opportunities the Westside provides to support enterprising industry and entrepreneurs. Land use regulations need to be crafted in a way that furthers economic development and business support while allowing residential development in the right locations in the Westside.

Mixed-Use Districts
The Westside and South Bristol Entertainment and Cultural Arts (SoBECA) areas contain eclectic uses that have emerged organically. In other areas of Costa Mesa, including High Density Residential areas and the Harbor Mixed -Use Overlay District, the City encourages mixed-use urban environments that include purposeful combinations of entertainment, retail, office, hospitality , and residential uses . Mixed-use development creates a productive use of space th at adds vitality to urban areas and conserves land resources by allowing for shared parking and public spaces. -14-
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Airport Considerations
Both the Federal Aviation Administration (FAA) and the Airport Land Use Commission for Orange County have concern for the safety of air navigation around John Wayne Airport. Under Part 77 of t he Federal Aviation Regulations (FAR), the FAA requires notice of proposed construction in excess of certain heights which may affect the safety of aircraft operations. The authority of the FAA in these matters extends only as far as is suing a notice of hazard to air navigation; the FAA does not have jurisdictio n to prohibit construction. The issuance of a hazard notice, however, may adversely affect the ability of a developer to obtain financing and insurance. The FAA standard that is of most concern in Costa Mesa is the horizontal surface around John Wayne Airport. This surface is 206 feet above mean sea level and extends nearly two miles from the airport.

The South Coast Plaza Town Center Master Plan (the area east of Bristol Street and north of the I -405) was approved subject to the condition that building height be limited to that specified by FAR Part 77 unless evidence is presented that the structure will not pose a hazard to air navigation nor interfere with instrument guidance systems. Evidence may be in the form of an FAA determination of no hazard. A number of Town Center structures and proposed mid-rise and high-rise residential buildings have received City approval although they encroach beyond the established horizontal surface elevation. In all cases obstruction lighting was required and , in some cases, minor adjustments to seldom-used flight patterns were necessitated, but the safety of aircraft operations in the airport vicinity has not been compromised.

The horizontal surface established by the FAA places restrictions on future development proposals similar in scale to the Town Center buildings. These developments will also be required to provide mitigation for potential hazards to air safety. The California Public Utilities Code prov ides for creation of countywide commissions to work towards achieving compatible land uses in the vicinity of airports. Commissions are required to formulate comprehensive land use plans which may include acceptable uses, height restrictions, and other building standards, such as noise insulation. The Airport Land Use Commission for Orange County (ALUC) has established a planning area surrounding John Wayne Airport which sets forth standards for acceptable land uses and provides for review of development plans for properties within its planning area. The Airport Environs Land Use Plan (AELUP), adopted by the Airport Land Use Commission, specifies acceptable uses proximate to the airport. These are defined as uses that will not subject people to adverse noise impacts, will not concentrate people in areas with high potential for aircraft accidents, and will not adversely affect navigable airspace or aircraft operations.

The AELUP for Heliports establishes regulations and restrictions for the siting of heliports and helipads/helistops. The purpose of the AELUP for Heliports is to protect the public from the adverse effects of aircraft noise by ensuring that heliports/helip ads are sited in areas of compatible land use. A heliport is a small airport suitable only for use by helicopters, typically containing one or more helipads.

A helipad or helistop is a designated area, including any buildings or facilities, intended to be used for the landing and takeoff of helicopters. Helipads/helistops may or may not be located within heliports. -15-
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Refueling and overnight maintenance of helicopters are permitted on heliports but prohibited on helipads/helistops.

The City will ensure that each applicant seeking a conditional use p ermit or similar approval for the construction or operation of a heliport or helistop complies fully with the State permit procedure provided by law and with all conditions of approval imposed or recommended by the FAA, by the Airport Land Use Commission for Orange County (ALUC), and by Caltrans/Division of Aeronautics. This requirement shall be in addition to all other City development requirements.

The City will also ensure that development proposals including the construction or alteration of a structure more than 200 feet above ground level, reference North American Vertical Datum 1988 (NAV88), must fully comply with procedures provided by Federal and State law, including with the referral requirements of the ALUC, and filing a Notice of Construction and Alteration (Form7460-I). This requirement shall be in addition to all other City development requirements.

Land Availability
As of 2015, of the 8,042 net acres in the City of Costa Mesa, only 87.1 acres—or 1.1 percent—were either vacant or support agricultural production. The agricultural uses are temporary, as the lands are entitled for development by the North Costa Mesa Specific Plan. Thus, new development will take the form of infill development, particularly on underutilized sites. The primary challenge for land use planning will be to determine the best use and development approach for remaining infill properties. A second challenge will be to guide re-use of aging commercial properties for long-term community and property owner benefit.

Sustainable Development Practices
Costa Mesa residents recognize the relationship between the use of resources to fuel a vibrant community (energy, water, air, and land) and unsustainable energy consumption can have long-term environmental consequences. Both the f ederal and State governments have established laws aimed at environmental protection and enhancement, and many of these regulations are being implemented through development practices that are far more sustainable than practices of a generation ago. The Orange County region historically has had an imbalance of land uses (availability of high paying jobs, but shortfall of affordable housing1) and roadway infrastructure primarily dedicated to the automobile.

These historic al development patterns an d practices have adversely affected Costa Mesa in terms of traffic congestion, high housing costs, increased air pollution, and disproportional impacts on the young, elderly, and disabled. While many laws require the City to adopt new ways of planning and conducting

1 The New Economy and Jobs/Housing Balance in Southern California. Southern California Association of Governments, April 2001.
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day-to-day operations—such as the Global Warming Solutions Act of 2006 (AB 32) and Executive Order S- 3-052—the City has broad latitude to establish local procedures and practices for addressing sustainability.

2 The Global Warming Solutions Act of 2006 (AB 32) and Executive Order S -3-05 set a target to reduce California’s greenhouse gas emissions to 1990 levels by year 2020 and by 80 percent below the 1990 levels by year 2050. -17-
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Land Use Plan
The Land Use P olicy Map (Figure LU -3) presents a pictorial representation of the land use and development policies set forth in this element. The colored land use designations indicate the type and nature of development allowed on all properties within the City of Costa Mesa and its sphere of influence.

The map shows 16 15 land use designations , Specific Plan s and six overlays that largely reflect lon g- established land use patterns and development intensities, with the overlays indicating where targeted efforts are planned to encourage reuse and revitalization. The City will use the land use designation descriptions and the trip budget limitations described below—together with the Land Use Element Goals, Objectives, and Policies —to evaluate proposed development and land use projects. General Plan users are advised to refer to all components when evaluating proposed development and improvement projects.

Density/Intensity and Trip Budgets
Density and intensity are quantitative measures used to describe how much development may occur on a property. The City will use both density/intensity and the trip budget metric to determine the carrying capacity of each individual property or group of properties.

Density
The term density applies to residential uses and refers to the development and population capacity of residential land. Density is described in terms of dwelling units per acre of land (du/ac).

Floor-area Ratio
For nonresidential land use categories, the term intensity is used. Development intensity refers to the amount of development on a parcel of land or lot based on building characteristics such as building height, bulk, floor-area ratio, and/or percent of lot coverage. The development intensity standard used for most non-residential development is floor-area ratio (FAR), which is the ratio of the total gross floor area of all buildings on a lot to the total area of the lot. For example, a 21,780-square-foot building on a 4 3,560- square-foot lot (one acre) yields an FAR of 0.50. A 0.50 FAR allows a single -story building, which covers half the lot, or a two-story building with reduced lot coverage. Figure LU-2 illustrates an example of density and FAR.

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The determination of development density or intensity at which a proposed project can occur is a function of: 1) General Plan policies intended to maximize public safety, achieve high -quality site planning and design, retain significant natural resources, and ensure compatibility between uses; and 2) development standards contained in the Zoning Code, public works standards, and other regulations.

Trip Budgets
Building intensity can also be measured by the traffic impacts generated by a particular development.

Because of the potential for significant traffic generation from major site developments, trip budgets are established to regulate development in terms of both building intensities and trip generation. Proposed development intensity with traffic generation allows the allocation of development based on current and planned roadway improvements and capacity.

The trip budget is expressed in terms of morning ( A.M.) and afternoon ( P.M.) peak-hour traffic volumes.

The trip budget for each of the major land use designations is based upon the land use trip rates and FAR standard used in the Costa Mesa Traffic Model.

The allowable FAR and trip budget are applied on a project-planning rather than parcel-specific basis. This approach allows for consideration of multi -phased or multi-lot projects as a whole development rather than individual pieces of the whole. Graduated FAR standards divide nonresidential uses into four broad Figure LU-2: Density and Floor-area Ratio
(FAR)

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categories based upon traffic generation characteristics, as shown in Table LU-5: Nonresidential Maximum Floor-area Ratios.

Trip Budget Transfers
The trip budgets established at the Traffic Analysis Zone (TAZ)3 level in the Costa Mesa Traffic Model can be combined or transferred between TAZs in a specified area of the City and under certain conditions to account for large planned developments which contain multiple TAZs. Likewise, trips can be combined or transferred between individual parcels within single TAZs. Combinations and/or transfers shall only be allowed for projects which meet the following conditions:
▪ The combination and/or transfer of trips shall only be allowed in the area of the City that is north of I-405 and east of Harbor Boulevard, and shall be limited to parcels within a one-mile radius of each other.
▪ Trip budget transfers shall be evaluated in the review and approval of a planned development or master plan projects. Sufficient conditions of approval shall be applied to the master plan or development plan to ensure long-range control over subsequent phases of development. ▪ The combination and/or transfer of trips shall not result in any greater impacts on the surrounding circulation system than would occur if each Traffic Analysis Zone was developed independently. ▪ For the combination and/or transfer of trips between TAZs, such combination and/or transfer of trips shall not exceed the total trip budget of all parcels involved if each were developed independently according to the floor-area ratio and trip generation rates provided herein. ▪ The combination and/or transfer of trips shall not allow development intensities which result in abrupt changes in scale or intensity within the project or between the project and surrounding land uses.
▪ Approval of the master plan or development plan shall be conditioned to ensure compliance with the above criteria and to preclude future over -development on portions of the project or properties from which trips were transferred.
▪ Trip budget transfers shall be recorded against the properties.

3 Traffic analysis zones (TAZs) are the basic geographic unit for inventorying demographic data and land use within a study area.
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Table LU-5: Nonresidential Maximum Floor-Area Ratios
Land Use
Traffic Generation Characteristics
Very Low4 Low3 Moderate2 High1
Commercial Residential NA 0.40 0.30 0.20
Neighborhood Commercial 0.75 0.35 0.25 0.15
General Commercial 0.75 0.40 0.30 0.20
Commercial Center 0.75 0.45 0.35 0.25
Regional Commercial5 -- -- 0.652/0.89 --
Urban Center Commercial5 -- 0.60 0.50 --
Multi-Use Center 0.25 for public/institutional uses
Light Industry 0.75 0.35 0.25 0.15
Industrial Park 0.75 0.40 0.30 0.20
Public/Semi-Public 0.25 and 0.01 for golf courses
Fairgrounds 0.10
Notes:

1. For commercial designations, high traffic uses generate more than 75 daily trip ends per 1,000 square feet of gross floor area. For industrial designations, high traffic uses generate more than 15 daily trip ends per 1,000 square feet of gross floor area.

2. For commercial designations, moderate traffic uses generate between 20 and 75 daily trip ends per 1,000 square feet of gross floor area. For industrial designations, moderate traffic uses generate between 8 and 15 daily trip ends per 1,000 square feet of gross floor area.

3. For commercial designations, low traffic uses generate between three and 20 daily trip ends per 1,000 square feet of gross floor area. For industrial designations, low traffic uses generate between three and eight daily trip ends per 1,000 square feet of gross floor area.

4. For commercial and industrial designations, very low traffic uses generate less than three daily trip ends per 1,000 square feet of gross floor area.

5. Maximum FAR standards in the Regional Commercial and Urban Center Commercial designations shall be further limited by the maximum A.M. peak hour and P.M. peak hour trip budget as established in the General Plan, North Costa Mesa Specific Plan and One Metro West Specific Plan, as applicable.

6. Site-specific FAR standards are separately established for the Home Ranch site, LA Times site and One Metro West Specific Plan.

7. This table does not specify FAR standards as allowed in mixed-use overlay zones.

8. The FAR standards related to trip generation may be modified to accommodate the residential site capacity, or density, of sites identified as housing opportunity sites within the sites inventory of the Housing Element, but still apply to a commercial component of a development project.

Land Use Designations
The Land Use Policy Map (Figure LU -3) graphically represents General Plan goals and policies. The following land use designations correspond to the categories shown on the Land Use Policy Map. See Table 6: Land Use Density and Intensity Summary, for a summary of the land use residential densities and commercial intensities. The Land Use Element contains 16 15 land use designations, Specific Plans, and six overlays as follows.

Residential Designations
Costa Mesa's residential designations are divided into Low -Density, Medium-Density, and High-Density Residential.
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Low-Density Residential
Low-Density Residential areas are intended to accommodate detached single-family residences. Other housing types include attached housing that provide a greater portion of recreation or open space than typically fou nd in multi -family developments and clustered housing which affords the retention of significant open space. Low -Density Residential areas are intended to accommodate outdoor living activities (front yards and backyards) in open space adjacent to dwellings. To avoid land use conflicts, these areas should be located away from or protec ted from the more intense non residential areas and major travel corridors.

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General Plan Amendments:

GP 18-02, Adopted Oct. 2, 2018
GP 18-03, Adopted Nov. 13, 2018
GP 20-01, Adopted Jul. 20, 2021
PGPA-24-01, Adopted July 15, 2025
PGPA-24-02, Adopted August 5, 2025

Figure LU-3: Land Use Policy Map

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Table LU-6: Land Use Density and Intensity Summary
Land Use Designations
Maximum Density Maximum Intensity
Maximum
Units
Dwelling Units
per Acre (du/ac)
Persons per
Acre (p/ac)
Floor-Area Ratio
(FAR)
Employees per
Acre (e/ac)
Residential*
Low-Density Residential -- 8 du/ac 26 p/ac -- --
Medium-Density Residential -- 12 du/ac 38 p/ac -- --
High-Density Residential8,9 -- 20 du/ac 50 p/ac -- --
Non-Residential or Multi-Use*
Commercial-Residential -- 12 to 17.4 du/ac 40 p/ac 0.20 to 0.40 FAR 27 e/ac Neighborhood Commercial -- -- 50 p/ac 0.15 to 0.75 FAR 27 e/ac General Commercial -- -- 50 p/ac 0.20 to 0.75 FAR 27 e/ac Commercial Center3,4 -- -- 50 p/ac 0.25 to 0.75 FAR 27 e/ac Urban Center Commercial2 660 20 du/ac
80 du/ac 50 to 210 p/ac 0.48 to 0.79 FAR 27 e/ac
Cultural Arts Center2 535 -- 25 p/ac 1.77 FAR 275 e/ac
Regional Commercial5,6 -- 50 p/ac 0.652 to 0.89 FAR 53 p/ac Industrial Park -- -- 50 p/ac 0.20 to 0.75 FAR 58 e/ac
Light Industrial -- -- 50 p/ac 0.15 to 0.75 FAR 58 e/ac Public and Institutional -- -- -- 0.25 FAR 44 e/ac
Golf Course -- -- -- 0.01 FAR --
Fairgrounds -- -- -- 0.10 FAR 14 e/ac
Multi-Use Center7 582 6 du/ ac
40 du/ac 110 p/ac 0.25 FAR 4 to 15 e/ac
Fairview Developmental
Center Specific Plan 4,000 30 to 65 du/ac 105 p/ac 0.40 FAR 0.77 e/ac Overlays and Urban Plans*
Residential Incentive Overlay -- 30 du/acre 82 p/acre N/A N/A SoBECA Mixed-Use Overlay1 450 40 du/ac 110 p/ac 1.00/1.25 FAR 27 to 44 e/ac Harbor Mixed-Use Overlay1 20 du/ac 55 p/ac 1.00/1.25 FAR 27 to 44 e/ac Westside Urban Plans1 -- 20 du/ac 55 p/ac 1.00/1.25 FAR 27 to 44 e/ac Notes: * The maximum density may exceed those identified within Table LU-6 to accommodate the density of sites identified within the sites inventory of the Housing Element. FAR may also be modified to realize the site capacity identified within the sites inventory.

1. Increase in FAR from 1.00 to 1.25 may be allowed for mixed-use plans exhibiting design excellence.

2. Refer to the North Costa Mesa Specific Plan for detailed density/intensity and trip budgets for specific sites.

3. The Home Ranch site has a site-specific FAR of 0.64 for office development; residential development is not permitted due to the site-specific FAR.

4. For the LA Times site, 0.54 FAR applies to commercial development and 0.64 applies to office development.

5. Residential development is not permitted due to the site-specific FARs.

6. South Coast Plaza, west of Bear Street has a 0.89 FAR and east of Bear Street has a 0.652 FAR.

7. Of the 582 units, 332 would be designated at 40 du/ac that may be allowed at the Shannon Mountain’s site within the Fairview Development Center.

8.7. The 38-unit residential project at 1957 Newport Blvd. and 390 Ford Road has a Site Specific Density of 20.4 du/acre.

9.8. The One Metro West Specific Plan has a site-specific FAR of 2.22 and density of 80 dwelling units per acre. Refer to Specific Plan text for further information.
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Costa Mesa contains seven distinct residential neighborhoods: 1) Eastside, 2) Westside, 3) Mesa Verde, 4) College Park, 5) North Costa Mesa/Mesa Del Mar/Halecrest Hall of Fame, 6) Bristol/Paularino, and 7) South Coast/Wimbledon Village. These existing, stable single-family neighborhoods should be preserved and maintained. The establishment of attached or clustered housing through the planned development concept can be allowed in appropriate Low -Density Residential areas as a means to encourage the consolidation of parcels or to make more efficient use of larger parcels.

Nonresidential uses that complement and serve the surrounding residential neighborhood are also appropriate within this designation. These uses typically include schools, parks, religious institutions , libraries, and other public facilities.

Medium-Density Residential
The Medium-Density Residential designation is intended to support single-and multi-family developments with a density of up to 12 units to the acre. The 12 units to the acre standard can be exceeded for legal, nonconforming Medium-Density Residential lots between 6,000 and 7,260 square feet in size that existed as of March 16, 1992, or any sites identified as a housing opportunity site in the sites inventory of the Housing Element.

The 12 dwelling units per acre standard is exceeded by approximately 53 percent of the existing Medium- Density development. Existing nonconforming units that are voluntarily demolished may be rebuilt to the same existing density, subject to other standards of the zoning code and the following: The allowable density or number of units to be redeveloped is limited to the General Plan density plus a 25 percent density incentive bonus or the existing number of units, whichever is less. Because of the location and intensity of development, Medium -Density Residential areas are also appropriate for quasi -residential uses such as convalescent hospitals and private residential care . Schools, religious institutions, parks, libraries, and related public facilities are also appropriate.

Complementary commercial uses within this designation may be allowed in planned development projects, provided the commercial uses will have FARs that are the same as the Neighborhood Commercial land use designation.

High-Density Residential
Areas designated as High-Density Residential are intended for residential development with a density of up to 20 units to the acre with some exceptions , as described in this section , or any sites identified as a housing opportunity site in the sites inventory of the Housing Element. Density bonuses shall be granted by the City when a project is designed to provide housing for individuals and families with specialized requirements (e.g., senior citizens, disabled, very -low, low -income, and moderate income ho useholds with needs not sufficiently accommodated by conventional housing) or provide other facilities or land as required by State law. The City may also grant additional incentives or concessions pursuant to State law. -26-
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Sakioka Lot 2, a 41-acre parcel located in the Town Center area of the City adjacent to Anton Boulevard (Area 8 of the North Costa Mesa Specific Plan), is an identified opportunity site within the sites inventory of the Housing Element and its overall density limit is identified in the Housing Element.

The two-acre property at 580 Anton Boulevard in the Lakes Area (Area 5 of the North Costa Mesa Specific Plan) has a site -specific density of 125 units/acre. This equates to a maximum of 250 units on the site , with an approximate building height of 26 stories. Additionally, a resident-serving commercial/retail use component is permitted, provided that minimal traffic-generation characteristics of this retail component can be demonstrated in review and approval of a master plan. Additional development standards for this planned development are contained in the North Costa Mesa Specific Plan.

A three-acre property at 3350 Avenue of the Arts is located north of Anton Boulevard along the east side of Avenue of the Arts in The Lakes area (Area 5 of the North Costa Mesa Specific Plan). The following standards have been established: (1) A site-specific density of a maximum 44 units/acre for a mixed -use development comprised of a boutique hotel and high -rise residential building and (2) a maximum nonresidential mixed use FAR of 2.12 , which includes the hotel use and ancillary commercial uses.

However, subject to comparable traffic generation characteristics, t he North Costa Mesa Specific Plan contains provisions allowing development flexibility related to the maximum overall development of dwelling units, hotel rooms, and resident -serving retail/commercial uses. Additional development standards for this planned development, including maximum allowable building height and mix of dwelling units and hotel rooms, are contained in the North Costa Mesa Specific Plan.

In 2014, a site-specific density of 58 units/acre and site-specific building height of five and six stories were established for a 4.17 -acre site at 125 East Baker Street. The project featured a five -story, 240 -unit apartment building and six-story parking structure.

In 2015, a 224-unit apartment building on a 4.15-acre property at 2277 Harbor Boulevard was approved.

The approved project involved: (1) Change of the land use designation from General Commercial to High Density Residential; (2) site -specific base density of 40 du/acre with a development incentive for an additional 58 dwelling units, for an overall site -specific density of 54 du/acre; (3) site -specific building height for a five -level parking structure. Rezone R -14-04 from C1 (Local Business District) to PDR-HD (Planned Development Residential – High Density) was also approved. Based on a Settlement Agreement executed on June 21, 2018, the project was modified to maximum 200 units including nine very low - income units subject to a fifty-five year restrictive covenant.

In 2021, the City Council approved the One Metro West project which is a mixed -use development on a

15.23-acre property located at 1683 Sunflower Avenue. The approval included the following entitlements:
general plan amendment (GP-20-01), rezone (R-20-01), specific plan (SP-20-01), master plan (PA-19-19), and Tentative Tract Map No. 19015 (T-19-01). The land use plan for One Metro West depicts the following:
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including parking structures within a base building height of seven stories; one 25,000 square foot creative office building; 6,000 square feet of supporting special retail uses; a 1.5 acre open space; two off -site improvements that relate to the trail con nection to the Santa Ana River Trail and improvements to the south side of Sunflower Avenue north of the South Coast Collection retail center.

In order to encourage the development of additional residential ownership opportunities in the Westside, the City Council designated an overlay area by adoption of the Mesa West Residential Ownership urban plan. For existing developments that exceed 20 dwelling units per acre, the Mesa West Residential Ownership urban plan may allow redevelopment of residential projects to existing densities , provided that certain development standards are met for encouraging ownership housing.

In the High -Density Residential designation, existing non -conforming developments that are voluntarily destroyed may be rebuilt to the original density subject to other standards of the zoning code and the following: The allowable density or number of units to be redeveloped would be limited to the General Plan density plus a 50 percent density incentive bonus or the existing number of units, whichever is less.

High-density areas should be located in proximity to transportation routes, especially those served by public transit, and also within convenient distances to shopping and employment centers. Although proximity to the above uses and transportation routes often r esults in a residential development being subject to adverse impacts, High-Density Residential development can be less susceptible to impacts than lower densities if visual and acoustical shielding techniques are incorporated into the project.

In addition to the above locational preferences, viable high density development is also dependent upon site characteristics. A site should be of appropriate size and dimension before the higher densities within this designation are allowed.

Because of their location and intensity of development, High -Density Residential areas are also appropriate for quasi-residential uses (e.g., convalescent hospitals). Schools, religious institutions, parks, libraries, and related public facilities are also appropriate.

Complementary commercial uses within this designation may be allowed in planned development projects, provided that the commercial uses will have FARs that are the same as the Neighborhood Commercial land use designation.

Mixed-use development projects are intended to provide additional housing opportunities in the City by combining residential and nonresidential uses in an integrated development. Additionally, this type of development is inten ded to revitalize areas of the C ity (such as the Westside) without exceeding the capacity of the General Plan transportation system. Mixed -use developments shall be implemented through an adopted urban plan (such as the 19 West Urban Plan) , or an adopted Specific Plan, and shall be identified on the Zoning Map by designating either the R2 -HD and R-3 base zoning districts with the mixed-use overlay district , or by designating a site with “(SP)” . The mix of uses can occur in either a -28-
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vertical or horizontal design, up to four stories in height. Product types shall be identified in the applicable urban plan and may include live/work units and commercial/ residential units where the residential uses are located above or adjacent to the nonresidential component. Nonresidential uses may include office, retail, business services, personal service, public spaces and uses, and other community amenities. In conjunction with areas that are designated with the mixed-use zoning overlay district, the maximum FAR is 1.0. An increase to 1.25 FAR may be allowed for mixed -use plans exhibiting design excellence. In a mixed-use overlay district area, this FAR in cludes both residential and non residential components, and the maximum number of stories is four. The FAR shall not exceed 1.25 FAR for a commercial component of a development project that is proposed in conjunction with a residential development project on a housing opportunity site identified within the sites inventory of the Housing Element. The FAR and height shall be modified to realize the residential site capacity, or density, for housing opportunity sites.

Major high-density neighborhoods are clustered around Orange Coast College, along Mesa Verde Drive East, between Adams and Harbor, around Vanguard University, in the northeast portion of the South Coast Metro area, in the Downtown Redevelopment area, and in the southeast portion of the City.

Commercial Designations
Seven commercial land use designations are established. These designations vary in location and intensity to accommodate the full range of commercial activity present and desired in Costa Mesa. Development intensity potential is measured using FAR in relation to the amount of traffic expected (see Table LU-7, Commercial Floor -Area Ratio ). The density, FAR, height, and trip generation standards apply for commercial development projects but these standards may be modified to realize the residential site capacity, or density, for a residential development on a housing opportunity site identified within the sites inventory of the Housing Element.

Commercial-Residential
The Commercial-Residential designation is intended to be applied to a limited area on the eastside of Newport Boulevard between East 19th Street and Mesa Drive. It is the intent of this land use designation to allow a complementary
mix of commercial and residential zoning along Newport Boulevard. It is anticipated that individual parcels will be developed as either a commercial or residential use. A mix of both commercial and residential uses on one parcel should only be allowed as a Planned Development.

Residential development is encouraged, provided that certain development standards are met pursuant to the adopted Newport Boulevard Specific Plan. Residential density ranges from 12 units per acre to 17.4 units per acre , except where the Residential Overlay applies . It will be necessary to ensure adequate buffering between the residential development and non-residential uses.

Allowable floor area ratios are 0.20 for high-traffic-generating uses, 0.30 for moderate-traffic-generating uses, and 0.40 for low -traffic-generating uses, as shown on Table LU -7. Residential and non residential -29-
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uses may be integrated into a single development through the Planned Development process. Residential densities in planned development projects shall not exceed 17.4 units per acre pursuant to the development standards in the Newport Boulevard Specific Plan. Noncommercial uses would be subject to the same floor area standards as commercial uses in this designation.

Institutional uses are also appropriate in this designation, provided that land use compatibility and traffic issues have been addressed. Institutional uses would require discretionary approval.

Table LU-7: Commercial Floor-Area Ratio
Land Use
Traffic FAR
Very Low Low Moderate High
Commercial-Residential -- 0.40 0.30 0.20
Neighborhood Commercial 2 0.75 0.35 0.25 0.15
General Commercial 2 0.75 0.40 0.30 0.20
Commercial Center 1,2,3 0.75 0.45 0.35 0.30
Regional Commercial 0.652/0.890 FAR
Refer to Regional Commercial discussion
Urban Center Commercial

0.50 FAR for Retail, 0.60 FAR for Office, 0.79 FAR for
S.C. Metro Center. Refer to Urban Center Commercial
discussion and the North Costa Mesa Specific Plan for
additional discussion.

Cultural Arts Center

1.77 FAR. Refer to Cultural Arts Center discussion and
the North Costa Mesa Specific Plan for additional
discussion.

Notes:

1. Refer to Commercial Center discussion for site-specific FARs on certain properties.

2. With application of the mixed -use overlay district, the FAR may range from 1.0 to 1.25.

Refer to appropriate land use designation discussion.

3. Los Angeles Times Site has a 0.54 (commercial) to 0.64 (office) FAR.

Neighborhood Commercial
The Neighborhood Commercial designation is intended to serve convenience shopping and service needs of local residents. Appropriate uses include markets, drug stores, retail shops, financial institutions, service establishments, and support office uses. Restaurants, hotels , and motels may be appropriate if properly located, designed, and operated to avoid adverse impacts to surrounding uses. Since Neighborhood Commercial uses are intended to serve nearby residential neighborhoods, the uses permitted should be among the least intense of the commercial uses.

General Commercial
The General Commercial designation is intended to permit a wide range of commercial uses that serve both local and regional needs. These areas should have exposure and access to major transportation -30-
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routes since significant traffic can be generated. General Commercial areas should be insulated from the most sensitive land uses either through buffers of less-sensitive uses or on-site design features. The most intense commercial uses should be encouraged to locate on sites of adequate size to avoid compatibility issues with surrounding uses . Appropriate uses include those found in the Neighborhood Commercial designation, plus smaller retail stores, theaters, restaurants, hotels and motels, and automobile sales and service establishments.

In areas designated General Commercial, development typically will result in combinations of one - and two-story commercial buildings. Buildings in excess of two stories may be permitted in select zoning areas via discretionary approval where the additional height would not impact surrounding uses.

As complementary uses, residential and other noncommercial uses may be allowed through the Planned Development process. Residential densities in planned development projects shall not exceed 20 dwelling units per acre. Noncommercial uses would be subject to the same FAR standards as commercial uses.

Institutional uses are also appropriate in the General Commercial designation, provided that land use compatibility and traffic issues have been addressed. Institutional uses would require discretionary approval.

For a 4.4 -acre site at 1626/1640 Newport Boulevard, a site -specific FAR of 0.40 and trip budget of 186 A.M. peak hour trips and 281 P.M. peak hour trips was established. These two standards allowed the development of medical office uses or similar moderate -traffic-generating uses, provided that the site - specific trip budget is not exceeded.

Commercial Center
The Commercial Center designation is intended for large areas with a concentration of diverse or intense commercial uses serving local and regional needs. Appropriate uses include a wide variety and scale of retail stores, professional offices, restaurant s, hotels , and theaters. Intense service uses, such as automobile repair and service, should be discouraged.

Development within this designation is intended for a variety of intensities ranging from one - to four- story buildings. The allowable FARs are 0.25 for high -traffic-generating uses, 0.35 for moderate -traffic- generating uses, 0.45 for low -traffic-generating uses, and 0.75 for very -low-traffic-generating uses.

Because of the large service area, direct access to major transportation corridors is essential.

In conjunction with areas that are designated with the mixed -use zoning overlay district, the maximum FAR is 1.0. An increase to 1.25 FAR may be allowed for mixed -use plans exhibiting design excellence. In a mixed-use overlay district area, this FAR includes both residential and non-residential components, and the maximum number of stories is four.
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Mixed-use development projects are intended to provide additional housing opportunities in the City (such as the Westside) by combining residential and nonresidential uses in an integrated development.

Additionally, this type of development is inten ded to revitalize areas of the City without exceeding the capacity of the General Plan transportation system. Mixed -use developments shall be implemented through an adopted urban plan (such as the 19 West Urban Plan and Harbor Boulevard Mixed-Use Overlay), or through an adopted Specific Plan and shall be identified on the Zoning Map by designating either the CL, C1, and/or C2 base zoning districts with the mixed-use overlay district, or by designating a site as “(SP)” . The mix of uses can occur in either a vertical or horizontal design, up to four stories in height. This height limit may be increased to realize the development potential for sites identified within housing opportunity sites inventory of the Housing Element. Product types shall be identified in the applicable urban plan and may include live/work units and commercial/residential units where the residential uses are located above or adjacent to the nonresidential component. Nonresidential uses may include office, retail, business services, personal s ervice, public spaces and uses, and other community amenities.

Institutional uses are also appropriate in this commercial designation, provided that land use compatibility and traffic issues have been addressed. Institutional uses require discretionary approval.

As complementary uses, residential and other noncommercial uses may be allowed through the Planned Development process. Residential densities in planned development projects should not exceed 20 dwelling units per acre. The corresponding population density range is up to 50 persons per acre. A site- specific residential density of 40 du/ac was approved for 1901 Newport Boulevard. The corresponding density range for the project is 100 persons per acre.

A site-specific FAR of 0.70 and a site -specific density of 40 units/acre was established for the property located at 1901 Newport Boulevard, a 7.79-acre site located on the northwest corner of West 19th Street and Newport Boulevard. The General Plan amendment recognized the existing development intensity of the 1901 Newport Plaza commercial building (127,500 square feet) and allowed additional development of 145 multi-family units with a site-specific building height allowed for a five-level parking structure.

Segerstrom Home Ranch
The Segerstrom Home Ranch is a 93.34 -acre located at 3315 Fairview Road. It has a base land use designation of Commercial Center and is a part of the North Costa Mesa Specific Plan. In conjunction with approval of Home Ranch Alternative A, a site-specific FAR of 0.41 was established for the 17.2 -acre IKEA site. (IKEA is a large retail/warehouse use.) This property is located at the southeast corner of South Coast Drive and Harbor Boulevard. A maximum allowable FAR of 0.40 for office uses was established for the

14.5-acre Industrial Park parcel located to the north of South Coast Drive.

In 2016, a specific-site FAR allowed a maximum of 0.64 FAR on the 44-acre subarea of Segerstrom Home Ranch located south of South Coast Drive . Maxim um building height varies from two stories to five stories/75 feet within this subarea. The Planned Development Commercial zoning may allow mixed-use -32-
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development (i.e., housing as a complementary use). The established trip budgets for this subarea of Home Ranch is 1,860 A.M. and 1,788 P.M. See Table LU-7 and Figure LU-4. However, the parcel is identified as a housing opportunity site within the sites inventory of the Housing Element, and the density, including the resulting total number of units, of the parcel may be increased to align with the residential site capacity and deviate from the trip budget.

The North Costa Mesa Specific Plan provides additional FAR, building height, and trip budget information for Segerstrom Home Ranch (Area 1).
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* Building intensity shall not exceed maximum
allowable development set forth by the trip budget
in the North Costa Mesa Specific Plan, unless
reductions are needed to accommodate the site
capacity identified within the sites inventory of the
Housing Element.
* Building intensity shall not exceed maximum
allowable development set forth by the trip budget
in the North Costa Mesa Specific Plan, unless
modifications are needed to accommodate the
residential site capacity identified within the sites
inventory of the Housing Element.

Figure LU-4:

Segerstrom Home Ranch

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Table LU-8: Segerstrom Home Ranch
Categories Baseline
(2015) Segerstrom Home Ranch
Floor-Area Ratio
(FAR) N/A

0.64 Maximum trip budget for this subarea of Segerstrom Home Ranch is 1,860 A.M. and 1,788 P.M.

Building intensity shall not exceed maximum allowable
development set forth by the trip budget in the North
Costa Mesa Specific Plan , unless needed to
accommodate the residential site capacity identified
within the sites inventory of the Housing Element.

Building Square
Feet N/A 1,200,000
Los Angeles Times Site
The Los Angeles Times Site is a 24-acre site located at 1375 West Sunflower Avenue, near the intersection of Harbor Boulevard and South Coast Drive. The intent is to create opportunities for either office or commercial retail development at a strategic location. Office development is allowed at a maximum 0.64 FAR (up to 655,000 square feet office). Commercial/retail development is allowed at a maximum FAR of

0.54 (up to 553,000 square feet). Maximum allowable building height is five stories/75 feet. Although the Planned Development Commercial zoning may allow mixed -use development (i.e. , housing as a complementary use), housing is not permitted on this property due to its location. The maximum trip budget established for the Los Angeles Times site is 1,015 A.M. and 976 P.M. peak hour trips. See Table LU- 9 and Figure LU-5.

Table LU-9: Los Angeles Times Site
Categories Baseline
(2015) Los Angeles Times Site
Floor-Area Ratio
(FAR) N/A

0.64 FAR for office development

0.54 FAR for commercial/retail
Maximum trip budget is 1,015 A.M. and 976 P.M.

Building intensity shall not exceed maximum allowable
development set forth by the trip budget.

Building Square
Feet 374,000 655,000 sf for office development
553,000 sf for commercial/retail

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* No residential use is permitted.

Figure LU-5:

Los Angeles Times Site

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Regional Commercial
The Regional Commercial designation is intended to apply to large concentrated shopping centers of regional scale and importance. The intended uses within this designation include major department stores, specialty retail outlets, restaurants, offices, hotels, and other complementary uses.

Application of the Regional Commercial designation is limited to the existing South Coast Plaza sites. This includes the original 97-acre site between Bristol and Bear Street and the additional 18 -acre site located west of Bear Street. This designation and locational criteria recognizes the evolution of South Coast Plaza as a regionally significant retail trade center served by major regional transportation facilities and services.

The Costa Mesa General Plan assigns a trip budget for the original South Coast Plaza site of 1,166 A.M. peak hour trips and 5,036 P.M. peak hour trips. The trip budget for the site west of Bear Street is 293 A.M. peak hour trips and 1,264 P.M. peak hour trips.

Complementary residential uses within this designation are allowed through the Planned Development process. The maximum allowable residential density shall be 20 dwelling units per acre , unless a site is identified as a housing opportunity site within the sites inventory of the Housing Element, then the density shall be allowed to increase to the density specified therein . The trip budget for South Coast Plaza is identified in Table LU-10, and in the North Costa Mesa Specific Plan.

Table LU-10: Trip Budget for Regional Commercial
Area
Maximum
Square
Footage
Floor
Area
Ratio
A.M. Peak
Hour Trip
Budget
P.M. Peak Hour
Trip Budget
South Coast Plaza
West of Bear Street 690,350 0.890 293 1,264
South Coast Plaza
East of Bear Street 2,750,000 0.652 1,166 5,036
Metro Pointe 592,287 0.48 729 965

Urban Center Commercial
The Urban Center Commercial design ation is intended to allow high -intensity mixed -use commercial development within a limited area. Developments within this designation can range from one - and two- story office and retail buildings to mid - and high -rise buildings of four to approximately 25 stories, provided the maximum building height set forth in the North Costa Mesa Specific Plan is not exceeded.

Appropriate uses include offices, retail shops, restaurants, residential, and hotels.

For mixed-use projects that include separate or distinct components, the nonresidential FAR standard and the residential density standard shall apply to each of the respective components, not the entire project site. For mixed -use projects that do not include distinct elements or include mixed -use buildings, the -37-
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overall level of intensity shall be governed by the allowable nonresidential FAR and the maximum number of residential units identified in this designation for a specific project site. Developments shall also comply with the established trip budget standards and comply with the most restrictive standard.

Complementary residential uses within this designation may be allowed through the Planned Development zone process. The maximum allowable residential density within this designation shall be 20 dwelling units per acre, unless otherwise specified in the North Costa Mesa Specific Plan, or a higher density is allowed on sites identified as a housing opportunity site in the sites inventory of the Housing Element.

The Urban Center Commercial designation includes the following major developments:
▪ Automobile Club of Southern California
▪ Metro Pointe
▪ South Coast Metro Center/Experian
▪ Sakioka Lot 2 (as of 2015, unbuilt)
All of these four properties had development agreements with the City of Costa Mesa that vested maximum development square footages, floor area ratios, trip budgets, and allowed uses. Provided in Table LU-11: Urban Center Major Developments, is a summary of the various land use standards that apply to these major developments. Please refer to the North Costa Mesa Specific Plan for additional information related to these properties. See Figure LU-6 for Sakioka Lot 2 land use plan. -38-
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LU-6:

Sakioka Lot 2

28 or 90 DU/AC
* Building intensity shall not exceed maximum
allowable development set forth by the trip budget
in the North Costa Mesa Specific Plan, unless
modifications are needed to accommodate the site
capacity identified within the sites inventory of
the Housing Element.
660 minimum
(20 du/ac)
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Table LU-11: Urban Center Major Developments
Area Acres
Maximum Peak Hour Vehicle Trip Budget
North Costa
Mesa Specific
Plan Applies
Development
Agreement
Non-Residential
Building Sq.Ft./FAR
Allowable
Residential
Units
A.M. P.M.

Automobile
Club of
Southern
California1
43 967,000 sf

0.56 FAR 0 1,1902 1,5762 No
South Coast
Metro
Center/
Experian1

45 Residential Option:
1,335,386 sf

0.69 FAR
Non-Residential
Option:
1,546,180 sf

0.79 FAR
Residential
Option:
484 units
Residential
Option: 1,9312
Non-
Residential
Option: 1,8862
Residential
Option:
1,9762
Non-
Residential
Option:
1,9942
Yes
Sakioka Lot 21 33
Non-Residential:
863,000 sf

1.0 retail FAR

1.0 office FAR
Residential
Option:
660 units
1,0622 1,4072 Yes
Notes:

1. A development agreement specifies the maximum building square footage and floor area ratio, which is consistent with the North Costa Mesa Specific Plan and General Plan. However, the South Coast Metro Center/Experian plan area and Sakioka Lot 2 include sites identified as a housing opportunity site within the sites inventory of the Housing Element, and the FAR, residential units, trip generation, and heights may be modified to realize the site capacity identified within the sites inventory of the Housing Element.

2. Vehicle trips per hour
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Automobile Club of Southern California Processing Center This 39.2-acre site consists of two parcels and is located on the southwest corner of Sunflower Avenue and Fairview Road. The primary site contains 29.5 acres and is located west of Fairview Road, between South Coast Drive and Sunflower Avenue. The second parcel contains approximate ly 9.7 acres and is located across the adjacent flood control channel to the west, just north of South Coast Drive. As of 2000, the site was developed with 717,000 square feet of office and support service uses. An additional 250,000 square feet of development is allowed pursuant to a development agreement for a total of 967,000 square feet; the resultant maximum FAR is 0.56. Future construction will be developed in phases during the 30- year term of the agreement.

Metro Pointe
Metro Pointe includes two office building sites located north of South Coast Drive at its intersection with Greenbrook Drive and approximately 28.5 acres of land located south of South Coast Drive along the San Diego Freeway. A development agreement approv ed in 1994 addresses the site south of South Coast Drive. The development agreement vests the property owner with the ability to construct 592,287 square feet of office and commercial uses with a resultant floor area ratio of 0.48. This property is also located in the North Costa Mesa Specific Plan area.

South Coast Metro Center/Experian
The 44.72-acre South Coast Metro Center/Experian sites are located south of Anton Boulevard and east of Avenue of the Arts. Upon completion, the site will include nearly 1,546,180 square feet of office and commercial development. A site-specific FAR of 0.79 was established for the combined South Coast Metro Center and Experian sites.

In 2006, a site -specific residential density increase for a 4.86 -acre site portion of this development was approved as an optional development scenario for this property. The maximum density allowed is 100 units/acre with integrated ancillary retail uses. This equates to a maximum density of 100 units/acre, or a total of 484 high-rise units. The residential development option results in a corresponding decrease in the maximum allowable FAR and building square footages for non -residential buildings in orde r to be similar to the A.M. and P.M. trip budgets established for the South Coast Metro Center/Experian sites with strictly nonresidential development. In 2014, an alternative development option for 393 apartment units was approved. This scenario also results in decrease in trip budget. The North Costa Mesa Specific Plan provides further detail for these properties. Certain parcels within the South Coast Metro Center/Experian plan area include sites identified as a housing opportunity site within the sites inventory of the Housing Element. For these sites, the FAR, residential units, trip generation, and heights may be modified to realize the residential site capacity, or density, identified within the sites inventory of the Housing Element.

Sakioka Lot 2
The 33-acre Sakioka Lot 2 is located south and east of Anton Boulevard. This site is undeveloped except for farmhouses and farm operation facilities. Pursuant to a development agreement, the maximum -41-
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allowable building square footage is of 863,000 square feet . A maximum 1.0 FAR shall be applied for nonresidential development.

The maximum residential density shall be 28 dwelling units per acre for the residential compone nt of a mixed-use development (see “Mixed -Use” discussion in the Specific Plan) or a maximum of 80 dwelling units per acre if an independent parcel is developed as residential community including affordable housing (see “Affordable Housing/Density Bonus discussion in the Specific Plan).

Future development on Sakioka Lot 2 is subject to the trip budget limitation, applicable development standards of the PDC zone, and consistency with the both the North Costa Mesa Specific Plan and the General Plan. However, this site is identified as a housing opportunity site in the sites inventory of the Housing Element and the density, FAR, heights and trip budgets may be modified accordingly to achieve the site capacity identified within the sites inventory.

Cultural Arts Center
The Cultural Arts Center designation is applied to the 57.3 acres, including private streets, that comprise South Coast Plaza Town Center. This area is generally bounded by Sunflower Avenue to the north, Bristol Street to the west, Avenue of the Arts to the east, and the San Diego Freeway to the south. This designation is limited to this geographical area, and it is not intended to be applied to other locations in the City.

The Cultural Arts Center designation allows intensely developed mixed commercial and cultural uses within a limited area. The intended uses within this designation include mid - to high-rise offices, hotels, restaurants, retail, and cultural uses (theater, art museum or academy, etc.), as well as mid - to high-rise residential units in limited areas that are defined in the North Costa Mesa Specific Plan. It serves as the cultural center of the community and provides a focus to the arts-related uses, with the complement of nearby employment and shopping opportunities.

The overall allowable FAR standard for this designation is 1.77. Included in this FAR calculation is the land dedicated or reserved in 2000 for the Avenue of the Arts off -ramp and associated flood control channel improvements. The 1.77 FAR may be exceeded on individual parcels w ithin South Coast Plaza Town Center, provided that over the entire 54 -acre site the 1.77 FAR is not exceeded. Further delineation of the allocation within South Coast Plaza Town Center of the FAR and trip budget is provided in the North Costa Mesa Specific Plan.

In 2006, a high-rise residential development option for each of the three sub -areas in South Coast Plaza Town Center was approved. The maximum number of residential units allowed in the entire South Coast Plaza Town Center is 535 units. The high -rise residential development option is further detailed in the North Costa Mesa Specific Plan. As shown in Table LU-12, this scenario results in a corresponding decrease in the maximum allowable FAR and building square footages for non -residential buildings in order to maintain the A.M. and P.M. trip budgets established for the South Coast Plaza Town Center. The South -42-
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Coast Plaza Town Center plan area includes sites identified as a housing opportunity site within the sites inventory of the Housing Element, and the FAR, residential units, trip generation, and heights may be modified to realize the residential site capacity, or density, identified within the sites inventory of the Housing Element.

Table LU-12: Town Center Intensity*

Maximum Allowable Peak Hour Trip Budget
Nonresidential High-Rise
Residential
Units
A.M. P.M.

FAR Building
Square Footage
Residential Option 1.701 3,991,008 sf 535 5,123 6,632
Non-Residential Option 1.773,4 4,161,813 sf 80 5,180 6,632 Notes: * The FAR, residential units and trip budgets may be modified accordingly to realize the site capacity identified for the sites that are included as housing opportunity sites within the sites inventory of the Housing Element.

1. This maximum FAR may be increased to no more than 1.77 in direct relation to the decrease in the maximum number of high-rise residential units.

2. This maximum peak hour trip budget may be increased to no more than 5,180 A.M. peak hour trips in direct relation to the decrease in the maximum number of high-rise residential units.

3. This alternative includes the 80 high -rise residential units associated with the museum site in Segerstrom Center for the Arts; see North Costa Mesa Specific Plan.

4. This maximum FAR may not be increased if the 80 -unit residential component is not constructed; see North Costa Mesa Specific Plan.

Industrial Designations
Two industrial land use designations apply to over 1,000 acres. These designations accommodate a variety of industrial and compatible office uses, as well as limited and supportive commercial uses. Development intensity potential is measured using FAR in relation to the amount of traffic expected, as shown in Table LU-13: Industrial Floor -Area Ratio . The density, FAR, height, and trip generations may be modified accordingly to accommodate the residential site capacity, or density, for the housing opportunity sites identified within the sites inventory of the Housing Element.

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Table LU-13: Industrial Floor-Area Ratio

Note:

1. With an application of the mixed-use overlay district, the FAR may range from 1.0 to 1.25.

Refer to Mixed -Use discussion and Table LU -15: Overlay and Urban Plan Residential Density.

Light Industry
The Light Industry designation applies to areas intended for a variety of light and general industrial uses.

Uses are limited to small manufacturing and service industries, as well as larger industrial operations that can demonstrate design features or restricted operations that limit disruptions to surrounding uses .

Although the uses within Light Industry areas are intended to be less intense than those allowed in Industrial Parks, the frequent lack of a physical separation between Light Industry areas and residential development necessitates design features that limit disturbances between uses. Access to industrial areas should be provided in a manner that directs industrial traffic away from more sensitive uses.

Development within this designation would be characterized by a combination of one - and two -story buildings. Because of the location of Light Industry areas and their proximity to residential uses, taller buildings should be restricted to areas that will not disrupt the surrounding residential uses.

Certain c ommercial uses may be allowed , provided that the commercial use is determined to be complementary to the industrial area. Commercial recreational uses may also be appropriate under the same condition.

Institutional uses may also be appropriate, provided that land use compatibility and traffic issues have been addressed. Institutional uses would require discretionary review.

Combinations of residential, institutional , and commercial uses may be allowed through the Planned Development process. FARs and population densities for commercial projects would be similar to the Neighborhood Commercial land use designation. Residential densities in Planned Development projects are not to exceed 20 dwelling units per acre.

Mixed-use development projects in overlay zones are intended to provide additional housing opportunities in the City (such as the Westside) by combining residential and nonresidential uses in an integrated development. Additionally, this type of development is intended to revitalize areas of the City without exceeding the capacity of the General Plan transportation system. Mixed-use developments shall be implemented through an adopted urban plan (such as the 19 West and Mesa West Bluff Urban Plan) and will be identified on the Zoning Map by designating the MG base zoning district with the mixed -use Industrial Use1
Traffic FAR
Very Low Low Moderate High
Light Industry 0.75 0.35 0.25 0.15
Industrial Park 0.75 0.40 0.30 0.20
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overlay district. The mix of uses can occur in either a vertical or horizontal design, up to four stories in height. Product types will be identified in the applicable urban plans and may include live/work units and commercial/residential units where the residential uses are located above or adjacent to the nonresidential component. Nonresidential uses may include office, retail, busines s services, personal service, public spaces and uses, and other community amenities. Residential development may be allowed in conjunction with the mixed-use overlay district for Mesa West Bluff Urban Plan area at density that does not exceed 13 units per acre. The required Mesa West Bluff Urban Plan shall include development standards to ensure compatibility with surrounding land uses.

Industrial Park
The Industrial Park designation is intended to apply to large districts that contain a variety of industrial and compatible office and support commercial uses. Industrial parks are characterized by large parcels and landscaped setbacks that create a campus-like environment. Industrial parks must have proximity to freeways and other major transportation routes to provide the accessibility they require. An internal circulation system consisting of lesser highways is also necessary to accommodate the v ehicle demands created.

Industrial parks have major physical separations from areas designated for other uses to maintain their distinctiveness and avoid potential land use incompatibilities.

Development within this designation would consist of one- and two-story buildings. Additional height may be permitted when compatible with adjacent development and provided uses are consistent with other constraints, such as height limits and use restrictions within John Wayne Airport influence area , as identified in the Safety Element. The Industrial Park portion of the Home Ranch site may include buildings up to five stories in height near the center of the development. The North Costa Mesa Specific Plan provides specific building height information for the Segerstrom Home Ranch (Area 1).

Commercial uses may be allowed , provided that the use is determined to be complementary to the industrial area. Commercial recreational uses may also be appropriate under the same condition.

Institutional uses may also be appropriate , provided that land use compatibility and traffic issues have been addressed. Institutional uses will require discretionary approval.

Proposed i ndustrial development must be analyzed for potential significant impacts to air quality, aesthetics, land use, and other environmental issues.

Combinations of residential, institutional, and commercial uses may be allowed through the Planned Development process. FARs and population densities for commercial projects would be similar to the Neighborhood Commercial land use designation. Residential densities in planned development projects shall not exceed 20 dwelling units per acre. However, sites identified as housing opportunity sites within the sites inventory of the Housing Element shall be allowed to develop a project at the specified density within the Housing Element.
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Institutional and Open Space
Costa Mesa has thousands of acres of land set aside for public, semi-public, and open space type uses, all identified by one of these three land use designations: Public/Institutional, Golf Course, and Fairgrounds, and Multi-Use Center.

Public/Institutional
The Public/Institutional designation applies to both publicly and privately owned land that provides recreation, open space, health , and educational opportunities, as well as uses that provide a service to the public. Since this designation includes many different types of land uses, the Land Use Plan is labeled to identify the individual uses.

Areas included in this designation are park sites, health care facilities, educational institutions, religious facilities, fairgrounds, State Regional Emergency Operations Center, and public facilities. Since many of the uses are recreational and open space in nature, levels of building intensity are minimal.

Golf Course
Three golf courses are located within the City's planning area. Two of these, the Costa Mesa Golf Course and Mesa Verde Country Club, lie within City limits. Santa Ana Country Club is in the unincorporated area east of Newport Boulevard. Because of the large area devoted to open space, the building intensity for this designation is 0.01 FAR.

Fairgrounds
The Fairgrounds land use designation is applicable to only one property known as the Orange County Fair & Event Center (OCFEC) in the City of Costa Mesa. The Fairgrounds is a 150 -acre site located at 88 Fair Drive. This designation is intended to:
▪ Ensure continued development of the property as an integrated complex that is composed of recreational, agriculture-related educational institutions, open space, farmland, equestrian, and commercial uses; and
▪ Promote the continued and sustained use of the property for the annual Orange County Fair in recognition of its value as a regionally significant resource in the City of Costa Mesa.

Home to the annual Orange County Fair since 1949, the site is bounded by Arlington Drive (north boundary), Fair Drive (south), Fairview Road (west), and Newport Boulevard (east). Regional access is primarily provided to the site by State Route 55 at the i nterchanges of Fair Drive/Del Mar Avenue and 22nd Street/Victoria Stre et. Access from Interstate 405 , which is approximately one -mile north of the Fairgrounds, is provided via interchanges at Bristol Street, Fairview Road, and Harbor Boulevard. See Figure LU-7.
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Figure LU-7: Fairgrounds

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The site was formerly a portion of the Santa Ana Army Air Base, and in 1949 the California 32nd District Agricultural Association (DAA) acquired the property from the federal g overnment. Since that time, the annual Orange County Fair has occurred at this location. Through the years the 32 nd DAA has expanded the use of the property into a year -round exhibition, conference, equestrian, activity, and event center; these uses collectively the OCFEC.

The 32nd DAA Fair Board adopted the current OCFEC Master Plan in 2003. Given that the 32 nd DAA is a State entity for administration of the Orange County Fair, Costa Mesa has limited land use and permitting authority over the property while it is controlled by the State.

In the future, if the State no longer controls the property, any proposed new development or change of use shall be subject to review for consistency with the City’s General Plan and zoning regulations. The new property owner/operator may continue to operate the Fairground s as it existed at the time of sale as a legal nonconforming use and development. The property’s legal nonconforming status will remain in effect until such time as the property owner submits and receives approval of a master plan by Cos ta Mesa.

The Fairgrounds site contains approximately 400,000 square feet of buildings, including:
▪ Pacific Amphitheater
▪ Arlington Theater
▪ Grandstand Arena
▪ Equestrian center
▪ Exhibit and administration buildings
▪ Concession and restaurant buildings
▪ Memorial Gardens
▪ Centennial Farms
▪ Livestock barns
The Fairgrounds designation recognizes the existing fairground and event center uses associated with this site. The General Plan traffic model does not take into account the trip generation from the annual OC Fair or weeknight/weekend special event uses ( i.e., Orange County Marketplace) because peak vehicle trips to the site occur outside normal business timeframes. However, further development of the Fairgrounds will need to be balanced with the development capacity of the City’s transportation system and with the protection of surrounding neighborhoods.

Permitted uses include ancillary office uses, exposition/conference uses, equestrian uses, agricultural/livestock activities, restaurants, temporary specialty retail sales (including vehicle sales), outdoor marketplace, emergency operational uses, and conc erts/live entertainment uses.

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exhibits, museum, art/historical artifacts gallery, and performance art theaters that are supportive of the fairground uses.

Uses that are not supportive of fairground and event center uses are expressly prohibited. Prohibited uses include, but are not limited to, casinos/gambling venues, shopping centers, hotel/motels, residential uses, self-storage facilities, hospitals, and medical uses. In addition, exclusive use or dedicated athletic sports facilities and educational uses that are unrelated to the OCFEC are prohibited.

As a State -owned property, the Fairgrounds is not normally subject to the City’s Noise Ordinance.

However, pursuant to a 1990 Court Order (Case Nos. 42 07 28 and 55 65 08), exterior noise standards comparable to the City’s noise regulations have been applied to the property. Noise sensitive uses include neighboring residences, Davis Intermediate School, and Costa Mesa High School. The court-ordered noise restrictions apply to the operation of the Pacific Amphitheater. Development within the Fairgrounds designation is intended for buildings ranging from one- to four-story structures. The maximum allowable FAR for this designation shall be 0.10.

Multi-Use Center
Fairview Developmental Center
On January 5, 1959, the Fairview Developmental Center opened as a State h ospital originally occupying 750 acres. Fairview Developmental Center had an initial bed capacity of 2,622 and was intended to house some 4,125 residents. The population at the f acilities peaked in 1967 and has been declining since. In 2015, the current population wa s 275 persons, and the downward trend is expected to continue due to the restructuring of the State of California's approach to providing institutionalized care for the developmentally disabled. The State has been focusing on residential care options (as opposed to institutional care) for these disabled individuals.

A large portion of the original land was transferred in 1979 to the City of Costa Mesa and now encompasses Fairview Park and the golf course. In 1985, the City granted a General Plan amendment and rezone of 54 acres of surplus land immediately to the north of t he hospital facilities for high -density residential uses. In 1987 and 2005 , other parcels were converted to residential uses. These areas are planned developments with one -story, single -family residences, a two-story, small -lot residential subdivision, and two-story apartment buildings (Harbor Village Apartments).

In February 2016, the State of California Department of Development Services initiated the process for closure of Fairview Developmental Center. In June 2022, the State Legislature through Senate Bill (SB) 188 approved Government Code Section 14670.31, which provides a framework for the reuse of the FDC property. The legislation codifies a partnership between the Department of General Services (DGS ), the Department of Developmental Services (DDS), and the City of Costa Mesa, with defined roles for each entity. To support this effort, the State allocated $3.5 million in State funding to the City to develop a Specific Plan, conduct necessary studies, and manage a community -based planning process. The Legislature’s intent for the redevelopment of the FDC site is to prioritize affordable housing to the greatest -49-
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extent feasible, including a minimum of 200 units of permanent supportive housing, open space, and housing for individuals with developmental disabilities, and a City created Specific Plan for the FDC site that implements the provisions of Government Code Section 14670.31.

Multi-use refers to the integration of a variety of land uses and intensities. This land use category includes uses which are low to moderate intensity and urban in character. The Multi -Use Center designation is applicable only to the Fairview Developmental Center property at 2501 Harbor Boulevard. The compatible zoning district is Institutional & Recreational - Multi-Use District (I&R-MLT). The allowable land uses are as follows:
▪ 0.25 FAR Institutional and Recreational uses
▪ 25 percent minimum requirement for park and open space purposes (approximately 25.6 acres) ▪ Minimum density of 60 dwelling units per acre and 2,300 dwelling units are identified for the site within the limitations described below
In anticipation of the future closure of the Fairview Development Center, this property is assigned a unique General Plan land use plan designation. The Multi-Use Center designation is comprised of a variety of residential, open space, and institutional uses.

These multi-uses are to be complementary to the Costa Mesa Golf Course and surrounding residential neighborhoods. The Housing Element identifies a minimum density to achieve a residential site capacity of 2,300 mixed-income residential units for the Fairview Developmental Center site. Additional housing units may be built, as long as they meet the density bonus provisions pursuant to State law (Government Code Section 65915- 65918). At least 25 percent of the site shall be dedicated to open space. A maximum

0.25 FAR for institutional/recreational uses would be allowed for undeveloped area not assigned to housing or permanent open space . See Table LU -14: Multi-Use Center Designation. Permitted uses include:
▪ Institutional uses, such as public and private recreational facilities, dedicated athletic fields, athletic complex, sports parks, community centers, and public facilities ▪ Hospital, medical, dental, physical therapy, in -patient care, psychiatric facilities, administrative offices and facilities for the developmentally disabled ▪ Residential uses, such single -family detached housing, apartments, condomin iums, and townhouses
▪ Open space uses, such as active play fields, recreational areas, parkland, and botanical gardens Uses that are industrial or commercial in nature are expressly prohibited. Prohibited uses include, but are not limited to, corporate office parks, casinos/gambling venues, shopping centers, concerts/entertainment venues, hotel/motels, exposition/conference uses, shopping center, and swap meets.
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The maximum 0.25 FAR for institutional development within the Multi-Use Center designation is intended for buildings ranging from one - to four -story structures. Residential uses shall also be limited to a maximum height of four stories.

The Multi-Use Center General Plan land use designation (and corresponding Zoning District) will require a Master Plan for any future development project, whether or not the State retains the property or sells to a private entity. A Master Plan is required to be approved by the City Council if the property is owned by a non -State entity or if the State elects to participate in the City's planning process for Master Plan adoption.

The City will require the dedicated parkland component in order to activate a master plan for new development. The 25 percent open space requirement would apply and, therefore, future development would need to include a specific acreage of active park uses for sports fields or the master plan cannot be considered in conformance with this unique General Plan land use designation. -51-
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Figure LU-8:

Multi-Use Center

Land Use Designation Multi-Use Center
Residential Units 2,300
Open Space Acres Minimum 25.6 acres (25%)
Public/Institutional 0.25 FAR
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Table LU-14: Multi-Use Center Designation
Categories Multi-Use Center Designation
Density (DU/AC) 60 DU/AC
Total Units 2,300
Floor-Area Ratio (FAR) 0.25 Public Facilities/Institutional/ Recreational Building Square Feet N/A
Dedicated Open Space 25% - approximately 25.6 acres of Open Space Trip Budget
Maximum trip budget for this area is 557 A.M. and 669 P.M.

Building intensity shall not exceed maximum allowable
development set forth by the trip budget , unless it is necessary to realize the residential site capacity identified for the site in the sites inventory of the Housing Element.

Land Use Overlays and Urban Plans
The City has adopted land use overlay s that are intended to encourage reuse and revitalization of underutilized properties . The incentives provided expand land uses, provide development flexibility, stimulate economic growth, and create integrated areas complementary to the surrounding environs.

Refer to Figure LU-98 for the location of the Overlay and Urban Plan boundaries. The density, FAR, height, and trip generations may be modified accordingly to accommodate the residential site capacity , or density, for the housing opportunity sites identified within the sites inventory of the Housing Element.

Mixed-Use Overlay Zone/Urban Plan Areas
Mixed-use development projects are intended to provide additional housing opportunities in the City by combining residential and nonresidential uses in an integrated development. Additionally, this type of development is intended to revitalize areas of the City without exceeding the capacity of the General Plan transportation system. Mixed-use developments shall be implemented through an adopted urban plan and shall be identified on the Zoning Map with the mixed -use overlay district. The mix of uses can occ ur in either a vertical or horizontal design.
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General Plan Amendments:

GP 18-03, Adopted Nov. 13, 2018
GP 20-01, Adopted Jul. 20, 2021
PGPA-24-01, Adopted July 15, 2025

Figure LU-8: Overlays and Urban Plans
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Housing types shall be identified in the applicable urban plan and may include live/work units and commercial/residential units, where the residential uses are located above or adjacent to the nonresidential component. Nonresidential uses may include office, reta il, business services, personal service, public spaces and uses, and other community amenities.

In conjunction with areas that are designated with the mixed -use zoning overlay district, the maximum FAR is 1.0. An increase to 1.25 FAR may be allowed for mixed-use plans exhibiting design excellence. In a mixed-use overlay district area, the FAR includes both residential and non-residential components. Table LU-1514: Overlay and Urban Plan Residential Density , lists the appropriate land uses and the necessary base zoning district where mixed-use development is permitted.

Table LU-1514: Overlay and Urban Plan Residential Density Base Land Use
Designations That Allows
Mixed Use3
Residential Dwelling Units Per Acre (D/A) and
Floor-Area Ratio (FAR)*
Overlays Urban Plans
Residential
Incentive
Harbor
Mixed-Use
SoBECA
Mixed-Use1
Westside
Urban Plans2
Commercial-Residential 30 du/acre -- -- --
Neighborhood Commercial -- -- --

1.00/2

1.25 FAR

General Commercial 30 du/acre 20 DU/A 40 D/A1
Light Industry -- 40 D/A1
Commercial Center -- -- --
Notes: * The density, FAR, height, and trip generations may be modified accordingly to realize the residential site capacity, or density, for the housing opportunity sites identified within the sites inventory of the Housing Element.

1. The SoBECA Overlay has a maximum capacity of 450 residential units over the entire district, with individual projects having a maximum density of 40 dwelling units per acre. However, sites identified as housing opportunity sites within the sites inventory of the Housing Element shall be allowed to develop the site according to the specified density therein.

2. Under the Westside Urban Plans, a maximum FAR of 1.0 is allowed for mixed-used projects that include a residential component. An increase to 1.25 FAR may be allowed for mixed-use plans exhibiting design excellence. FAR calculations are based on the total site area (subarea) of the commercial component and does include the residential site area.

3.2. See Multi-Use Center discussion for density and FAR standards for the Fairview Developmental Center site.

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Residential Incentive Overlay
The Residential Incentive Overlay allows the maximum 30 du/acre unit residential density option at strategic locations along Harbor Boulevard and Newport Boulevard. The Residential Incentive Overlay expands development opportunities on commercial properties not developed to their full potential or supporting outdated buildings and underperforming uses.

Maximum building height is three stories, provided privacy concerns of adjacent established residential neighborhoods are adequately addressed through the setback of upper stories or other design approaches. Housing within the Residential Incentive Overlay is limited to a maximum density of 30 units per acre. See Table LU-1615: Residential Incentive Overlay and Figures LU-109 and LU-1110.

Table LU-1615: Residential Incentive Overlay
Categories Baseline
(2015)
Residential Incentive
Overlay
Density (DU/AC) N/A 30
Units
Harbor Boulevard 84 361
Newport Boulevard 237 117
Total Units 321 478

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REVISED Nov. 13, 2018:

General Plan Amendments:
* GP 18-03, Adopted Nov. 13, 2018
Figure LU-109:

Residential
Incentive Overlay:

Harbor Boulevard
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Density 30 du/acre
Residential Units 117
General Plan Amendments:
* GP 18-03, Adopted Nov. 13, 2018
* PGPA-24-01, Adopted July 15, 2025
Figure LU-1110:

Residential
Incentive Overlay:

Newport Boulevard
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South Bristol Entertainment & Cultural Arts (SoBECA) Overlay and Urban Plan The SoBECA Overlay applies to properties within the SoBECA Urban Plan area. Allowed uses include a mix of housing and retail/service commercial businesses, light industrial uses, creative studios, retail campuses, and entertainment and restaurant uses that attract local residents and visitors. Permitted development approaches are mixed-use development that combines residential and commercial uses, as well as stand-alone commercial and residential uses. This designation emphasizes commercial uses and aims to expand the established innovative, eclectic, and unique uses that support homegrown and incubator-type businesses important to the local economy. The integration of innovative public spaces and “hangout” areas for special events are highly encouraged.

The maximum residential density within the SoBECA overlay is 40 units per acre. A maximum 1.25 FAR applies to mixed-use buildings that integrate residential and commercial uses. Stand-alone commercial or industrial buildings have a maximum 1.0 FAR. The maximum building height for all projects is four stories.

The maximum number of residential units allowed within the entire SoBECA Urban Plan area is 450 units.

See Table LU -1716: SoBECA Mixed-Use Overlay. See also Figure LU -1211: SoBECA Mixed-Use Overlay.

However, the density, FAR, and height may be modified accordingly to realize the residential site capacity, or density, for the housing opportunity sites identified within the sites inventory of the Housing Element.

Table LU-1716: SoBECA Mixed-Use Overlay
Categories Baseline
(2015) SoBECA Mixed-Use Overlay
Density (DU/AC) N/A 40 DU/AC
Not to exceed 450 units for Overlay
Units 0 450
Floor-Area Ratio (FAR) N/A 1.00 to 1.25
Building Square Feet 491,000 420,359

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Figure LU-1211:

SoBECA Urban Plan

* Density may be increased to the densities identified
for housing opportunity sites within the sites inventory of the Housing Element.

SoBECA Overlay
Individual residential projects cannot exceed
40 dwelling units per acre, unless the site is a
housing opportunity site, then the density may
increase to align with the density identified
within the sites inventory of the Housing
Element.
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Harbor Mixed-Use Overlay
The Harbor Mixed -Use Overlay applies to select areas along Harbor Boulevard, between Wilson Street and 19th Street. The intent is to introduce a diverse mix of uses, with the objective of creating a much more integrated, walkable, and complementary balance of creative residential and retail spaces, neighborhood- serving retail and commercial services, and residen tial uses along the southern portion of Harbor Boulevard that intersects with 19 th Street. The designation allows residential development at up to 2 0 dwelling units per acre. A maximum 1.25 FAR applies to projects that consist of both residential and commercial mixed uses; maximum building height is four stories. See Table LU -1817: Harbor Mixed-Use Overlay and Figure LU-1312. However, the density, FAR, and height may be modified accordingly to realize the residential site capacity, or density, for housing opportunity sites identified within the sites inventory of the Housing Element.

Table LU-1817: Harbor Mixed-Use Overlay
Categories Baseline
(2015) Harbor Mixed-Use Overlay
Density (DU/AC) N/A 20 DU/AC
Units 13 491
Floor-Area Ratio (FAR) N/A 1.00 to 1.25
Building Square Feet 337,300 321,000 of Commercial

Westside Urban Plans
In April 2006, the City adopted three Westside urban plans that created overlay zones in designated areas of the Westside: The 19 West Urban Plan , the Mesa West Bluffs Urban Plan , and the Mesa West Residential Ownership Urban Plan . Development proposed within the Westside Urban Plans requires approval of a Master Plan pursuant to the City of Costa Mesa Municipal Code. However, the density, FAR, and height may be modified accordingly to realize the residential site capacity, or density, for housing opportunity sites identified within the sites inventory of the Housing Element. -61-
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Figure LU-1312:

Harbor Mixed-Use Overlay
* The total residential units, density and FAR may be modified to realize the residential site capacity, or density, of the housing opportunity sites identified within the sites inventory of the Housing Element.
*
*
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19 West Urban Plan
The 19 West Urban Plan provides commercial and residential mixed -use opportunities primarily along West 19th Street and Harbor Boulevard, at a cluster of properties between Newport Boulevard and Superior Avenue, and at the south side of Victoria Street and Placentia Avenue. This mixed -use overlay zone (over the Commercial and Industrial base districts) is intended to promote commercial/residential mixed-use development, encourage adaptive reuse, stimulate private investments and impro vements, promote new housing types, and meet housing demand. Development is subject to the trip budget established in the Zoning Code.

Mesa West Bluffs Urban Plan
The Mesa West Bluffs Urban Plan encompasses approximately 277 acres and was adopted to provide an overlay zone encouraging the development of live/work units or residential development, with the goal of revitalizing and providing new high -quality residences. The Mesa West Bluffs Urban Plan applies to industrial properties predominantly south of 18th Street, north of 16th Street, and along Placentia Avenue.

The Urban Plan intends to stimulate live/work and residential development without exceeding the development capacity of the General Plan transportation system. With regard to industrial uses, established industrial uses may continue and expand. New residential development must recognize long- established industrial uses and be designed to minimize conflicts . New creative industrial workspace is permitted, provided that activities limit or confine noise, dust, and vibration impacts.

Mesa West Residential Ownership Urban Plan
The Mesa West Residential Ownership Urban Plan encompasses approximately 238 acres located between Victoria Street and 17 th Street, west of SR -55. The objective of the Mesa West Residential Ownership Urban Plan is to promote economic viability in existing medium -density and high -density residential areas, encourage the conversion of existing rental apartments to residential common-interest development (i.e., condominiums, planned unit developments), and encourage new residential common- interest development to improve the balance between rental and ownership opportunities.

The Mesa West Residential Ownership Urban Plan provides flexible development regulations to create additional incentives for new development.

See Figure LU-1413: Westside Urban Plans, for the location and boundaries for each Westside Urban Plan.

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Figure LU-1413: Westside Urban Plans

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Specific Plans
While the General Plan establishes broad parameters of development on a long -term horizon, a specific plan is designed to identify particular land uses and development standards relating to a specific area, site or development proposal. California Government Code, Title 7, Division 1, Chapter 3, Article 8, Sections 65450 through 65457 allows cities and counties to prepare specific plans to develop policies , programs, regulations, and guidelines to implement the jurisdiction’s adopted general plan. As prescribed by law, specific plans include text and diagrams that generally describe the following:
• The distribution, location, and extent of all land uses; • The standards and criteria by which new development will proceed; • The proposed distribution, location, extend, and intensity of major components of public infrastructure, such as transportation and utility systems; and • A program of implementation measures, such as financing options, policies, regulations, and public works projects.

The City’s adopted specific plans will serve the best interests of the City by establishing detailed controls on the nature of future development and facilitat e the processing of subsequent development plans within the area governed by the Specific Plan. In some cases, City adopted specific plans may utilize the land use designations of th is Element and specific details relating to the land use designations can be found in the applicable adopted document.

Fairview Developmental Center Specific Plan
On January 5, 1959, the Fairview Developmental Center opened as a State hospital originally occupying 750 acres. Fairview Developmental Center had an initial bed capacity of 2,622 and was intended to house some 4,125 residents. The population at the facili ties peaked in 1967 and has been declining since. In 2015, the current population was 275 persons, and the downward trend is expected to continue due to the restructuring of the State of California's approach to providing institutionalized care for the developmentally disabled. The State has been focusing on residential care options (as opposed to institutional care) for these disabled individuals.

A large portion of the original land was transferred in 1979 to the City of Costa Mesa and now encompasses Fairview Park and the golf course. In 1985, the City granted a General Plan amendment and rezone of 54 acres of surplus land immediately to the north of the hospital facilities for high -density residential uses. In 1987 and 2005, other parcels were converted to residential uses. These areas are planned developments with one -story, single -family residences, a two -story, small -lot residential subdivision, and two-story apartment buildings (Harbor Village Apartments).

In February 2016, the State of California Department of Development Services initiated the process for closure of Fairview Developmental Center. In June 2022, the State Legislature through Senate Bill (SB) 188 approved Government Code Section 14670.31, which provides a framework for the reuse of the FDC property. The legislation codifies a partnership between the Department of General Services (DGS ), the -65-
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Department of Developmental Services (DDS), and the City of Costa Mesa, with defined roles for each entity. To support this effort, the State allocated $3.5 million in State funding to the he City’s role was to develop a Specific Plan, conduct necessary studies, and manage a community-based planning process.

The Legislature’s intent for the redevelopment of the FDC site is to prioritize affordable housing to the greatest extent feasible, including a minimum of 200 units of permanent supportive housing, open space, and housing for individuals with developmental disabilities, and a City created Specific Plan for the FDC site that implements the provisions of Government Code Section 14670.31.

The Fairview Developmental Center Specific Plan consists of 95 acres of the prior Fairview Developmental Center state hospital site and was prepared in conformance with State requirements outlined in Government Code Section 65450 et seq. The Fairview Developmental Center Specific Plan was adopted on XXXX through City Council Ordinance No. XX-XX and establishes land use designations, site specific zoning regulations, permitted uses, development and design standards, and mobility and infrastructure improvements. Future redevelopment proposed within the Fairview Developmental Center Specific Plan must be consistent with the plan, and it provides a future developer, City staff, the public and decision makers with information on the overall intent for the area, design standards to facilitate implementation, and future changes thereto. Figure LU-3 identifies the specific plan area, whereas Table LU-6 identifies the specific plans residential and non-residential development intensities.

General Plan and Zoning Ordinance
Consistency
The relationship between the General Plan land use designations and zoning districts is shown in Table LU-19: General Plan and Zoning Consistency . This table indicates how properties will be zoned to be consistent with the General Plan Land Use Plan. The Zoning Ordinance has the following Zoning Districts:
▪ Single-Family Residential (R1)
▪ Multiple-Family Residential, Medium Density (R2-MD)
▪ Multiple-Family Residential, High Density (R2-HD)
▪ Multiple-Family Residential (R3)
▪ Administrative and Professional (AP)
▪ Commercial Limited (CL)
▪ Local Business (C1)
▪ General Business (C2)
▪ Shopping Center (C1-S1)
▪ Town Center (TC)
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▪ Off-Street Parking (P)
▪ Institutional and Recreational (I & R)
▪ Institutional and Recreational - School (I & R-S1)
▪ Institutional and Recreational - Multi-Use (I &R-MLT) ▪ General Industrial (MG)
▪ Industrial Park (MP)
▪ Planned Development Residential (PDR)
▪ Planned Development Commercial (PDC)
▪ Planned Development Industrial (PDI)
▪ Mixed-Use Overlay District (MU)
▪ Residential Incentive Overlay District (RI)

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Table LU-19: General Plan and Zoning Consistency
Land Use Plan Designations Consistent Zoning Classification Low Density R1, PDR-LD, I&R, I&R-S
Medium Density R1, R2-MD, PDR-MD, I&R, I&R-S, MU
High Density R2-MD, R2-HD, R3, PDR-HD, PDR-NCM, I&R, I&R-S, MU, RI Commercial-Residential AP, CL, C1, PDC, R2-MD, R2-HD, PDR-MD, PDR-HD, RI Neighborhood Commercial CL, C1, AP
General Commercial CL, C1, C2, C1-S, PDC, AP, RI, MU
Commercial Center C1, C2, C1-S, PDC, AP
Regional Commercial PDC
Urban Center Commercial PDC
Cultural Arts Center TC
Multi-Use Center I&R-MLT
Industrial Park MG, PDI, CL
Light Industrial MP, PDI, CL
Public and Institutional I&R, I&R-S
Golf Course I&R
Fairgrounds I&R
Fairview R2-MD, R2-HD, R3, I&R
Off-Street Parking (P) zoning classification is consistent wi th any land use plan designation, with the exception of Low Density.

Residential development shall be allowed, regardless of the underlying zoning or land use designations, for any housing opportunity site identified within the sites inventory of the Housing Element, including any densities identified therein.

Revised February 20, 2019
Consistent with Table LU-9
of 2002 General Plan
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Housing and Employment Projections
Providing a land use arrangement that encourages a correlation of employment and housing opportunities is a local and regional responsibility. Providing sufficient commercial land to support residential development is primarily a local responsib ility, although commercial uses serving regional needs are provided as well. Sufficient land must also be established to meet the recreational needs of the local community, although regional needs are often accommodated by land within individual cities. Table LU-20: General Plan Land Use 2035 , identifies the projected future growth and im plications of the Land Use Plan.

Table LU-20: General Plan Land Use 2035
Land Use Designations Net
Acres
Residential
Dwelling Units
Non-Residential
Square Feet
2015
Existing
2035
Future*
2015
Existing
2035
Future
Residential
Single-Family1 2,088.2 14,210 14,811 -- --
Multi-Family2 1,72071

8.2 28,413 37,291 -- --
Non-Residential
Commercial-Residential 47.9 -- -- 543,000 455,200
Neighborhood Commercial 40.5 -- -- 338,000 472,100
General Commercial 616.3 -- 2,254 7,065,300 8,556,100
Commercial Center 117.5 -- 2,215 733,000 1,075,800
Urban Center Commercial 126.3 -- 1,735 4,550,700 5,581,200 Cultural Arts Center 57.3 -- 851 2,673,300 4,869,800
Regional Commercial 147.9 -- 1,959 2,723,700 3,260,800
Industrial Park 632.6 -- 3,626 8,684,500 9,895,000
Light Industrial 378.1 -- 1,668 4,402,500 2,838,000
Public and Institutional 1,26327

8.4 -- -- 1,989,000 3,970,700
Golf Course 553.7 -- -- 84,200 84,200
Fairgrounds 150.0 -- -- 454,450 1,020,400
Fairview Developmental
Center Specific Plan3 95 -- 4,000 -- 35,000
Multi-Use Center 102.6 -- 2,300 -- 279,000
Totals 8,044.5 42,623 68,690 33,916,000 42,553,000
Notes: * The residential dwelling units added to the Land Use Designations for 2035 reflect the site capacity identified within the sites inventory of the Housing Element. The total unit counts are not intended to reflect a maximum build-out scenario.

1. Includes Low-Density Residential General Plan land use designation.

2. Includes Medium-Density, High-Density, and Commercial-Residential, Overlays General Plan land use designations.

2.3. The Fairview Developmental Center Specific Plan has a buildout horizon of 15-20 years from adoption.

General Plan
Amendment:

PGPA-24-02, Adopted
August 5, 2025
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Goals, Objectives, and Policies
Maintaining and enhancing the great quality of life in Costa Mesa is the foundation of this General Plan.

The City will look towards focusing future change within targeted growth areas. Some of these areas already have a mix of commercial, office, hotel, and residential uses, and are located along roadways that will be enhanced with “Complete Streets” features (see Circulation Element), improved landscaping, and expanded public spaces (such as parks and plazas). In turn, the City will also protect and enhan ce neighborhoods throughout Costa Mesa to ensure these largely residential areas continue to provide value to residents and the community as whole.

Foremost, attention will be given to protecting the character and quality of residential neighborhoods, including those features that distinguish an area, such as building scale, historical structures, well - maintained rental housing, mature vegetation, and attractive streetscapes.

Goal LU-1: A Balanced Community with a Mix of Land
Uses to Meet Resident and Business Needs
Objective LU-1A. Establish and maintain a balance of land uses throughout the community to preserve the residential character of the City at a level no greater than can be supported by the infrastructure.

Policy LU-1.1 Provide for the development of a mix and balance of housing opportunities, commercial goods and services, and employment opportunities in consideration of the needs of the business and residential segments of the community.

Policy LU-1.2 Balance economic gains from new development while preserving the character and densities of residential neighborhoods.

Policy LU-1.3 Strongly encourage the development of residential uses and owner -occupied housing (single-family detached residences, condominiums, townhouses) where feasible to improve the balance between rental and ownership housing opportunities.

Policy LU-1.4 Promote housing and employment opportunities within planned development areas to the extent feasible.

Policy LU-1.5 Maintain a land use structure that strives to balance jobs and housing with available infrastructure and public and human services.

Policy LU-1.6 Promote sustainable development patterns that consider negative economic and health impacts on existing residents and businesses.
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Policy LU 1.7 Consider the attraction and retention of full service grocery stores and similar purveyors of healthy foods a part of the community's economic development strategy, with consideration to neighborhoods that lack suitable access to healthy food options.

Goal LU-2: Preserve and Protect Residential
Neighborhoods
Objective LU-2A. Promote land use patterns and development that contribute to community and neighborhood identity.

Policy LU-2.1 In the event of damage or destruction, allow any legal conforming use in existence at the time of adoption of the General Plan that is located in a nonconforming development to be rebuilt to its original building intensity, as long as any such rebuilding would not increase the development's nonconformity, and the damage or destruction was in no way brought about by intentional acts of any owner of such use or property.

Policy LU-2.2 Pursue maximum use of utility company funds and resources in undergrounding existing overhead lines, and encourage undergrounding of utilities in the public right-of-way for residential development consisting of five units or more, to the extent feasible and practical.

Policy LU-2.3 Develop standards, policies, and other methods to encourage the grouping of individual parcels to eliminate obsolete subdivision patterns and to provide improved living environments while being consistent with the neighborhood character of the surrounding community.

Policy LU-2.4 Do not allow "rounding up" when calculating the number of permitted residential units, except for lots existing as of March 16, 1992, zoned R2 -MD that have less than 7,260 square feet in area, and no less than 6,000 square feet, where density calculation fractions of 1.65 or greater may be rounded up to two units.

Policy LU-2.5 Allow creation of parcels without street frontage if sufficient easements are provided for planned developments or common -interest developments consistent with the neighborhood character. This policy does not apply to small lot subdivisions.

Policy LU-2.6 Encourage increased private market investment in declining or deteriorating neighborhoods, prioritizing neighborhoods located within designated environmental justice area boundaries..
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Policy LU-2.7 Permit the construction of buildings over two stories or 30 feet only when it can be shown that the construction of such structures will not adversely impact surrounding developments and deprive existing land uses of adequate light, air, privacy, and solar access.

Policy LU-2.8 Limit building height to four stories above grade south of the I -405 Freeway, except for special purpose housing such as elderly, affordable, or student housing, unless otherwise approved by a General Plan amendment. (A four- story/five-level parking structure with roof deck parking on the f ifth level is considered a four-story structure.) The height limitation may be increased further to realize the residential site capacity , or density, of housing opportunity sites identified within the sites inventory of the Housing Element.

Policy LU-2.9 Require appropriate building setbacks, structure orientation, and placement windows to consider the privacy of adjacent residential structures within the same project and on adjacent properties.

Policy LU-2.10 Promote lot consolidation of residential properties to the extent feasible and practical, including the creation of larger single-family residential lots that exceed the minimum 6,000 -square-foot requirement in neighborhoods where the prevailing residential subdivision pattern features larger-sized residential lots.

Policy LU-2.11 Ensure adequate noise attenuation in urban design, such as walls for sound attenuation, development of landscaped greenbelts, provis ion of landscape berms, etc.

Goal LU-3: Development that Maintains Neighborhood
Integrity and Character
Objective LU-3A. Establish policies, standards, and procedures to minimize blighting influences , and maintain the integrity of stable neighborhoods.

Policy LU-3.1 Protect existing stabilized residential neighborhoods, including mobile home parks (and manufactured housing parks), from the encroachment of incompatible or potentially disruptive land uses and/or activities.

Policy LU-3.2 Actively enforce existing regulations regarding derelict or abandoned vehicles, outdoor storage, and substandard or illegal buildings , and establish regulations to abate weed -filled yards when any of the above are deemed to constitute a health, safety, or fire hazard.
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Policy LU-3.3 Continue code enforcement as a high priority with regard to the regulation of property maintenance standards citywide.

Policy LU-3.4 Ensure that residential densities can be supported by the infrastructure and are compatible with existing residential neighborhoods in the surrounding area.

Policy LU-3.5 Provide opportunities for the development of well-planned and designed projects which, through vertical or horizontal integration, provide for the development of compatible residential, commercial, industrial, institutional, or public uses within a single project or neighborhood.

Policy LU-3.6 Facilitate revitalization of aging commercial centers by working with property owners, developers, local businesses, and other community organizations to coordinate efforts.

Policy LU-3.7 Promote development/design flexibility that encourages older or poorly maintained high-density residential uses to be rehabilitated.

Policy LU-3.8 Ensure that new development reflects existing design standards, qualities, and features that are in context with nearby development and surrounding residential neighborhoods.

Policy LU-3.9 Locate high -intensity developments or high -traffic-generating uses away from low-density residential in order to buffer the more sensitive land uses from the potentially adverse impacts of the more intense development or uses.

Policy LU-3.10 Minimize effects of new development on the privacy and character of surrounding neighborhoods.

Policy LU-3.11 Promote small -lot residential development on long, narrow, single parcels or combined residential lots.

Policy LU-3.12 Ensure that new development reflects existing design standards, qualities, and features that are in context with nearby development.

Policy LU-3.13 Prohibit construction of buildings which would present a hazard to air navigation, as determined by the Federal Aviation Administration (FAA).

Policy LU-3.14 Certain development proposals which may include the construction or alteration of structures more than 200 feet above ground level may require filing with the Federal Aviation Administration (FAA) and Airport Land Use Commission (ALUC) pursuant to federal and State law. If a filing requirement is determined to be necessary in accordance with the procedures provided by State/federal agencies, the filing of a Notice of Proposed Construction or Alteration (FAA Form 7460 -1) shall be required prio r to review and consideration of the proposed development.” Land Use Element (page LU -18) refers to the threshold stated -73-
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above. It shall be amended to refer to Filing FAA Form 7460 -1 Notice of Construction and Alteration, and not to Form 7480-1.

Policy LU-3.15 The City will ensure that development proposals , including the construction or operation of a heliport or helistop comply fully with permit procedures under State law, including referral of the project to the ALUC by the applicant, and with all conditions of approval imposed or recommended by the Federa l Aviation Administration, ALUC, and Caltrans, including the filing of Form 7480-1 (Notice of Landing Area Proposed) with the FAA. This requirement shall be in addition to all other City development requirements.

Policy LU-3.16 The City shall refer certain projects to the Airport Land Use Commission for Orange County , as required by Section 21676 of the California Public Utilities Code to determine consistency of the project(s) with the A irport Environs Land Use Plan for John Wayne Airport.

Policy LU 3.17 New residential developments within the 60 dB CNEL noise contour of the airport shall provide designated outdoor signage informing the public of the presence of operating aircraft.

Goal LU-4: New Development that Is Sensitive to Costa
Mesa’s Environmental Resources
Objective LU-4A. Encourage new development and redevelopment that protects and improves the quality of Costa Mesa’s natural environment and resources.

Policy LU-4.1 Ensure that appropriate watershed protection activities are applied to all new development and significant redevelopment projects that are subject to the National Pollutant Discharge Elimination System Stormwater Permit during the planning, project review, and permitting processes.

Policy LU-4.2 Avoid conversion of areas particularly susceptible to erosion and sediment loss (e.g., steep slopes) and/or establish development guidelines that identifies these areas and protects them from erosion and sediment loss.

Policy LU-4.3 Preserve or restore areas that provide water quality benefits and/or are necessary to maintain riparian and aquatic biota.

Policy LU-4.4 Promote site development that limits impact on and protects the natural integrity of topography, drainage systems, and water bodies , and protect the integrity of the bluff crest.
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Policy LU-4.5 Promote integration of stormwater quality protection into construction and post- construction activities, as required by the NPDES Stormwater Permit and the City’s Local Implementation Plan.

Policy LU-4.6 Incorporate the principles of sustainability into land use planning, infrastructure, and development processes to reduce greenhouse gas emissions consistent with State goals.

Goal LU-5: Adequate Community Services,
Transportation System, and Infrastructure to Meet
Growth
Objective LU-5A. Ensure availability of adequate community facilities and provision of the highest level of public services possible, taking into consideration budgetary constraints and effects on the surrounding area.

Policy LU-5.1 Pursue annexation of certain areas within the City's Sphere of Influence to provide land use regulation and city services within its jurisdiction.

Policy LU-5.2 Strongly encourage protecti on and preservation of existing but underutilized school sites for future recreational, social, or educational uses.

Policy LU-5.3 As appropriate and timely, consider the establishment of development impact fee program(s) to fund additional fire and police personnel, library facilities, and related equipment to meet the demands of additional growth in the City.

Policy LU-5.4 Require appropriate site and environmental analysis for future fire and police station site locations or for the relocation or closure of existing fire and police facilities.

Policy LU.5.5 Ensure that new development pays its fair share of impact fees such as park fees and traffic impact fees. This can also include impact fees related to community services (police protection services and fire emergency response services) or library facilities, once adopted and applicable.

Policy LU-5.6 Promote development of revenue-generating land uses to help defray the costs of high quality public services.

Policy LU-5.7 Encourage new development that is organized around compact, walkable, mixed- use neighborhoods and districts to conserve open space resources, minimize infrastructure costs, and reduce reliance on the automobile. -75-
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Policy LU-5.8 Include an evaluation of impacts on utility systems and infrastructure in EIRs for all major general plan amendment, rezone, and development applications.

Policy LU-5.9 Phase or restrict future development in the City to that which can be accommodated by infrastructure at the time of completion of each phase of a multi-phased project.

Policy LU-5.10 Building densities/intensities for proposed new development projects shall not exceed the trip budget for applicable land use classifications, as identified in the Land Use Element, unless the site is identified as a housing opportunity site within the sites inventory of the Housing Element, then the density and intensity may be modified to realize the residential site capacity , or density, identified therein .

Building intensities for proposed new development projects shall not exceed the applicable floor area standards, except for the following conditions:
(a) Limited deviations from the graduated floor-area ratio standards for the commercial and industrial land use designations may be approved through a discretionary review process. No deviation shall exceed a 0.05 increase in the FAR in the moderate traffic category, and no deviation shall be allowed in the very low, low, and high traffic categories. Deviations from the FAR standards shall not cause the daily trip generation for the property to be exceeded when compared to the existing daily trip generation for the site without the proposed project or maximum allowable traffic generation for the Moderate Traffic FAR category, whichever is greater.
(b) Additions to existing nonconforming non residential developments may be allowed if the additions do not affect the overall traffic generation characteristics of the development and if the additions do not substantially affect the existing height and bulk of th e development. Additions to nonresidential developments shall be limited to those land uses with traffic generation rates based on variables other than building area square footage.

Examples of such additions include, but are not limited to: 1) Hotels/motels:

Increases in the size of hotel rooms or lobbies where no increase in the total number of rooms is proposed , and 2) t heaters: Increases to “back -stage” support areas or lobbies where no increase in the total number of seats is proposed.
(c) In the above conditions, the new development shall be compatible with surrounding land uses.
(d) Additional criteria for approving deviations from the FAR standards may be established by policy of the City Council.

Policy LU-5.11 Development plans shall be required for all phased development and approvals and shall be approved by the Planning and Transportation Services Divisions prior to the issuance of building permits.
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Policy LU-5.12 Development plans shall include an overall buildout plan, which can demonstrate the ability of the circulation system to support the proposed level of development.

Policy LU-5.13 The City shall continue its annual preparation of the Development Phasing and Performance Monitoring Program. The annual review will specifically address major intersection operations in any mixed-use overlay area.

Goal LU-6: Economically Viable and Productive Land
Uses that Increase the City’s Tax Base
Objective LU-6A: Ensure the long -term productivity and viability of the community's economic base.

Policy LU-6.1 Encourage a mix of land uses that maintain and improve the City’s long-term fiscal health.

Policy LU-6.2 Continue to promote and support the vitality of commercial uses to meet the needs of local residents and that support regional-serving commercial centers.

Policy LU-6.3 Continue to prioritize commercial and industrial park use of properties north of I- 405 and within the Airport Industrial District.

Policy LU-6.4 Support the continued presence of incubator businesses in the action sports industry and jobs-producing businesses in the Westside.

Policy LU-6.5 Encourage revitalization of existing, older commercial and industrial areas in the Westside with new mixed -use development consisting of ownership housing stock and live/work units.

Policy LU-6.6 Continue to encourage and retain land uses that generate sustainable sales and property tax revenues, including regional commercial destinations and automobile dealerships.

Policy LU-6.7 Encourage new and retain existing businesses that provide local shopping and services.

Policy LU-6.8 Provide efficient and timely review of development proposals while maintaining quality customer service standards for the business, development, and residential community.

Policy LU-6.9 Support the retention and growth of Class A office tenants, including corporate headquarters for the action sports industry, biotech, and high technology companies within the City.

Objective LU-6B: Encourage and facilitate activities that expand the City’s revenue base. -77-
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Policy LU-6.10 Encourage a broad range of business uses that provide employment at all income levels and that make a positive contribution to the City’s tax base.

Policy LU-6.11 Provide opportunities for mixed -use, office, manufacturing, and retail development that respond to market and community needs in terms of size, location, and cost.

Policy LU-6.12 Track retail trends and tailor regulations to respond to market changes, maximize revenue, and maintain the appropriate business mix.

Policy LU-6.13 Encourage new development along major corridors that are pedestrian oriented and includes a mixture of retail/service, residential, and office uses.

Policy LU-6.14 Improve ease and accessibility to information to capture opportunities for businesses to establish in Costa Mesa and bring high -skill and professional jobs and new revenue sources into the community.

Policy LU-6.15 Promote unique and specialized commercial and industrial districts within the City which allow for incubation of new or growing businesses and industries.

Policy LU-6.16 Examine options for the development of new infrastructure for new technologies and businesses that use those technologies.

Objective LU-6C: Retain and expand the City’s diverse employment base, including office, retail/service, restaurants, high -tech, action sports, boutique and prototype manufacturing, and industrial businesses.

Policy LU-6.17 Engage in activities that promote Costa Mesa as a great place to live, work, and develop a business.

Policy LU-6.18 Continue to work with surrounding cities to strengthen regional economic development.

Policy LU-6.19 Provide flexibility and support for development of residential, office, small retail centers, and similar uses that would serve local residents and would also benefit from the high visibility along major corridors outside of significant commercial or industrial nodes.

Goal LU-7: A Sound Local Sustainable Economy that
Attracts Investment, Creates Educational Opportunities, and Generates Employment Opportunities
Policy LU-7.1 Endeavor to create mixture of employment opportunities for all economic levels of residents and businesses.

Policy LU-7.2 Support linkages between local educational institutions and local industries and businesses. Foster training, collaboration with employers, and new innovative programs that increase job opportunities for residents and students attending school locally.
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Policy LU-7.3 Foster and provide useful and efficient partnerships to implement economic opportunities with private, non-profit, or other public agencies.

Policy LU-7.4 Cultivate an entrepreneurial and academic environment that fosters innovation through non -traditional housing developments, flexible office spaces, experiential development, and ensuring the diversity of retail/service throughout the urban districts.

Policy LU-7.5 Support and provide flexibility for development projects and businesses which produce, care, and maintain material goods or fixed assets meant to support the production of market goods, especially for niche industries within the City of Costa Mesa.

Policy LU-7.6 Seek out opportunities to attract primary businesses within stable industries and support industries that already exist within the City.

Policy LU-7.7 Explore economic and employment opportunities to retain and strengthen the unique industry niches along Bristol and Paulari no, in the Westside, on East 17th Street, and throughout North Costa Mesa.

Policy LU-7.8 Support the development of pedestrian plazas and gathering places, and institutional spaces, as well as the more efficient use of existing spaces, to support economic growth and branding of existing industries within the City.

Goal LU-8: Promote a range of multiple uses at the
Fairview Developmental Center site
Policy LU-8.1 In anticipation of the potential closure or repurposing of the Fairview Development Center site, the City will work with appropriate State agencies or private entity (if the property is sold) to plan for a complementary mix of residential, institutional, p ublic facilities, open spaces, and recreational uses within a campus setting.

Goal LU-9: Ensure that Fairgrounds uses are consistent
with the General Plan designation
Policy LU-9.1 Discourage changes in the allowable uses specified in the Fairgrounds General Plan land use designation for the Orange County Fair & Event Center property.

Ensure that amendments to this General Plan designation are approved by the electorate.

Goal LU-10: Promote the growth of tourism
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Policy LU-10.1 Engage with property owners, developers, and business owners to encourage the revitalization of the hotel/motels.

Policy LU-10.2 Provide incentives to motel development projects seeking to improve existing motel facilities by increasing the hotel rating. These projects may include:
(a) Updating building mechanical, electrical, or plumbing to comply with current building standards
(b) Updating physical improvements to the site
(c) Adding hotel amenities to the site
(d) Updating or improving the landscaping on the site
(e) Updating or improving the façade of the building(s)

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Objective LU-10B: Promote growth of visitor-oriented land uses.

Policy LU-10.3 Motel and hotel land uses should be encouraged to be located near major transportation corridors and close to key tourist/visitor draws, other recreation venues, the airport, regional, and general local shopping centers.

Policy LU-10.4 Consider the interest of quality of stay for visitors when evaluating projects near visitor-oriented land uses by requiring on -site amenities and upscale guest services.

Objective LU-10C: Promote uses and events that make visitor -oriented business more economically viable.

Policy LU-10.5 Celebrate and promote the arts, culture, and industries of Costa Mesa through special events, civic gatherings, and City marketing and tourism promotion efforts.

Policy LU-10.6 Promote the development of small -scale manufacturing uses or other uses that generate multiple secondary and tertiary markets that support business travel tourism-related uses.

Policy LU-10.7 Maintain and enhance the City’s status and image as a centrally located destination and cultural center in Orange County.
-81-
1508
Fairview Developmental Center Specific Plan:

Current General Plan Land Use
Date: 08/11/2026Date: 08/11/2026
Legend
Low Density Residential
Medium Density Residential
High Density Residential
Neighborhood Commercial
General Commercial
Multi-Use Center
Light Industrial
Golf Course
Fairgrounds
Public and Institutional
City Limits
Specific Plan Boundary

FAIR DRFAIR DR

PLACENTIA
AV

E PLACENTIA
AV
E

MERRIMAC WAY MERRIMAC WAY

HARBOR BLVDHARBOR BLVD

FAIRVIEW RDFAIRVIEW RD

TANAGER DRTANAGER DR

ADAMS AVEADAMS AVE

JOANN STJOANN ST

W WILSON STW WILSON ST

HAMILTON STHAMILTON ST

AVOCADO STAVOCADO ST

NEWPORT BLVDNEWPORT BLVD
SHE

LLEYCIR
SHE

LLEYCIR
Source: City of Costa Mesa Source: City of Costa Mesa

VICTORIA STVICTORIA ST

EXHIBIT B
ATTACHMENT 4
1509
Fairview Developmental Center Specific Plan:

Proposed General Plan Land Use
Date: 08/11/2026Date: 08/11/2026
FDCSP
Legend
Low Density Residential
Medium Density Residential
High Density Residential
Neighborhood Commercial
General Commercial
Multi-Use Center
Light Industrial
Golf Course
Fairgrounds
Public and Institutional
City Limits
Specific Plan Boundary

FAIR DRFAIR DR

PLACENTIA
AV

E PLACENTIA
AV
E

MERRIMAC WAY MERRIMAC WAY

HARBOR BLVDHARBOR BLVD

FAIRVIEW RDFAIRVIEW RD

TANAGER DRTANAGER DR

ADAMS AVEADAMS AVE

JOANN STJOANN ST

W WILSON STW WILSON ST

HAMILTON STHAMILTON ST

AVOCADO STAVOCADO ST

NEWPORT BLVDNEWPORT BLVD
SHE

LLEYCIR
SHE

LLEYCIR
Source: City of Costa Mesa Source: City of Costa Mesa

VICTORIA STVICTORIA ST
ATTACHMENT 4
1510
ATTACHMENT 5

Ordinance No. 2026-xx Page 1 of 7

ORDINANCE NO. 2026-xx

AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF COSTA MESA,

CALIFORNIA, ADOPTING THE FAIRVIEW DEVELOPMENTAL CENTER SPECIFIC PLAN AND AMEND SECTIONS 13-20, 13-28, 13-30, CHAPTER V, ARTICLE 7, OF AND ADD CHAPTER XVIII TITLED “SPECIFIC PLANS” TO TITLE 13 OF THE

ZONING CODE AND AMEND THE ZONING MAP TO CHANGE THE ZONING DESIGNATION OF THE 110 ACRE FAIRVIEW DEVELOPMENTAL CENTER (FDC) SITE LOCATED AT 2501 HARBOR BOULEVARD TO REFER TO THE 95 ACRE FDC SPECIFIC PLAN (FDCSP) AND CHANGE THE REMAI NING 15 ACRES TO INSTITUTIONAL AND RECREATIONAL (I&R).

THE CITY COUNCIL OF THE CITY OF COSTA MESA , CALIFORNIA DOES HEREBY FIND AND DECLARE AS FOLLOWS:

WHEREAS, in June 2022, the California State Legislature adopted SB 188, enacting Government Code section 14670.31, which outlines the general terms under which the State of California, through the State Department of General Services (DGS) and the State Department of Developmental Services (DDS), will collaborate with the City of Costa Mesa (City) to determine the future of the FDC site; and WHEREAS, on October 4, 2022, the City Council of the City of Costa Mesa (City Council), authorized the City Manager to enter into a Standard Agreement with the DGS and receive State funds in an amount not to excee d $3.5 million to develop the Fairview Developmental Center Specific Plan (FDCSP); and
WHEREAS, in December of 2022, the City of Costa Mesa and DGS entered into Standard Agreement Number HD229063; and
WHEREAS, on June 13, 2023, the City released the solicitation of a Request for Proposals (RFP) for the FDCSP that was released via PlanetBids, the City’s web- based procurement system, where four proposals were received and evaluated by City staff based on the selection criteria identified in the RFP, and of the four proposals, PlaceWorks was selected as the qualified consultant to complete the FDCSP scope of work; and
WHEREAS, on August 1, 2023, the City Council approved the agreement between the City and PlaceWorks pursuant to the RFP; and WHEREAS, on Novemb er 2, 3, and 6, 2023 , a publicly noticed community workshop (Workshop No. 1) took place at various locations within the City to gather 1511

Ordinance No. 2026-xx Page 2 of 7

community input and feedback relating to the existing conditions within the FDCSP and gain insight on the community’s vision for the area; and WHEREAS, on December 12, 2023, the City Council held a study session and received a project status update on the FDCSP; and
WHEREAS, on March 25, 2024, the Planning Commission held a study session and received a project status update on the FDCSP; and
WHEREAS, throughout 2024, Workshop No. 2 (January 23, 25, and 29), Workshop No. 3 (February 29, March 4, and 6), and Workshop No. 4 (July 24, 25 and 31) were publicly noticed and each workshop was held at various locations within the City to gain community input on the draft Vision and Guiding Principles (including further refinements throughout), mobility, open space, housing, infrastructure and learn the community’s preferences on these items to incorporate greater detail within the FDCSP; and
WHEREAS, Workshop No. 4 included three land use concepts, key features and applicable analysis for each concept and a land use concept survey was made available from July 24 through August 30, 2024; and
WHEREAS, on May 27, 2025, June 23, 2025, and August 25, 2025, the Planning Commission held publicly noticed study sessions that included project background information, financial feasibility findings, summary of community engagement, and three land use scenarios to obtain their input and provi de recommendation to the City Council for a land use plan scenario to be studied for environmental review purposes and inclusion in the FDCSP which does not pre- commit the City to any action for adoption; and
WHEREAS, on October 9, 2025, the FDCSP was presented to the Parks and Community Services Commission to obtain feedback about park amenities for consideration and inclusion in the FDCSP; and
WHEREAS, on October 21, 2025, the City Council held a publicly noticed study session to review the Planning Com mission’s recommended land use plan for the FDCSP and the City Council directed staff to move forward with the Planning Commission’s recommendation to study 4,000 residential units, 35,000 square feet of 1512

Ordinance No. 2026-xx Page 3 of 7

non-residential area, and increased the minimum open space requirement from 12 acres to 14 acres which does not pre-commit the City to any action for adoption; and WHEREAS, on October 29, 2025, pursuant to the California Environmental Quality Act (CEQA) a notice of preparation (NOP) was issued and submitted to the State Clearinghouse where the FDCSP was assigned project number SCH No. 2025101405; and
WHEREAS, the NOP started the CEQA environmental review process by notifying agencies, organizations, tribes, and interested parties about the City’s plans to prepare an Environmental Impact Report (EIR), and that the written public comment period began October 29, 2025, through December 5, 2025; and WHEREAS, on November 17, 2025, a public scoping meeting was held at City Hall to solicit comments and suggestions regarding the scope and content of the EIR and environmental issues and alternatives to be considered in the EIR; and WHEREAS, on March 16, 2026, the Public Review Draft Specific Plan was made available for a 30-day public comment period that concluded on April 15, 2026; and WHEREAS, on March 24, 26, and 30, 2026, Workshop No. 5 was held at various locations within the community to introduce the community to the draft specific plan, inform them of its components, and obtain their feedback on the draft document; and WHEREAS, on May 14, 2026, a notice of availability Draft Environmental Impact Report (DEIR) was published in a newspaper of general circulation which included a 48- day public review period that occurred from May 14, 2026, through July 1, 2026, and the DEIR were made available for public review pursuant to the requirements of the CEQA Guidelines; and
WHEREAS, on May 14, 2026, the DEIR was uploaded to the City’s environmental notices webpage, provided to the County Clerk -recorder’s Office for posting, and submitted and uploaded to the State Clearinghouse (State Clearinghouse No. 2025101405); and
WHEREAS, on July 14, 2026, the Public Hearing Draft Specific Plan was made available on the project webpage which incorporates public comments r eceived during the March 2026 public comment period for the FDCSP; and 1513

Ordinance No. 2026-xx Page 4 of 7

WHEREAS, on July 15, 2026, City staff held a focus group meeting with Costa Mesa Country Club golf course clubs to discuss the secondary access road contemplated in the FDCSP and outline the future process; and WHEREAS, on July 16, 2026, the Airport Land Use Commission held a duly noticed public hearing and determined that the FDCSP was consistent with the Airport Environs Land Use Plan for John Wayne Airport; and
WHEREAS, on July 23, 2026, the City held a Community Q&A event to provide the community the opportunity to ask questions of staff in order to prepare the community for upcoming public hearings with the Planning Commission and City Council; and
WHEREAS, all workshops and the Comm unity Q&A were advertised through various means, including social media posts on Facebook, Instagram, Next Door, postcard mailers to 46,271 residential homes, email notifications to interested parties, flyer distribution and A -frame signs placed outside of City facilities, announcements made at Planning Commission and City Council meetings, and newspaper advertisements; and
WHEREAS, on July 27, 2026, the Planning Commission held a study session on the FDCSP where it received a presentation for the introduction of the July 2026 Public Hearing Draft Specific Plan, associated Zoning Code, Zoning Map, Land Use Element and Land Use Map amendments and the Draft EIR, and after public comment the Planning Commission received and filed the report and provided feedback on the FDCSP; and
WHEREAS, the implementation of the FDCSP requires amendment s to Section 13-20, 13- 28, 13 -30, and Chapter V, A rticle 7, of the Zoning Code and add Chapter XVIII “Specific Plans” to Title 13 of the Zoning Code, and update the Zoning Map , the Land Use Element of the General Plan and Land Use Map for consistency with the FDCSP to rezone the FDC site and change the Land Use Designations; and WHEREAS, on August 10, 2026 , the Planning Commission conducted a duly noticed public hearing to discuss and consider the FDCSP project and proposed amendments to Zoning Code, Zoning Map, Land Use Element and Land Use Map, with all persons having the opportunity to speak for and against the proposal and 1514

Ordinance No. 2026-xx Page 5 of 7

recommended that the City Council incorporate cl arifications included in the August 10, 2026, Memorandum to the Planning Commission, certify the Final EIR, adopt the Findings of F act and Statement of O verriding Considerations, and adopt the Mitigation Monitoring and Reporting Program; and
WHEREAS, the City Council conducted a public hearing on September 15, 2026, for the purpose of considering the FDCSP project; and
WHEREAS, the City Council has duly considered the totality of the record and all evidence submitted into the record, including public testim ony and the evaluation and recommendations by staff and Planning Commission, presented at said hearings; and WHEREAS, notices of said public hearings were made at the time and in the manner required by law; and
WHEREAS, on September 15, 2026, the City Council a dopted Resolution No. 2026-XX certifying the Final Environmental Impact Report, adopting Findings of Fact and Statement of Overriding Considerations, and adopting the Mitigation Monitoring and Reporting Program for the FDCSP project.

Now, therefore, T HE CITY COUNCIL OF THE CITY OF COSTA MESA , CALIFORNIA DOES HEREBY ORDAIN AS FOLLOWS:

Section 1. The Fairview Development Center Specific Plan is hereby adopted as shown in Exhibit A to this Ordinance . This Specific Plan is adopted for the purpose of implementing the Costa Mesa General Plan for the Specific Plan area.

Section 1. A mendments to Sections 13-20, 13-28, 13-30, Chapter V, Article 7, Add Chapter XVIII “Specific Plans”, as identified within Exhibit B and update the Zoning Map to change the zoning design ation of the FDC site located at 2501 Harbor Boulevard from “Institutional and Recreational Multi-use (I&R-MLT)” to refer to the 95- acre FDCSP area as “FDCSP” and change the remaining 15 acres of the 110- acre site to “Institutional and Recreational” zoning designation as identified within Exhibit C.

Section 2. I nconsistencies. Any provision of the Costa Mesa Municipal Code or appendices thereto inconsistent with the provisions of this Ordinance, to the extent of such inconsistencies and no further, is hereby repealed or modified to that extent necessary to affect the provisions of this Ordinance.

Section 3. S everability. If any chapter, article, section, subsection, subdivision, 1515

Ordinance No. 2026-xx Page 6 of 7

sentence, clause, phrase, or portion of this Ordinance, or the application thereof to any person, is for any reason held to be invalid or unconstitutional by the decision of any court of competent jurisdiction, such decision shall not affect the validity of the remaining portion of this Ordinance or its application to other pers ons. The City Council hereby declares that it would have adopted this Ordinance and each chapter, article, section, subsection, subdivision, sentence, clause, phrase or portion thereof, irrespective of the fact that any one or more subsections, subdivi sions, sentences, clauses, phrases, or portions of the application thereof to any person, be declared invalid or unconstitutional. No portion of this Ordinance shall supersede any local, State, or Federal law, regulation, or codes dealing with life safety factors.

Section 4. Effective Date. This Ordinance shall take effect thirty (30) days after its final passage.

Section 5. Ce rtification. The City Clerk shall certify to the passage and adoption of this Ordinance and shall cause the same to be published or pos ted i n the manner required by law.

PASSED AND ADOPTED this ___ day of _____, 2026.

_____________________________
John Stephens, Mayor

ATTEST: APPROVED AS TO FORM:

________________________ _____________________________ Brenda Green, City Clerk Kimberly Hall Barlow, City Attorney

1516

Ordinance No. 2026-xx Page 7 of 7

STATE OF CALIFORNIA )
COUNTY OF ORANGE ) ss

CITY OF COSTA MESA )

I, BRENDA GREEN, City Clerk of the City of Costa Mesa, DO HEREBY CERTIFY that the above and foregoing Ordinance No. 2026-xx was duly introduced for first reading at a regular meeting of the City Council held on the 15th day of September 2026, and that thereafter, said Ordinance was duly passed and adopted at a regular meeting of the City Council held on the ___ day of _________, 2026, by the following roll call vote, to wit:

AYES: COUNCIL MEMBERS:

NOES: COUNCIL MEMBERS:

ABSENT: COUNCIL MEMBERS:

IN WITNESS WHEREOF, I have hereby set my hand and affixed the seal of the City of Costa Mesa this ___ day of ___________, 2026.

__________________________
Brenda Green, City Clerk

1517
September 10, 2026
Public Hearing Draft
Prepared by PlaceWorks
ATTACHMENT 6, EXHIBIT A
1518

ACKNOWLEDGEMENTS
Public Hearing DRAFT | September 2026
PREPARED FOR:

City of Costa Mesa

CITY COUNCIL:

John Stephens, Mayor
Manuel Chavez, Mayor Pro Tem
Jeff Pettis, Council Member
Andrea Marr, Council Member
Loren Gameros, Council Member
Mike Buley, Council Member
Arlis Reynolds, Council Member
PLANNING COMMISSION:

Jeffrey Harlan, Chair
Jon Zich, Vice Chair
Karen Klepack, Commissioner
Johnny Rojas, Commissioner
Angely Andrade Vallarta, Commissioner
David Martinez, Commissioner
Robert Dickson, Commissioner
CITY STAFF:

Carrie Tai
Anna McGill
Melinda Dacey
Jennifer Le
Phayvanh Nanthavongdouangsy
Sheri Vander Dussen
COORDINATION WITH:

California Department of General
Services (DGS), Real Estate Division
California Department of
Developmental Services (DDS)
PREPARED BY:

1519

TABLE OF CONTENTS
Public Hearing DRAFT | September 2026
1 HISTORY & DISPOSITION PROCESS 1-1

1.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 1-2

1.2 Location and History ……….……….……….……….……….……….……….……….……….……….……….……….…... 1-2 2 INTRODUCTION 2-1

2.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 2-2

2.2 Location and Existing Uses ……….……….……….……….……….……….……….……….……….……….……….…… 2-2

2.3 Planning Context ……….……….……….……….……….……….……….……….……….……….……….……….………. 2-4

2.4 Plan Authority……….……….……….……….……….……….……….……….……….……….……….……….…………. 2-13

2.5 Relationship to Other Plans ……….……….……….……….……….……….……….……….……….……….………….. 2-14

2.6 The Planning Process ……….……….……….……….……….……….……….……….……….……….……….………... 2-20 3 VISION & GUIDING PRINCIPLES 3-1

3.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 3-3

3.2 Vision Statement ……….……….……….……….……….……….……….……….……….……….……….……….………. 3-3

3.3 Guiding Principles ……….……….……….……….……….……….……….……….……….……….……….……….……... 3-4 4 LAND USE & URBAN DESIGN 4-1

4.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 4-2

4.2 Land Use Plan ……….……….……….……….……….……….……….……….……….……….……….……….…………. 4-2

4.3 Urban Design ……….……….……….……….……….……….……….……….……….……….……….……….……….…. 4-6

4.4 Housing Plan ……….……….……….……….……….……….……….……….……….……….……….……….……….….. 4-8

4.5 Uses ……….……….……….……….……….……….……….……….……….……….……….……….……….……….…. 4-10

4.6 Development and Design Standards ……….……….……….……….……….……….……….……….……….………… 4-15 5 MOBILITY 5-1

5.1 Purpose……….……….……….……….……….……….……….……….……….……….……….……….……….………… 5-2

5.2 Mobility Plan ……….……….……….……….……….……….……….……….……….……….……….……….……….…... 5-2 6 OPEN SPACE, LANDSCAPING & PUBLIC ART 6-1

6.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 6-2

6.2 Open Space and Trails Plan ……….……….……….……….……….……….……….……….……….……….……….….. 6-2

6.3 Landscaping and Trees ……….……….……….……….……….……….……….……….……….……….……….……… 6-14

6.4 Public Art ……….……….……….……….……….……….……….……….……….……….……….……….……….…….. 6-16 7 INFRASTRUCTURE & PUBLIC SERVICES 7-1

7.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 7-2

7.2 Infrastructure, Utilities and Public Services ……….……….……….……….……….……….……….……….……….…… 7-2 8 ADMINISTRATION & IMPLEMENTATION 8-1

8.1 Purpose ……….……….……….……….……….……….……….……….……….……….……….……….……….………... 8-2

8.2 Administration ……….……….……….……….……….……….……….……….……….……….……….……….……….… 8-2

8.3 Implementation ……….……….……….……….……….……….……….……….……….……….……….……….………. 8-10 1520

LIST OF FIGURES
Public Hearing DRAFT | September 2026
FIGURE 1-1: LOCAL VICINITY .............................................................................................................................. 1-3 FIGURE 1-2: CAMPUS MAP.................................................................................................................................. 1-5 FIGURE 2-1: SURROUNDING AREA .................................................................................................................... 2-2 FIGURE 2-2: REGIONAL LOCATION .................................................................................................................... 2-3 FIGURE 2-3: CURRENT GENERAL PLAN LAND USE (2015) ............................................................................. 2-5 FIGURE 2-4: CURRENT ZONING (2025) .............................................................................................................. 2-9 FIGURE 2-5: PROPOSED GENERAL PLAN LAND USE .................................................................................... 2-11 FIGURE 2-6: PROPOSED ZONING ..................................................................................................................... 2- 12 FIGURE 2-7: JOHN WAYNE AIPORT (JWA) NOISE CONTOURS 2026 (DBL CNEL) ....................................... 2-18 FIGURE 2-8: JOHN WAYNE AIPORT (JWA) OBSTRUCTION AND NOTIFICATION ZONES ............................ 2-19 FIGURE 2-9: TYPE OF HOUSEHOLD BY SHARE OF TOTAL NUMBER OF HOUSEHOLDS, 1970–2021 ...... 2-25 FIGURE 2-10: REAL AVERAGE SALES PRICE AND REAL ESTATE AVERAGE SALES PER SQUARE FOOT FOR NEW SINGLE FAMILY HOUSING, 1971–2021 ........................................................... 2-25 FIGURE 4-1: CONCEPTUAL LAND USE PLAN ................................................................................................... 4-3 FIGURE 4-2: CONCEPTUAL SITE PLAN.............................................................................................................. 4-7 FIGURE 4-3: BUILDING FORM, SCALE, AND MASSING .................................................................................. 4- 18 FIGURE 4-4: SREOC TOWER LOCATION AND ANTENNA CLEARANCE ....................................................... 4-19 FIGURE 4-5: KEY INTERSECTIONS1 ................................................................................................................. 4- 20 FIGURE 4-6: BUILDING ORIENTATION .............................................................................................................. 4- 21 FIGURE 4-7: BUILDING FRONTAGE .................................................................................................................. 4- 25 FIGURE 5-1: EXISTING ROADWAY NETWORK ................................................................................................... 5-5 FIGURE 5-2: PROPOSED ROADWAY NETWORK ............................................................................................... 5-7 FIGURE 5-3: BACKBONE ROADWAY NETWORK ............................................................................................... 5-8 FIGURE 5-4: PROMENADE STREET SECTION OPTION 1 ................................................................................. 5-9 FIGURE 5-5: PROMENADE STREET SECTION OPTION 2 ............................................................................... 5- 10 1521

LIST OF FIGURES
Public Hearing DRAFT | September 2026
FIGURE 5-6: SHELLEY CIRCLE STREET SECTION .......................................................................................... 5-11 FIGURE 5-7: SECONDARY ACCESS THROUGH THE GOLF COURSE OPTION 1 ......................................... 5-12 FIGURE 5-8: SECONDARY ACCESS THROUGH THE GOLF COURSE OPTION 2 ......................................... 5-13 FIGURE 5-9: LOCAL ROAD, NO PARKING STREET SECTION ........................................................................ 5-14 FIGURE 5-10: LOCAL ROAD WITH PARKING STREET SECTION ..................................................................... 5-15 FIGURE 5-11: MULTI-USE TRAIL SECTION ........................................................................................................ 5- 16 FIGURE 5-12: EXISTING AND PROPOSED SURROUNDING BICYCLE NETWORK ......................................... 5-19 FIGURE 5-13: PROPOSED BICYCLE NETWORK ................................................................................................ 5- 20 FIGURE 5-14: INTERSECTION IMPROVEMENTS ............................................................................................... 5- 21 FIGURE 5-15: SREOC TURNING RADIUS VEHICLE SIZE .................................................................................. 5- 22 FIGURE 5-16: BUS STOPS AND TRANSIT ROUTES .......................................................................................... 5- 23 FIGURE 6-1: CONCEPTUAL SITE WITH OPEN SPACE ...................................................................................... 6-3 FIGURE 6-2: PROPOSED OPEN SPACE AND TRAILS PLAN ............................................................................ 6-5 FIGURE 6-3: PASEO .............................................................................................................................................. 6-9 FIGURE 6-4: OPEN SPACE ILLUSTRATIVE ...................................................................................................... 6- 10 FIGURE 6-5: NEARBY CITY PARKS AND OPEN SPACE .................................................................................. 6- 13 FIGURE 7-1: EXISTING WATER SYSTEM FACILITIES ........................................................................................ 7-6 FIGURE 7-2: PROPOSED WATER SYSTEM FACILITIES .................................................................................... 7-7 FIGURE 7-3: EXISTING SEWER FACILITIES ....................................................................................................... 7-8 FIGURE 7-4: PROPOSED SEWER FACILITIES ................................................................................................... 7-9 FIGURE 7-5: EXISTING STORM DRAIN FACILITIES ......................................................................................... 7- 10 FIGURE 7-6: PROPOSED STORM DRAIN FACILITIES ...................................................................................... 7-11 FIGURE 7-7: PUBLIC SERVICES ........................................................................................................................ 7- 14

1522

LIST OF TABLES
Public Hearing DRAFT | September 2026
TABLE 2-1: RETAIL MARKET POTENTIAL IN SQUARE FEET OF GROSS FLOOR AREA ........................... 2-27 TABLE 4-1: LAND USE STATISTICAL SUMMARY ............................................................................................. 4-5 TABLE 4-2: INCOME CATEGORIES ................................................................................................................... 4-9 TABLE 4-3: PERMITTED AND CONDITIONALLY PERMITTED USES ............................................................. 4-11 TABLE 4-4: BUILDING FORM, SCALE, AND MASSING .................................................................................. 4- 17 TABLE 4-5: SETBACKS .................................................................................................................................... 4- 23 TABLE 5-1: BUS ROUTES ................................................................................................................................ 5- 22 TABLE 5-2: PARKING REQUIREMENTS .......................................................................................................... 5- 25 TABLE 6-1: OPEN SPACE REQUIREMENTS ..................................................................................................... 6-6 TABLE 8-1: DEVELOPMENT APPLICATION PROCESS AND REVIEW AUTHORITY ...................................... 8-7 TABLE 8-2: MINOR MODIFICATIONS ................................................................................................................. 8-9 TABLE 8-3: IMPLEMENTATION AND CONCEPTUAL PHASING ..................................................................... 8-15 TABLE 8-4: ONGOING OWNERSHIP, MAINTENANCE, AND FUNDING ......................................................... 8-17

1523

APPENDICES
Public Hearing DRAFT | September 2026
APPENDIX A: DEFINITIONS
APPENDIX B: OUTREACH
APPENDIX C: MARKET STUDY
APPENDIX D: GENERAL PLAN CONSISTENCY
APPENDIX E: MICROWAVE PATH CLEARANCE REPORT FOR PROPOSED SOUTHERN REOC LOCATION APPENDIX F: TREE INVENTORY

1524

EXECUTIVE SUMMARY
Public Hearing DRAFT | September 2026
Nearly 95 acres of land available for development in
Costa Mesa is a transformative opportunity. State
disposition of the Fairview Developmental Center (FDC)
property has prioritized housing to address the pressing need to increase housing supply for workforce, veteran, individuals with developmental disabilities, and others.

Most importantly, it is an opportunity to create a vibrant, walkable, mixed-income, mixed-use neighborhood
unique to Costa Mesa and responsive to the City’s future.

This Specific Plan is the regulatory framework for future development. It documents the history of the site;
provides land use, circulation, and infrastructure
requirements; and establishes clear standards and
guidelines for processing development applications and
overall implementation of the Specific Plan. It also
provides a structured process for administration and
implementation. The FDC site has historically housed
and cared for people, a legacy that will continue through implementation of this Specific Plan.

Specific Plan and Document Structure
A specific plan is a land use tool used to implement a
city’s general plan. It establishes a link between
implementing policies of the general plan and the future development of a defined area of a city, which could be a single parcel or multiple properties. The Specific Plan itself is a special set of development standards and
must be consistent with a city’s general plan and zoning code (see Chapter 2 for more about the purpose, intent, and authority of this Specific Plan).

The FDC Specific Plan (also referred to as, FDCSP,
Specific Plan, and Plan) consists of eight chapters.

Each chapter covers a topical area and identifies its
purpose. The order of information intentionally guides
the reader through the past, present, and future of the site according to the statutory requirements for a
specific plan in Section 65451 of the California
Government Code (see Chapter 2, Section 2.4, Plan
Authority). Each chapter includes a set of objectives that are designed to implement each chapter.

Chapter 1, History & Disposition Process, documents
the location, history of the FDC property and state law pertaining to operations and reuse of the site.

Chapter 2, Introduction, provides existing conditions,
and the purpose, authority, and intent of the Specific
Plan and summarizes the planning process, including
community outreach.
1525

EXECUTIVE SUMMARY
Public Hearing DRAFT | September 2026
Chapter 3, Vision & Guiding Principles, establishes
the vision and guiding principles which serve as a guide for this Specific Plan and future development.

Chapter 4, Land Use & Urban Design, provides the
conceptual land use plan, statistical summary, and
objectives for housing developments and overall urban
design on the Specific Plan site. It includes objective development and design standards.

Chapter 5, Mobility, describes the roadway network,
including the different types of roadways and their
requirements, bicycle and pedestrian connections, and
intersections improvements.

Chapter 6, Open Space, Landscaping & Public Art,
identifies the kinds of open space that will be
incorporated within the Specific Plan area, and those
that can be implemented as part of future development.

Chapter 7, Infrastructure & Public Services, provides
information on the facilities and infrastructure needed to support future development, including electricity and
natural gas, water and sewer, waste management, and
nearby public services.

Chapter 8, Administration & Implementation, outlines
the processes and procedures for development
approvals as well as implementation of the Specific
Plan, including conceptual phasing
1526

Public Hearing DRAFT | September 2026

1527

Public Hearing DRAFT | September 2026
1 History &
Disposition Process

1528
Fairview Developmental Center Specific Plan
1-2 Public Hearing DRAFT | September 2026

1.1 Purpose
The purpose of this chapter is to provide background
information about the Specific Plan site. This includes its location, history of the Fairview Developmental Center (FDC), and relevant information about the site as a state-owned property. This context sets the foundation for the Specific Plan elements described in the following chapters.

1.2 Location and
History
The Fairview Developmental Center (FDC) is an approximately 110-acre site nestled within the Costa Mesa Country Club and accessed from Fair Drive and Merrimac Way. The FDCSP
includes 95 acres of the 110-acre site. The adjacent multi- family property, Harbor Village, is owned by the State of California and leased to a long-term housing operator. Other nearby uses include the Harbor Shopping Center across
Harbor Boulevard and additional multi-family housing south of the golf course, including the Joann Street neighborhood.

Figure 1-1, Local Vicinity, shows the FDC property and
adjacent uses.

Historical Resources Inventory and Evaluation Report Fairview Development Center Costa Mesa, California (2020); Photograph printed in Costa Mesa Historical Society, Images of America: Costa Mesa, 1940-2003 (Charleston, South Carolina: Arcadia Publishing, 2016), 49. 1529
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Figure 1-1: Local Vicinity

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Historical Resources Inventory and Evaluation Report Fairview Development Center Costa Mesa, California (2020); (photograph published in “Fairview: Costa Mesa State Hospital will have a New Name, Image,” January 10, 1983, Fairview State Hospital Clippings File, from the Collections of CMHS.

Historical Resources Inventory and Evaluation Report Fairview Development Center Costa Mesa, California (2020) Lee Payne, Staff Photographer, photograph published in Costa Mesa Globe-Herald and Pilot: Fairview Hospital Special Edition, May 4, 1961, 9.

Historical Resources Inventory and Evaluation Report Fairview Development Center Costa Mesa, California (2020); Lee Payne, Staff Photographer, photograph published in Costa Mesa Daily Globe-Herald: Fairview State Hospital Dedication Issue, May 4, 1961, 2, from the Collections of the Costa Mesa Historical Society, Costa Mesa, California [CMHS].

1.2.1 Fairview Developmental
Center History
The FDC was one of three State- operated facilities built in the 1950s to meet expanding demand for facilities focused on mental illness, and beds were also added to care for severe developmentally disabled individuals. The FDC opened in 1959 as the “Fairview State Hospital.” The hospital provided general acute care, skilled nursing care, intermediate care, and acute crises services to individuals with intellectual and developmental disabilities. This was due to the expanding population of baby boomers and increased demand from families seeking access to public care. The history of FDC reflects the changing understanding of developmental disability in modern America. Post-war, public mental health institutions in California grew rapidly, with new hospitals developed and existing facilities expanded.

The FDC was the third-newest state hospital facility established during this time period.

To develop the hospital, the State purchased 750 acres from George H. Capron for $410,000 and certain mineral rights in 1950. The center consists of 39 buildings built between 1953 and 1974. The FDC was designed to house up to 4,125 residents and had an initial bed capacity of 2,622. Facilities also included a work activity center, auditorium, park, recreational campsite (referred to as “Shannon’s Mountain”), and a library.

Since 1979 the property has totaled about 115 acres , including the five-acre plant operations site off of Merrimac Way and staff housing along Mark Lane, as shown on Figure 1-2, Campus Map. Over time, surplus land was sold to the City of Costa Mesa with the stipulation that it be preserved as open space. Today those areas are Fairview Park and the Costa Mesa Country Club. An historic assessment of the site is included in the Environmental Impact Report (EIR) that accompanies this Specific Plan.
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Figure 1-2: Campus Map
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1.2.2 State-Owned Property
The FDC is a State-Owned and-operated facility regulated by many legislative bills. In the late 1960s, the state of California approved a series of legislative acts that fundamentally transformed the delivery of care for mental health and
individuals with developmental disabilities. Two acts—the Lanterman Mental Retardation Services Act of 1969 and
subsequent Lanterman Developmental Disabilities Services Act in 1976—not only acknowledged the civil liberties of these individuals but improved facilities, requiring living conditions to more closely resemble a home environment.

These bills also established Regional Centers, and as a result, life-long care in “large” hospital-like institutions was used less and less. Since the early 2000s, State legislation has
recognized, provided money to plan for, and ultimately
regulated interim use of and ultimate disposition of these State facilities. The side panel summarizes bills that directly influenced disposition of the FDC property and creation of this Specific Plan.

Disposition Process
Two state departments are responsible for the FDC property.

The Department of General Services (DGS) and the
Department of Developmental Services (DDS). Senate Bill 188 identified DGS as the lead agency of the disposition process for the property; therefore, this project is not subject to the Surplus Land Act. As the lead agency for operations at the FDC, DDS is expected to retain up to a 20-acre portion of the property, as authorized by Senate Bill 82. The state will initiate a process to select a Master Developer for the site who may purchase or lease the property.

Lanterman Developmental
Disabilities Services Act
The Lanterman Development Disabilities
Services Act, AB 846, outlines the rights of
individuals with developmental disabilities and
their families. It also describes how regional
centers can provide help to these individuals,
what services are available, and various ways
to access support. This act was passed in
response to the lack of options for those with
developmental disabilities and the need for
greater services and support.

The act was an extension of 1965 legislation
that authorized the establishment of two pilot
regional centers in the state, one in San
Francisco and one in Los Angeles. After the
pilot regional centers were determined to be
successful, the original Lanterman Mental
Retardation Services Act, AB 225, was
passed in 1969 to extend the network of
regional centers. The act was renamed the
“Lanterman Developmental Disabilities
Services Act” in 1976 and expanded to
include a wider range of developmental
disabilities. It has been amended and
expanded over time to provide more support
and services to those with developmental
disabilities.
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Southern Regional Emergency
Operations Center
As a part of the redevelopment plan for the property, the California Governor’s Office of Emergency Services (Cal OES) approved a Southern Regional Emergency Operations Center (SREOC) on 15 acres at the southwestern corner of the FDC site, shown on Figure 1-1, Local Vicinity. The SREOC will remain in property ownership with the State, supporting full- time staff and establishing a regional hub for critical emergency management planning and emergency preparedness services in support of local agencies. The SREOC is not within the Specific Plan boundary.

The approved plans for the SREOC include:
 A 39,000-square-foot, single-story office building.
 A 21,000-square-foot support warehouse building.
 A 120-foot-tall communications tower.
 Parking that includes photovoltaic shade canopies.
 A helipad was studied in the original plans but later deemed unnecessary.

Construction of the SREOC site commenced during preparation of this Specific Plan and is expected to be completed by the end of 2027. This will be the second emergency operations center in the state, intended to complement the existing State Operations Center in the city of Mather.

State Regulation and Legislation
Senate Bill 82
SB 82, passed in 2015, allows up to 20 acres of the Specific Plan area to be used for new housing for the developmentally disabled. Fifteen of these acres are for DDS housing, and the remaining five acres are for complex needs housing. The project permitted by the bill is Mixed-Income State Housing and was formerly known as “Shannon’s Mountain.” While the
legislation allows for supportive housing on-site requiring 20 percent of the units developed to be available and affordable to Regional Center of Orange County (RCOC) consumers, the
development options within this Specific Plan include
integration with new housing throughout the Specific Plan area.

Senate Bill 188
SB 188, passed in 2022, authorized DGS to enter into an agreement with the City of Costa Mesa for the City to develop a specific plan for the FDC property and to manage the land use planning process. The intent of the legislation is for expeditious planning and disposition for affordable and permanent
supportive housing at the property.

Consistent with Government Code Section 14670.31, the
Agreement specifies that:
 Housing shall be a priority in the planning process;
 Any housing that is determined to be appropriate for the property shall include affordable housing; and
 Any housing opportunities on the property shall give
priority to projects that include deed restricted housing for individuals with developmental disabilities.
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2 Introduction

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2.1 Purpose
The purpose of this chapter is to provide an understanding of the Plan Area, and its surrounding context. This information is a critical component of the Specific Plan process, ensuring that future development fits within the existing community,
enhances what is already in place, and aligns with the
community’s long-term vision. This vision is outlined in the General Plan and implemented through various planning tools, such as development standards and other adopted plans.

This chapter includes an overview of the project location, existing uses, as well as the planning context, such as the General Plan, zoning, and other relevant plans. Together, this information forms the foundation for this Specific Plan.

Figure 2-1: Surrounding Area

2.2 Location and
Existing Uses
The Fairview Developmental Center Specific Plan (FDCSP) area covers approximately 95 acres of the existing 110-acre Fairview Developmental Center (FDC) property at 2501 Harbor Boulevard in the City of Costa Mesa in Orange County,
California. The City of Costa Mesa is nestled between the cities of Huntington Beach, Fountain Valley, Santa Ana, Irvine, and Newport Beach (see Figure 2-2, Regional Location Map).

Within Costa Mesa, the Plan Area is just west of Harbor Boulevard and south of Tanager Drive. The Costa Mesa
Country Club surrounds it to the east, south, and west. There are some residential uses, including the Harbor Village Apartments, directly north of the project site as well as residential and commercial uses east along Harbor Boulevard and to the north of Tanager Drive. Orange Coast College is east of Harbor Boulevard. Fairview Park and Estancia High School are just west of the Costa Mesa Country Club (see Figure 2-1, Surrounding Area). This creates a wide range of uses around the Plan area, including recreational, open space, educational, residential, and commercial land uses.

As discussed in Chapter 1, this Specific Plan guides the future redevelopment of the FDCSP plan area. The site is developed from the time when the facility was in full operational use. The existing development includes buildings, parking areas, other paved areas, landscaping/grass areas, and associated
infrastructure (street network, water, sewer, utilities, etc.). While these buildings and infrastructure are still on-site, the facility was shut down in late 2025.
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Figure 2-2: Regional Location

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2.3 Planning Context
The current land use policy and regulations for the City and plan area informed the creation of this Specific Plan. The two most important land use tools that guide planning decisions are the General Plan and Zoning Code. Current designations and standards for both are discussed below as well as the
amendments required for consistency with this Plan.

2.3.1 General Plan
A general plan is a long-term planning document that helps set policy to guide future land use and development in a
jurisdiction by providing policy direction through an established vision and subsequent goals, objectives, and policies. The City of Costa Mesa adopted a comprehensive update to the
General Plan in 2016, with a time horizon from 2015 to 2035.

California law requires local jurisdictions to include a minimum of seven mandatory general plan elements: Land Use, Circulation, Housing, Conservation, Noise, Safety, and Open Space. Each jurisdiction has authority to include additional elements for issues important to the long-term vision of the community and may combine elements. Costa Mesa includes three additional elements: a Growth Management Element, a Community Design Element, and a Historic and Cultural Resources Element. In addition, Costa Mesa includes recreation policies in its Open Space and Recreation Element. A series of amendments to some of the Costa Mesa General Plan Elements are required for internal consistency; these include and may not be limited to: the Land Use Element, Circulation Element, and Housing Element.

The implementation of the General Plan ensures that
development in the City is consistent with the community’s vision for the future.

Costa Mesa: A Vision for
Land Use and Mobility
"Costa Mesa is a vibrant community where
residents and visitors can enjoy all our City has
to offer. From the youthful and eclectic to the
established and historical, our community
features opportunities unparalleled in Southern
California. Our neighborhoods are diverse,
distinctive, and safe. Our commercial districts
offer world-class shopping and are home to
thriving businesses including the creative class,
technology, and automotive ventures. Every
day, hundreds of children and adults enjoy our
abundant parks and open spaces. The City
offers exciting and unique cultural opportunities
that draw visitors from all over Southern
California and enrich the lives of our residents.

The founding principles that established our
community as a great place to live and own a
business are still in place. We anticipate, adapt,
and plan ahead. As a result, we are able to
respond to regional influences in ways that
continue to move Costa Mesa in positive
directions. The City ensures new development
is economically and environmentally
sustainable, and is compatible in scale and
character with our neighborhoods.”
Costa Mesa, City of. 2016. 2015-2035 General Plan.
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Figure 2-3: Current General Plan Land Use (2015)
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The goals and vision of this Specific Plan, described in greater detail in Chapter 3, Vision and Guiding Principles, align with the goals and vision of the General Plan, specifically the Land Use, Housing, and Open Space and Recreation elements.

Land Use Element
The Land Use Element is the most important General Plan element for new development and its physical form in the City because it indicates the location and extent of development that is permitted.

The Land Use Element also specifies land use designations for all parcels within the Costa Mesa city limits (see Figure 2-3, Current General Plan Land Use). The Land Use Element
designated a majority of the Plan area as Multi-Use Center, a designation that only applies to the FDC site. A small area around Fair Drive was designated Medium-Density Residential.

As described in the General Plan, the designation was
intended to integrate a range of land uses with low-to-moderate intensities that are urban in character. This designation allowed for 582 total residential units in a range of intensities. However, through the Specific Plan process, the Land Use Element was amended to align with this Plan and the Housing Element, as described in Section 2.3.3, which allows for increased
residential density on the site, consistent with this Specific Plan. This Specific Plan is an implementation tool consistent with the Land Use Element.

Directly surrounding the Plan area to the east, west, and south, the land is designated Golf Course. Directly adjacent to the north, land is designated High Density Residential (20 du/ac) or Medium Density Residential (12 du/ac). The areas beyond the adjacent land uses include:
 Low Density Residential (8 du/ac): accommodates
detached single-family residences.
 Medium Density Residential (12 du/ac): supports
single- and multi-family developments.
 High Density Residential (20 du/ac): intended for
residential development.
 Public Institutional: includes uses such as recreational and open spaces; levels of building intensity are
minimal.
 Neighborhood Commercial: retail that caters to
residents' convenience shopping and service needs,
allowing for uses such as markets, drug stores, retail
shops, financial institutions, service establishments, and support offices.
 General Commercial: allows for diverse commercial
uses catering to local and regional needs; typically
results in one- and two-story commercial buildings, a
residential density of less than 20 dwelling units per
acre, and a FAR from 0.25 to 0.75.
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Housing Element
The Housing Element outlines how the City will meet current and future housing needs for residents. It exists on a different schedule than the other elements of a general plan. California law requires jurisdictions to review and revise housing elements every eight years, and they have more specific and detailed requirements than other elements. Cities must demonstrate their ability to meet the Regional Housing Needs Assessment (RHNA) allocated to them by their respective association of governments.

The Costa Mesa Housing Element was most recently updated in 2023 for the 2021-2029, 6th Housing Element Cycle.

As part of the Housing Element process, jurisdictions must conduct a site analysis and identify potential candidate housing sites by income category to meet the City’s RHNA. Costa Mesa’s 6th Cycle Housing Element identified the FDC site as one of these candidate sites, allocating 2,300 residential units of its RHNA to this site. This allocation includes 575 very low-income units, 345 low-income units, 690 moderate-income units, and 690 above moderate-income units. As mentioned previously, the General Plan Land Use Element was amended so the site could adequately accommodate this housing supply, described in the Housing Element. This was the basis for determining the potential buildout of residential units described in this Specific Plan. Additionally, this Specific Plan is consistent with the goals and policies of the 2021-2029 adopted Housing Element.
.

Open Space and Recreation Element
The Open Space and Recreation Element is intended to help ensure the sustainability of open space and recreational resources available to the community of Costa Mesa. The goals, policies, and objectives from this chapter of the General Plan work to protect, maintain, and enhance open spaces and recreational opportunities. This Specific Plan is consistent with the Open Space and Recreation Element of the General Plan.

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2.3.2 Current Zoning
The current zoning of the FDCSP site is primarily Institutional & Recreational–Multi-Use (I&R-MLT). This is the implementing zone for the Multi-Use Center General Plan Land Use
designation (see Figure 2-4, Current Zoning). A small amount of Planned Development Residential–High Density (PDR-HD) can also be seen around Fair Drive, which is intended for residential uses and allows up to 20 dwelling units per acre. Future zoning for the FDCSP area is regulated by this Specific Plan, as discussed in Section 2.3.3.

The land adjacent to the Plan area on the east, west, and south, where the golf course is, is zoned Institutional and Recreational (I&R). Just north of the Specific Plan area is zoned Planned Development Residential–High Density (PDR-HD), with a small amount of Planned Development Residential–Medium Density (PDR-HD) near Fair Drive. The areas beyond the adjacent zoning designations include:

 R1, Single-Family Residential: intended to promote the development of single-family detached units on lots with a minimum lot size of 6,000 square feet and a maximum
density of 7.26 dwelling units per gross acre.
 R2-MD Multiple-Family Residential, Medium Density:
intended to promote the development of multi-family
rental as well as ownership properties on lots with a
minimum size of 12,000 square feet; the maximum
density allowed is 12 dwelling units per gross acre, and lots with a minimum lot area of 6,000 to 7,260 square
feet are allowed two dwelling units.
 R3, Multiple-Family Residential: intended to promote
the development of multi-family rental as well as
ownership dwelling units; the required minimum lot size is 12,000 square feet, and the maximum density allowed
is 20 dwelling units per gross acre.
 C1, Local Business: aims to cater to the community's
business needs by offering a diverse range of goods and services in various locations, to minimize impacts on
surrounding properties, particularly in areas with
residential use nearby, through permitted and
conditional uses.
 C2, General Business: intended to offer a wide range of goods and services that are generally less compatible
with sensitive land uses of a residential or institutional nature.
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Figure 2-4: Current Zoning (2025)

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2.3.3 Proposed General Plan
and Zoning Designation for
FDC and SREOC Site
Adoption of this Specific Plan requires approval of an
amendment to the City's General Plan. The amendment
includes text and map changes to the Land Use Element for consistency with this Plan and the Housing Element. As shown in Figure 2-5, Proposed General Plan Land Use, the land use designation for the FDCSP site has been updated to FDCSP, and the SREOC site is Public and Institutional. The
amendment was adopted by Ordinance No. XXXX-XX.

Similarly, this Specific Plan replaced the current zoning designation. This Plan contains development standards,
permitted uses, and administrative processes for any future development on the site and serves as the implementation tool for the plan area. The City's Zoning Code and Zoning Map were updated to designate the property as the FDCSP and zone the SREOC site as Institutional Recreational by
Ordinance XXXX-XX, as shown in Figure 2-6,
Proposed Zoning.

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Figure 2-5: Proposed General Plan Land Use
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Figure 2-6: Proposed Zoning
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2.4 Plan Authority
This Specific Plan was prepared in conformance with
California Government Code Title 7, Division 1, Chapter 3, Article 8, Section 65450 et seq.; the City of Costa Mesa General Plan; and the Costa Mesa Municipal Code (CMMC), and has been adopted by Ordinance No. XXXX-XX.

The FDCSP serves as the zoning for the Plan area. The
Plan addresses general provisions, permitted uses,
development and design standards, and mobility and
infrastructure improvements. Proposed development plans, tentative tract or parcel maps, and any other development approval pertaining to land or property governed by this Plan must be consistent with this Specific Plan.

The Plan supersedes the otherwise applicable City of Costa Mesa development standards, municipal code, and zoning
code and regulations unless otherwise stated herein.

Whenever the requirements and standards conflict with the CMMC—including the zoning code—this Plan shall take
precedence. Where the Plan is silent, the CMMC shall apply, using the context and objectives of the FDCSP as a guide.

It is intended that public works projects, design review plans, detailed site plans, grading permits and building permits, or any other action requiring ministerial or discretionary approval applicable to this area be consistent with this Specific Plan.

What is a specific plan?
A specific plan is a land use tool that local governments use to regulate development in a focused area of the community.

A city's general plan is the guide for growth and
development citywide; a specific plan implements a general plan by focusing on the unique characteristics of a special area. Customized standards and land use regulations
replace traditional zoning for that area. California
Government Code, Title 7, Division 1, Chapter 3, Article 8, Sections 65450 through 65457, allows cities and counties to prepare specific plans to develop policies, programs,
regulations, and guidelines to implement the jurisdiction’s adopted general plan. As prescribed by law, a specific plan includes text and diagrams that generally describe:
 The distribution, location, and extent of all land uses.  The standards and criteria by which new
development will proceed.
 The proposed distribution, location, extent, and
intensity of major components of public
infrastructure, such as transportation and utility
systems.
 A program of implementation measures, such as
financing options, policies, regulations, and public
works projects.

The FDCSP provides a Master Developer, City staff, the
public, and decision makers with information on the overall intent for the FDCSP area, design standards to facilitate implementation, and any future changes.
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2.5 Relationship to
Other Plans
This Specific Plan is consistent with the City of Costa Mesa’s local planning documents. The following describes the regulatory setting of other planning documents and programs or agencies with regulatory oversight that influenced this Plan and should continue to be consulted throughout implementation of this Plan.  City of Costa Mesa General Plan, 2016
 City of Costa Mesa Housing Element, 2023
 City of Costa Mesa Municipal Code
 City of Costa Mesa Arts & Culture Master Plan, 2021
 City of Costa Mesa Parks, Recreation, and Open Space
Master Plan, 2018, Draft
 City of Costa Mesa Active Transportation Plan
(ATP), 2018
 City of Costa Mesa Pedestrian Master Plan (PMP), 2024  City of Costa Mesa Climate Action & Adaptation Plan
 Orange County Transportation Authority Long Range
Transportation Plan (LRTP), 2045
 Southern California Association of Governments,
Connect SoCal: 2020-2045 Regional Transportation
Plan / Sustainable Communities Strategy
 Airport Land Use Commission, Airport Environs Land
Use Plan for John Wayne Airport, 2008

City of Costa Mesa General Plan, 2016
State law requires that each jurisdiction adopt a general plan that serves as a long-term
framework to guide future
development, public investment,
and community programs based
on the community’s vision. The
General Plan establishes goals
and policies related to land use,
mobility, community design,
housing, open space,
conservation, noise, and safety,
all of which directly informed the
development of this Specific
Plan. The Specific Plan is an
implementation tool of the
General Plan to guide future
development for the area.

City of Costa Mesa Housing Element, 2023
The Housing Element identifies the City’s housing needs and establishes programs to facilitate production of housing across income levels, consistent with State requirements and the RHNA. As a major opportunity site identified in the Housing Element, the FDC site plays a key role in helping the City meet its RHNA obligations for the 2021–2029
planning period.
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This Specific Plan incorporates a
range of housing types and
densities envisioned in the
Housing Element and provides
zoning, development standards,
and implementation processes
that directly support the City’s
housing production strategies. The
Plan’s focus on walkability,
proximity to services, and
multimodal transportation
connections also advances
Housing Element objectives
related to fair housing, sustainable
development patterns, and
reducing barriers to housing for all community members.

City of Costa Mesa Municipal Code
The Costa Mesa Planning, Zoning and Development Code
(Title 13 of the Municipal Code) governs property development in the City. As the primary regulatory document for development in the project, the Specific Plan establishes regulations that may differ from the Zoning Code requirements where necessary to effectively implement the General Plan and the Specific Plan vision. Where inconsistencies between the Zoning Code and Specific Plan occur, the Specific Plan shall prevail.

City of Costa Mesa Arts & Culture Master Plan,
2021
The Arts & Culture Master Plan sets a citywide vision for expanding public art, supporting creative expression, and strengthening Costa Mesa’s identity as the “City of the Arts.” The Specific Plan advances these goals by incorporating opportunities for public art, culturally oriented gathering spaces, and design features that celebrate local creativity. The Plan’s emphasis on walkability and community spaces helps extend arts and cultural experiences throughout the project area which further strengthens Costa Mesa’s identity and ensures that future development enriches the community’s creative and cultural landscape.

City of Costa Mesa Parks, Recreation, and Open
Space Master Plan, 2018, Draft
Although in draft form, the Parks, Recreation, and Open Space Master Plan provides guidance for how improvements and expansions of recreational facilities, open spaces, and trail connections are implemented citywide. It emphasizes
accessible, high- quality parks that support community health, outdoor activity, and environmental sustainability. This Specific Plan aligns with the Parks, Recreation, and Open Space Master Plan by providing a connected network of parks, greenways, and multi-use paths within the project area. The Specific Plan’s open space framework enhances local recreation opportunities, improves connectivity, and supports the City’s broader goals for equitable and resilient outdoor environments.

The Costa Mesa Municipal Code can be found at:
https://ecode360.com/CO4918

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City of Costa Mesa Active Transportation Plan,
2018
The Active Transportation Plan (ATP) provides goals, programs, and actions to improve non-motorized travel infrastructure, increase safety, and promote cycling and walking as viable travel modes. This Specific Plan is consistent with the ATP’s objectives by encouraging pedestrian and bicycle connectivity within the project area and with surrounding neighborhood s, transit facilities, and commercial areas . Design elements such as sidewalks, multi-use paths, bike lanes, and trail connections will implement the ATP’s recommended network improvements.

Proposed non-motorized facilities are integrated into the broader active transportation network.

City of Costa Mesa Pedestrian Master Plan, 2024
The Pedestrian Master Plan (PMP) provides goals, objectives, and policies to enhance the pedestrian environment where pedestrian activities occur. The PMP identifies pedestrian opportunity zones throughout Costa Mesa. Although the FDC site and adjacent right-of-way along Harbor Boulevard are not identified as a pedestrian opportunity zone, this Plan prioritizes a pedestrian environment and meets the goals of the PMP.

City of Costa Mesa Climate Action & Adaptation
Plan
The City of Costa Mesa is developing its Climate Action & Adaptation Plan (CAAP), a comprehensive roadmap to reduce GHG emissions from both community-wide and municipal
sources. The plan will establish GHG emission reduction targets and outline a pathway to align with California’s statewide climate goals.

Orange County Transportation Authority, Long
Range Transportation Plan, 2045
The Long Range Transportation Plan (LRTP) is a countywide planning document that identifies strategies and projects to meet Orange County’s mobility needs through 2045. While the LRTP is currently being updated, this Specific Plan recognizes the importance of coordinating with OCTA’s planning efforts to ensure consistency with regional transportation priorities, including roadway improvements, transit service expansion, and multimodal connectivity. Proposed transportation
improvements will be designed to support OCTA’s objectives by enhancing access to transit corridors, accommodating
projected traffic volumes, and contributing to regional mobility goals. Continued consultation with OCTA will ensure that project implementation aligns with evolving LRTP
recommendations and potential future connections to the site.

Southern California Association of Governments,
Connect SoCal: 2020-2045 Regional
Transportation Plan/Sustainable Communities
Strategy
Connect SoCal is a long-range regional plan that balances future mobility and housing needs with economic,
environmental, and climate-related goals. This Specific Plan supports the Connect SoCal vision by promoting transit- oriented development, multimodal access, and infrastructure that accommodates growth consistent with regional
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housing, employment, and transportation connections, are intended to align with SCAG’s growth forecasts, reduce vehicle miles traveled, and enhance access to regional transit and active transportation networks. Coordination with SCAG
ensures that the project contributes to regional goals for smart growth, air quality improvement, and climate adaptation strategies.

Airport Land Use Commission, Airport Environs
Land Use Plan for John Wayne Airport, 2008
State law Section 65302.3 requires a city’s general plan and specific plans to maintain consistency with the county’s airport environs land use plan (AELUP). The AELUP establishes
policies intended to protect public health and safety in areas surrounding airports and to support the long-term viability of airport operations. Infill development in an AELUP planning area must demonstrate compliance with all relevant policies and mitigation measures, including but not limited to sound attenuation requirements, height limitations, and occupancy restrictions.

The FDCSP site is located approximately 2.5 miles west of John Wayne Airport (JWA), placing it outside of any noise contours, but within the notification area for the airport; see Figure 2-7, John Wayne Aiport (JWA) Noise Contours 2026 (dBL CNEL), and 2-8, John Wayne Aiport (JWA)Obstruction and Notification Zones. Notification zones are delineated areas where developers and property owners are required to notify tenants or buyers of the nearby aircraft operations. Fair Drive, the primary entrance into the FDCSP site, also falls within one of the obstruction contours. These are the areas that have height restrictions to ensure safe aircraft operations.

ALUC staff reviewed the Plan with respect to compliance with the AELUP for JWA, including review of noise, height
restrictions, safety, overflight and imaginary surfaces and found that future development under the FDCSP that exceeds the 100:1 Notification Surface will be required to file Form 7460-1 with the FAA.

John Wayne Airport Notification Area, Airport Land Use Commission Airport Environs Land Use Plan, 2008.
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Figure 2-7: John Wayne Aiport (JWA) Noise Contours 2026 (dBL CNEL) 1553
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Figure 2-8: John Wayne Aiport (JWA) Obstruction and Notification Zones

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2.6 The Planning
Process
The planning process is the foundation for this Specific Plan. It involved a series of community outreach events, a market study, and discussions with both Local and State agencies. Through this process, a direction for the site was reached, rooted in public input, as well as economic feasibility.

2.6.1 Community Outreach
Community participation was integral to creating a plan for the FDC that reflects Costa Mesa’s values and vision. Outreach began in 2023 with the first series of workshops. In the fourth workshop, participants were offered the opportunity to take a Land Use Concept Survey, which was used to inform the land use plan (see Chapter 4). Other activities included decision- maker study sessions with both City Council and Planning Commission, stakeholder interviews, a dedicated project website, www.fdcplan.com, and the use of a variety of
advertising solutions (newspaper ads, citywide mailers, and social media posts) for greater community reach. Feedback received through these efforts informed this Specific Plan.

Summaries for each event can be found in Appendix B.

Community Workshops and Open
Houses
The project held a series of five workshops/open houses, with two in-person meetings and one virtual meeting per workshop.

Presentations and materials were provided in both English and Outreach process poster from the Workshop 3 Series

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Spanish. Detailed summaries and materials can be found in Appendix B, Outreach Materials. A brief overview of each workshop and their related activities is provided here.

Workshop #1: November 2nd, November 3rd, November 6th, 2023 Approximately 114 attendees participated in the first workshop at the Costa Mesa Senior Center and Zoom meeting, with 65 on the first night, 10 on the second, and 39 on the third. The first meeting night was held in English, the second was in Spanish, and last provided both English and Spanish online. The meeting began with introductions of City staff and consultants and a presentation outlining the project, site context, and other obligations, such as meeting Housing Element requirements. Time was given for questions from participants.

Next, a group activity engaged attendees, asking them “What are the ingredients of a great neighborhood?” Around the room, community members worked in small groups, writing their responses and ideas on posters. Each group reported out, and a discussion of recurring themes followed. Participants were notified of the next workshop, and the project’s website was promoted.

Workshop #2: January 23rd, January 25th, January 29th, 2024 Approximately 129 attendees participated in the second workshop at the Costa Mesa Senior Center and Zoom meeting, with 87 on the first night, 9 on the second, and 33 on the third. The first night was held in English, the second was in Spanish, and the last night was held in both English and Spanish online. The meeting began with team introductions, followed by a presentation providing project background, timeline, and a summary of Workshop 1, while allowing time for questions from participants. The presentation included the draft Vision and Guiding Principles, and an open house with community members followed. Next, draft Circulation and Open Space Concepts were presented, with a poll for in- person participants and break-out room discussion for virtual participants for feedback. Comment cards were also used to gather community feedback. Lastly, Cal OES presented plans for the Emergency Operations Center. Participants were notified of the next workshop, and the project’s website and StoryMap of existing conditions were promoted.
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Workshop #3: February 29th, March 4th, March 6th, 2024
Workshop #3 was held as an open house, with approximately 176 attendees participating over three nights. The first night was hosted close to the FDC site at the Costa Mesa Country Club and had 57 attendees The second night was hosted at Harbor Iglesia Church with 94 people in attendance. The third night offered 25 participants a virtual opportunity to participate via Zoom. Each meeting was in both English and Spanish. The meeting offered five interactive stations for participants to learn about the project: Open House Information, Housing, Mobility and Traffic, Parks and Open Space, and Infrastructure.

Participants had the opportunity to ask questions and engage in different activities at each station. Comment cards were also collected for additional feedback.

Workshop #4: July 24th, July 25th, July 31st, 2024
Workshop #4 was held as an open house. Approximately 58 attendees came to the fourth workshop at the Costa Mesa Senior Center—24 at the first, 19 at the second, and 15 at the third. Each meeting was in both English and Spanish. This open house reviewed and discussed three land use concepts for the Specific Plan: Fairview Promenade, Fairview Fields, and Fairview Commons. The meeting began with a presentation in English and Spanish explaining the project process, main factors, and the three land use concepts. The open house included five interactive stations for participants to learn about the three concepts: Project Information and Land Use Concepts, Housing, Mobility and Traffic, Open Space and Parks, and Infrastructure and Site Development. A land use survey and comment cards were utilized to receive feedback from the community. The workshop concluded with next steps and project timeline, including notification of pop-up events, survey results, and presentation dates to Planning Commission and City Council.
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Workshop #5: March 24th, March 26th, March 30th, 2026
Workshop #5 was held as an open house. Approximately 121 attendees came to the fifth workshop. Materials were provided in both English and Spanish, including live translation. This workshop was held to share the draft specific plan document with the public. Attendees were encouraged to ask questions and provide their thoughts on the plan to the project team. Each event began with a brief presentation to provide some background information on the project.

Attendees were then invited to visit six stations, each focused on an individual aspect of the Plan: Overview, Land Use, Development Standards, Mobility, Open Space, and Infrastructure and Public Services. The in-person open houses also had a seventh station with an Open Space Block Activity, where participants were invited to arrange wood blocks and park amenities on a scaled base map to explore different site configurations and trade-offs between development and open space. The draft specific plan document was available for a 30-day comment period from March 16, through April 15, 2026. The community could submit written comments at any time on individual components of the draft or on the entire draft plan, via email or through a web-based comment collector on the project website.

Planning Commission and City Council Meetings
There were seven City Council and Planning Commission Meetings that either focused on or had sections about the FDCSP. These meetings informed participants and allowed for public comment. Presentation materials can be found in Appendix B.

Website and Social Media
A dedicated project website, www.fdcplan.com, provided a platform for community members and stakeholders to learn about the FDCSP. The website outlined the project and vision, summarized outreach efforts, documented existing conditions in an interactive mapping tool, and provided project resources. The website and social media posts were used to notify community members of upcoming outreach events and project updates. 1558
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2.6.2 FDCSP Market Study (2024)
As part of the FDCSP process, PlaceWorks prepared a market study for Costa Mesa. This analysis was produced in January 2024 to gain a better understanding of the market demands for the area. This study provides a general overview of the drivers of the current market and projections for market conditions in the future to guide public discussion while developing the Plan.

The full market study can be found in Appendix C, and an overview of the findings used to inform the planning process and the Specific Plan is provided here.

Overview and Findings
The City’s 2021-2029 Housing Element currently envisions that the redevelopment of the FDC will result in 2,300 new housing units, of which 575 would be very low-income housing units, 345 low-income housing units, and 690 moderate-income housing units. Given the limited supply and high demand for housing as well as State and City priorities for residential development on the FDC site, meeting and/or exceeding the Housing Element allocation is reasonable for future development. To support future households, the analysis also finds that between 29,500 to 55,900 square feet of gross floor area for retail businesses and another 76,500 square feet of gross floor area for other commercial businesses (such as office uses) could be
accommodated. For the purposes of this Specific Plan,
approximately 35,000 square feet of retail businesses and another 76,500 square feet of gross floor area for other commercial businesses (such as office uses) could be
accommodated.

Housing Demand
Costa Mesa is largely made up of single-family detached and attached housing units, reflecting the historic trend of a population largely made up of family households with children.

While the other significant portion of the City's housing supply is made up of multi-family units, the study indicates that most current, recent, and future households in the City will not have children and will generally include three people or fewer.

At a national and regional level, trends show that families are shrinking, and the number of births and fertility rate have both been declining since 2007. This is reflected in the decrease in households of married couples with children under 18 and households with children under 18 regardless of marital status.

Additionally, the number of single people who live alone is increasing. Figure 2-9: Type of Household by Share of Total Number of Households, 1970-2021 shows this trend.

In many areas across the United States, including California, housing supply is not meeting housing demand. The number of new housing units built between 2009 and 2019 was
substantially lower than the number of units needed per year and has only recently returned to the average annual housing production rates needed to keep pace with population shifts.

Furthermore, housing units have been increasing in size since 1971, with single family households increasing 71 percent since then and multifamily units increasing 29 percent.

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Figure 2-9: Type of Household by Share of
Total Number of Households, 1970–2021

Source: PlaceWorks, 2023, using data from the US Census Bureau, 2021 Public Use Microdata Set
Figure 2-10: Real Average Sales Price and
Real Estate Average Sales per Square
Foot for New Single Family Housing,
1971–2021

Source: PlaceWorks, 2023, using data from the US Census Bureau, 2021 Public Use Microdata Set
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While the numbers of new housing units are climbing back to an adequate level per year, there is now a mismatch in living arrangements and housing production, as the market continues to build predominantly larger, single-family detached housing units although there is a decline in households with children and smaller average household sizes. While a solution to this mismatch and unaffordable housing prices is building smaller housing units, there is a financial incentive to build larger units if the market continues to support it. As a result, housing process continue to rise, as displayed by the data in Figure 2-10.

In Costa Mesa and the surrounding market area, which includes Fountain Valley and other nearby cities such as Huntington Beach and Newport Beach, there has been a slight decrease in household sizes since 2013 and a decrease in households with children. A majority of households are one- or two-person households. Many different housing characteristics of Costa Mesa households are described in the market study (see
Appendix C), including incomes, household types, tenure, household sizes, multi-generational households, etc. These characteristics highlight three main implications for the overall market area, and more specifically, for development in the Specific Plan area.

1. Smaller Households: The Specific Plan should facilitate units with fewer bedrooms to accommodate the smaller
households moving into the area and the overall trend
for these housing types.

2. Overcrowding and Overpayment: The Specific Plan
should provide options for existing over-paying and
overcrowded households.

3. Housing and Age: The Specific Plan should take into
consideration the housing needs of those aged 65 and
older as well as the needs of children.

The redevelopment of the FDC is expected to create new market demand above and beyond that expected based on current
trends for both rental housing and ownership housing. This will help to alleviate overcrowding and provide affordable housing with easy access to nearby job centers and transit corridors.

Costa Mesa is one of the main job centers in Orange County, with a combined net inflow of almost 39,000 workers across all economic sectors.

Non-residential Demand
The market study also looked at the marked demand for non- residential uses. Due to the location of the site and its lack of visibility from Harbor Boulevard, it would be challenging to develop commercial uses that rely on attracting consumers, such as comparison goods retail. However, the future
development would be able to support some amount of
convenience goods and services that could be utilized by households residing in the Specific Plan area. The analysis outlined that the leasable area for retail businesses could be used for a range of commercial uses, including both
comparison goods and convenience goods. The study found that the Specific Plan area would have greater potential for accommodating convenience goods and services, which
include things like small grocery stores and restaurants (see Table 2-1).
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The study also supports the inclusion of approximately 76,760 square feet of gross floor area for other commercial uses and non-commercial uses, including medical offices, professional offices, and personal care services.

The study suggests that only a limited amount of non-
residential space is appropriate in the Specific Plan area, and it would mainly be supported by the households living there.

Although a limited amount of non-residential uses are required in the development, the study notes that additional commercial areas could be included if desired. However, expanding
commercial activity may bring other implications, such as increased traffic impacts or the need to attract customers from outside the Specific Plan area. The market study informed the land uses included in Table 4-3 of the Specific Plan.

Table 2-1: Retail Market Potential in Square
Feet of Gross Floor Area
Store Type
Recommended
Plan Area Retail
(Square Feet)

CONVENIENCE GOODS & SERVICES
Grocery stores 10,000 to 14,000
Specialty food stores Up to 1,000
Beer, wine, and liquor stores Up to 2,400
Health and personal care stores 10,000 to 12,500
Gasoline stations 2,000 to 3,000
Drinking places (alcoholic beverages) Up to 1,500
Restaurants and other eating places 2,500 to 5,000

COMPARISON GOODS
Home furnishings stores Up to 1,000
Clothing stores 2,000 to 3,000
Other general merchandise stores (NAICS
4523) Up to 10,000
Other miscellaneous store retailers (NAICS
4539) 1,000 to 1,500
TOTAL 29,500 to 55,900
Comparison Goods
Items that are purchased
more infrequently.

Convenience
Goods & Services
Items that people need
on a regular basis.

Source: PlaceWorks, 2023, using retail spending estimates from Claritas 1562

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3 Vision &
Guiding Principles

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3.1 Purpose
A vision is a forward-looking and aspirational statement that expresses the desired future state of a specific area or region.

It serves as a guide for the planning and development of the land, encapsulating the long-term goals and values of the community. It is a reference point to ensure the land use plan reflects the collective vision and values of the community while achieving important housing goals set by the City and State.

Overall, a vision statement paints a picture of what the specific plan hopes to achieve in terms of physical development, sustainability, connectivity, cultural and social integration, economic vitality, adaptability, and quality of life. This chapter presents the Vision and Guiding Principles that will guide future development when implementing this Plan.

3.2 Vision Statement
A distinctive place in Costa Mesa, the former Fairview
Developmental Center will be transformed into a collection of new neighborhoods that meets the community’s diverse housing needs. Surrounded primarily by the municipal golf course, the site will be planned to reflect what matters most to Costa Mesa—creating an affordable, desirable, and
inclusive place to live for families, young adults, and seniors.

Residents of all backgrounds and age groups will have
access to high-quality homes, in a welcoming environment that supports a strong sense of belonging. A variety of housing types and architectural styles will accommodate a broad range of incomes, household types, life stages, and special needs. Buildings will be sustainably designed with durable, high-quality, and innovative materials, while
infrastructure and open spaces will take advantage of
opportunities to design with nature and support
environmental protection.

The community will be inviting and active, offering abundant and accessible outdoor amenities that support relaxation, social interaction, exercise, and play for residents and visitors alike. Streets will prioritize safety and encourage walking, bicycling, while reducing reliance on automobiles.

The Shelley Trail and internal paseo network will provide additional pedestrian and bicycle connections throughout the site and link to surrounding trail systems.

Through this transformation, the redevelopment of the
Fairview Developmental Center will become a valued
addition to Costa Mesa, grounded in the community’s
shared values and reflective of the quality of life enjoyed by its residents.

Developing the Vision
The vision was developed using feedback from a series
of events and meetings, including:
 Community and Stakeholder Interviews
 Community Workshops (English and Spanish)
 Planning Commission and City Council
Study Sessions
The community offers valuable perspectives on the City
and project area, drawing from their first-hand
experiences of engaging with local spaces. For more
information on these events, see Chapter 2 and Appendix

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3.3 Guiding Principles
The following principles shall guide the design and
development of the FDC site:

Principle #1: Advance Costa Mesa’s housing
goals.

Residential development will be required to meet the City’s housing goals and objectives, identified in the City’s 2021- 2029 Housing Element, and any future adopted Housing
Element, for the FDC site. This will include the residential units built by the Master Developer as well as the planned housing to be developed by the Department of Developmental Services. Affordable housing may be provided as stand-alone buildings or integrated with market-rate housing. The
architectural design, construction quality, and materials used for affordable housing shall be comparable to those used for market-rate housing.

Principle #2: Create a network of connected
gathering places and vibrant, accessible open
spaces.

A comprehensive system of public open spaces and
recreation areas, including parks, paseos, and trails, will be distributed throughout the site. The Shelley Circle Trail will run along the edge of the property, adjacent to the golf course, with a connection to the Tanager Trail. One or more paseos will provide off-road walking and biking routes that connect neighborhoods to parks and the Shelley Circle Trail. Public park land, park improvements, and park in-lieu fees will be provided, as outlined in the CMMC Title 12, Chapter XII, Article 4.

Public parks will offer a variety of community-serving
amenities, for all ages and abilities, such as, sport courts, multipurpose fields, walking paths, playgrounds, and seating areas. Gathering places will reflect the diversity and culture of Costa Mesa and be designed to be attractive, welcoming, and accessible to all, supporting physical and mental well-being.

Private and common open space amenities within residential areas will complement the public open space network.

Principle #3: Provide neighborhood-serving retail
and community amenities.

The Specific Plan will allow for and encourage neighborhood- serving retail and community amenities that meet the daily needs of current and future residents. Such uses may be incorporated within mixed-use buildings with ground-floor commercial spaces with residential uses above, or within small-scale centers that are easily accessible by the
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art studio, fitness center, places of worship, or similar uses, are also encouraged to provide social interactions.

Principle #4: Prioritize multimodal transportation
and safety.

Walking, bicycling, and public transit should be the most convenient and attractive ways to travel within and to the Specific Plan area. An interconnected network of streets, trails, and smaller block sizes will improve connectivity, accessibility and travel efficiency for users of all ages and abilities. Safety features such as high-visibility crosswalks, buffered bike lanes, and convenient bus stops, will further support these modes. Car sharing and electric vehicle sharing options will be encouraged to reduce reliance on personal vehicles. Site design for all uses must also include adequate curbside pick-up and drop-off areas.

Principle #5: Integrate the natural and built
environment to support long-term fiscal and
environmental sustainability.

Redeveloping the FDC site creates an opportunity for a
holistic approach to buildings, open spaces, and infrastructure that is sustainable, healthy, and resilient. Design should integrate nature through passive heating and cooling, green infrastructure, sustainable materials, and outdoor spaces that mitigate heat, restore native plants and trees. Development should also advance long-term fiscal sustainability by using resources efficiently and contributing, where feasible, to the infrastructure and services it requires. This balanced
approach supports environmental stewardship, reduces
impacts on existing taxpayers, and promotes a high quality of life for the community.
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4 Land Use &
Urban Design

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4.1 Purpose
This chapter establishes the land use, development, and design regulations for redevelopment of the Fairview
Developmental Center Specific Plan (FDCSP) area. This
chapter must be used with chapters 5, 6, and 7, which provide details on mobility, open space, and infrastructure. Once selected, the Master Developer will provide more detailed plans demonstrating how the components of this Plan will be
implemented. Consistent with the guiding principles in Chapter 3, objectives are included throughout this chapter to support interpretation and implementation related to land use, urban design, and housing.

4.2 Land Use Plan
The land use plan establishes the uses and buildout range for the Specific Plan area. Developed with input from the
community and City decision makers, (see Chapter 2), the plan envisions a mixed-use community that allows for both vertical and horizontal integration of uses. While some uses offer implementation flexibility, others, such as DDS Housing, include identified planning areas. The sections below define the land uses, buildout, and the regulatory framework, also known as zoning. These land uses and their locations support the following objectives:

1. Encourage residential and commercial projects that
actively engage streets, parks, and other public open
spaces.

2. Create diverse mixed-use, mixed-income
neighborhoods.

3. Locate parks and open space amenities throughout the FDC plan area to provide an inviting, comfortable, and
activated outdoor experience.

4. Design a land use plan and circulation network that
prioritizes pedestrians and provides safe access to the FDC area for all modes of transportation.

A variety of housing types, including townhomes, are expected to be developed throughout the Specific Plan area.
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Figure 4-1: Conceptual Land Use Plan

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4.2.1 Land Use Designations
and Buildout
Figure 4-1 provides the conceptual land use plan for the Specific Plan area with some flexibility in the final roadway alignments, location of commercial/ retail uses, and distribution of public open space. Table 4-1, Statistical Summary, provides the range of housing units, maximum non-residential square feet, and minimum open space requirement for the site. To supplement this section, Figure 4-2, Conceptual Site Plan, is an illustrative depicting possible implementation of the conceptual land use plan.

Buildout
As shown in Table 4-1, Land Use Statistical Summary,
minimum and maximum buildout are provided for the site with a range of opportunities for both residential and commercial use.

Publicly accessible open space has a minimum requirement and is also regulated by Chapter 6. Residential uses are further broken down into income requirements that must be met to implement the Plan. This buildout was informed by the City’s Housing Element, State legislation, and the market study summarized in Chapter 2 and provided in Appendix C.

Land Use Designations
The following land use designations define the identified uses of the conceptual land use plan shown in Figure 4-1.

Department of Developmental Services (DDS) Housing. This designation includes approximately 15 acres to be retained by the State Department of Developmental Services for the
development of housing for the developmentally disabled (very low income) and housing for moderate and above moderate households. Development in this designation is anticipated to be built at a lower density and scale (height and mass) than the rest of the site to create a transition between the former FDC site and adjacent Harbor Village Apartments. See Section 4.4 for more information on the DDS site. On Figure 4-1, this
designation is fixed and must be implemented in the area shown for DDS housing.

Residential. This land use designation is intended to allow for a wide range of housing types available to a variety of income levels. The Residential category also allows for a range of senior living options, including independent and assisted living.

Public and private recreational uses, daycare, and
neighborhood-serving amenities are allowed. On Figure 4-1, Conceptual Land Use Plan, this designation is implemented by the Residential areas.

Mixed-Use / Commercial. Neighborhood-serving non-
residential uses are encouraged in either a stand-alone or mixed-use configuration, including uses such as restaurants, coffee shops, small grocery and retail stores, pharmacies, studio and fitness facilities, and small office uses, including small scale medical office. This land use designation is flexible and floats across the site depending on the final roadway and open space design. Figure 4-1 depicts possible locations with high visibility and community accessibility that would be ideal for commercial retail uses.

Publicly Accessible Open Space. The Open Space
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Table 4-1: Land Use Statistical Summary
Land Use Development Minimum Development Maximum
RESIDENTIAL¹
Very Low Income 575 units² -
Low Income 345 units -
Moderate Income 690 units -
Above Moderate Income 690 units -
TOTAL UNITS⁴ 2,300 units 4,000 units6
COMMERCIAL⁵ 10,000 square feet 35,000 square feet
PUBLIC OPEN SPACE³ 14 acres No maximum
NOTES:

1. Very low, low, moderate, and above moderate income categories are defined in Chapter 2, Section B (2.), of the City’s 2021-2029 Housing Element. The income category percentages are shown in Table 4-2. The mix of affordable units may be modified when submitting an Affordable Housing Plan; see Chapter 8, Administration and Implementation.

2. Very Low income units shall include 200 Permanent Supportive Housing Units in accordance with State Code Section 14670.31. Housing developed on-site by DDS may count toward meeting this requirement.

3. Public Open Space includes public parks, trails, plazas, and other types of open spaces available to the general public. It does not include private space that is considered an on-site amenity for multifamily housing and is primarily accessible by the residents of the development. For additional criteria, see Chapter 6, Open Space.

4. Total units include the residential development within the 15 acres of land retained by DDS.

5. Per Section 4.2.1, can be provided in a mixed-use or stand-alone building.

6. The maximum number of units provided in this table is consistent with the number of units analyzed in the EIR, this maximum does not preclude density bonus or other state laws that promote and streamline housing development.

7. A developer may propose an alternative means of compliance with the minimum requirements in this table by providing a different mix of very low, low, and moderate income housing as long as the overall number of affordable units is met. Alternatively, a developer may propose a lower number of total affordable units if the mix proposes deeper levels of affordability (e.g. there is an increase in extremely low, very low, or low income categories).

Compliance will be reviewed as part of the submitted affordable housing plan and determination made by the Community Development Director or designee (see Chapter 8).
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Flexibility in the final location and configuration of publicly accessible open space is defined in Section 6.2, Open Space and Trails Plan. Figure 4-1 shows conceptual locations for implementing this designation.

4.3 Urban Design
Urban design includes several key elements that develop the character of a place. These include, but are not limited to, urban form, views, open space, activity nodes, architectural character, streetscape, and the surrounding environment.

When implementing the “Plans”—land use, housing, open
space, mobility, and infrastructure—of this chapter, a Master Developer’s ultimate site and development plan shall
implement the objectives of Section 4.1. Additionally, the final location and site design shall meet the following objectives:

1. Locate community amenities such as commercial retail uses along a primary street frontage. (As noted in
Section 4.2.1, the commercial/retail component may be
in a stand-alone building or group of buildings,
incorporated on the ground floor of a residential building, or both.) These amenities shall also be easily accessible to residents by either walking or riding a bicycle.

2. Design publicly accessible open space to create
gathering areas for the neighborhoods, with outdoor
amenities and spaces for dining, socializing, events, and other activities.

3. Design buildings so that uses open onto a street, plaza, or park, with parking on the street, side, or rear of the lot.

4. Allow for future expansion and flexibility in terms of use mix.

5. Provide a safe pedestrian experience to and from all the uses in the project.

6. Design loading and unloading areas to ensure that they do not interfere with pedestrian, bicycle, or primary
vehicle circulation.

7. Design parks and other open space areas to allow for natural surveillance or “eyes on the street” by
maximizing the visibility of people, parking, and building entrances.

8. Incorporate existing, healthy trees as a design feature in landscaped areas or outdoor amenity spaces where
feasible.

A visual representation that depicts the implementation of these objectives is shown on Figure 4-2, Conceptual Site Plan.

Additional design objectives are incorporated in applicable sections throughout the rest of this chapter.

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Figure 4-2: Conceptual Site Plan

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4.4 Housing Plan
Housing—that is, residential uses—is the primary land use for the Specific Plan area. Housing is identified as a priority by the City’s General Plan, 2021-2029 Housing Element, and in
various State legislation described in Chapter 2. Adequate housing supply is also one of City Council’s strategic priorities.

As depicted in Figure 4-2, a variety of housing product types are suitable for development in the Specific Plan area. These housing types, also described in Section 4.1.1, were supported by the market study conducted as part of this Plan. Additionally, this Plan requires that a certain number of affordable units be provided, as identified in Table 4-1, Statistical Summary. The affordability for income categories is dependent on the annual median family income (MFI) for Orange County, as determined by the State Department of Housing and Community
Development. Table 4-2 provides the income category by
percentage of MFI. Tracking requirements for the Housing Plan are provided in Chapter 8, Administration and Implementation.

Future DDS housing will contribute to the total number of units for the Specific Plan area. The changing model of care, as discussed in Chapter 1, will require that units meet the needs of the disabled community. DDS will be responsible for the development of this portion of the property and may work with the Master Developer or choose a different approach for implementation.

The design of residential projects (market-rate and affordable) shall meet the following objectives:

1. Design buildings to front onto streets, parks, the golf course, or common open spaces, except where
properties front along the edge of the SREOC.

2. Future buildings are designed and oriented so that all residents and visitors can see and experience the golf
course, paseo, parks, or open space features.

3. Orient buildings and design landscaping for energy
efficiency (e.g., to capture day lighting, minimize heat gain, take advantage of prevailing breezes, and for
natural ventilation).

4. Architecturally treat all sides of a building to reflect a coherent architectural style through the use of materials, massing, articulation, and scale.

5. Promote pedestrian activity by placing entrances at or above street level and locating stairs near the building’s entrance.

6. Activate the ground floor of residential buildings with building amenities, such as recreation areas, co-working spaces, or other services.

7. Provide convenient pedestrian and bike access from
homes to adjacent streets or paseos.

8. Utilize alleys and/or side streets for driveway access where feasible to avoid curb cuts along backbone roads.

9. Screen parking structures with residential or commercial uses, landscaping, murals, or other architectural
treatment.

10. Locate windows, balconies, and courtyards to offer
views of sidewalks, open space areas, or other
amenities.
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4.4.1 Housing Types
The FDCSP has specific housing requirements as identified in the City’s 2021-2029 Housing Element and Table 4-1. Guiding principle #1—Ensure that Costa Mesa’s housing goals are met for the FDC site—stresses the importance of housing for the Plan area. To meet these housing needs, a variety of housing and unit types are permitted and encouraged to foster a vibrant mixed-use/ mixed-income neighborhood. These include but are not limited to:
 Townhomes
 Multi-family dwellings
 Age-restricted buildings/units
 Income restricted buildings/units
 Permanent supportive housing units
 Single room occupancy units
 Mixed-use buildings
 Single family homes
 Duplex buildings/units
Future development shall include for-sale and for-rent units.

Units that qualify as affordable housing shall also comply with the tracking requirements of Chapter 8, Administration and Implementation.

The City encourages the development of for-sale housing and will consider certain concessions or incentives. Any
concessions will need to be negotiated as part of an agreement and may include: the delay in payment of park in-lieu fees until certificate of occupancy; the delay or reduction in other City fees; and other types of incentives.

Table 4-2: Income Categories
Income Category¹ % Range of Median
Family Income
Very Low Income2 0–50%
Low Income 51–80%
Moderate Income 81–120%
Above Moderate Income Greater than 120%
Source: City of Costa Mesa 2021-2029 Housing Element
NOTES

1. See Table 4-1, Statistical Summary, for minimum unit requirement by Income Category.

2. Includes Extremely Low Income and Acutely Low Income, as defined by HSC § 50106.
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4.5 Uses
As identified in the State’s disposition process and bolstered by the Plan’s vision and guiding principle discussed in Section

4.4.1, residential uses shall be the predominant allowed use for the Plan area (as stated in Government Code Section
14670.31 and discussed in Section 1.2.2).

Table 4-3, Permitted and Conditionally Permitted Uses,
identifies the land uses that are permitted, require a Minor Conditional Use Permit, or are not permitted. Definitions of allowed land uses are provided in Appendix A, Definitions.

Any use not listed in Table 4-3 shall be prohibited unless deemed to be similar in nature to an allowable use, as
determined by the Community Development Director, or
designee through the provisions of Chapter 8, Administration and Implementation.

Housing is prioritized for the FDCSP area, with many uses—including temporary events—permitted to support residents and create a vibrant community.
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Table 4-3: Permitted and Conditionally Permitted Uses
P - Permitted | MC - Minor Conditional Use Permit | N - Not Permitted TUP - Temporary Use Permit
Notes

RESIDENTIAL
Multi-family Residences2 P
Permanent Supportive Housing P
Common Interest Developments P
Single-Family Residence (attached and detached) P
Townhomes P
Single Room Occupancy Units P
Senior Housing P
OFFICE
Administrative P
Professional P
Medical (less than 10,000 sq ft) P
RETAIL
Artisan Studio (includes retail sales, and display on-site) P Active Entertainment (less than 5,000 sq ft) P
Grocery Store (less than 10,000 sq ft) P
Liquor Store MC
Restaurant (with or without outdoor dining) P
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P - Permitted | MC - Minor Conditional Use Permit | N - Not Permitted TUP - Temporary Use Permit
Notes
Retail P
Personal Services P
Personal Service with Group Instruction/Setting (less than 10,000 sq ft) P Studios: Small Fitness Facilities, etc. P
Tasting Room/Wine Bar/Neighborhood Bar (may include small batch brewery) MC Other Community Serving Uses1 MC
OTHER
Mixed-Use Buildings P
Home Occupations P/MC Per CMMC Section 13-164
Residential Care Facility (seven or more) MC
Child Daycare Center, including tutoring and tutoring centers P Drive Thru Associated with Any Business N
School (public or private) P
Public Facilities for Fire and Safety (fire station, police substation, etc.) P Short-Term Rental N
Hotel or Motel N

RECREATIONAL AND SPECIAL EVENTS
Community Clubhouse (for residents only) P
Community Facilities/Library/Parks/Playground/Sports Fields (public) P 1581
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P - Permitted | MC - Minor Conditional Use Permit | N - Not Permitted TUP - Temporary Use Permit
Notes
Temporary Small Performance Area (in publicly accessible open space area) TUP Temporary Outdoor Market (farmers, holiday, vintage, etc.) TUP See Sections 4.5.1 and 4.5.2 Public Events, including City-sponsored events, in conjunction with open space area, public right of way, or any other public common areas P See Sections 4.5.1 and 4.5.2 Food Trucks (associated with a special event) P See Sections 4.5.1 and 4.5.2

INTERIM USES
Temporary Real Estate and Construction Offices P
Recreational Uses or Other Uses as Described in Section 4.5.1 P

ACCESSORY USES
Accessory Dwelling and Junior Accessory Dwelling Units P Per CMMC Section 13-35 NOTES:

1. Any use not specifically permitted, or permitted with a minor conditional use permit per this table, shall be reviewed by the Community Development Director to determine its similarity to another listed use. If no substantial similarity exists, the unlisted use shall require approval of a minor conditional use permit prior to establishment of the use. If there is a conflict between Table 13-30 of the Costa Mesa Municipal Code and this table, the Specific Plan shall prevail. See also Chapter 8, Administration and Implementation.

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4.5.1 Temporary Uses and
Special Events
In support of guiding principle #2—Create vibrant and
accessible open spaces—temporary uses and special events are expected and encouraged to activate public and private open space areas. Uses may include but are not limited to performances, fitness classes, food festivals, farmers markets, and holiday events. Temporary uses and special events may occur within open spaces and on roadways, including the Promenade, which may be temporarily closed to vehicular traffic for approved events. These uses must apply and pay fees for a special event permit per Section 10-386 of the CMMC. Temporary vending at these events is subject to
Section 10-368 of the CMMC. Temporary use permits may be approved for up to three years with up to 2 one-year
extensions. Temporary use permits for longer than five years may be approved through the minor conditional use permit process.

4.5.2 Food Trucks, Carts, and
Kiosks
Food trucks, carts, and kiosks are permitted in conjunction with a special events, subject to the requirements of Section 4.5.1., or may be allowed pursuant to Title 10, Chapter XXI of the Municipal Code. A special event plan that characterizes the location of carts, kiosks, and/or food trucks shall be submitted.

The special event plan shall document ADA clear paths of travel, unobstructed pedestrian flow, and demonstrate that there is no identifiable health and safety risk.

4.5.3 Outdoor Dining
Outdoor dining areas are permitted in the FDCSP area as part of a restaurant, cafe, or other type of eating and/or drinking establishment and are subject to the provisions of the CMMC, Chapter V, Article 4, Establishments Where Food or Beverages Are Served, Section 13-48. Outdoor dining areas are not permitted within any parking area of the FDCSP site. These areas may encroach into the setback along the Promenade. 1583
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4.6 Development and
Design Standards
This section provides development and design standards
specific to the FDCSP area; these standards supersede Title 13, Chapter V, Development Standards, of the CMMC, or any future citywide design standards. If this Plan is silent on a topic, the CMMC, or any future citywide design standards shall apply.

The following sections outline the standards for buildings, parking, and open space areas. All buildings shall comply with California Building Energy Efficiency Standards (or future equivalent building code). These development and design standards provide greater detail for implementing the
objectives outlined in Sections 4.2, 4.3 and 4.4 of this Plan.

Development and design standards show the form of the building and how buildings interact with the public realm.
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4.6.1 Building Form, Scale,
and Massing
Building form and scale shall be regulated through height, density (dwelling units per acre), floor area ratio (FAR), and massing. Table 4-4 establishes the allowable density, FAR, and height standards for development in the FDCSP area.

Stepbacks and variations in massing shall be used to frame public spaces, transition to adjacent uses, and provide architectural variety. Multiple buildings with varying heights and massing are encouraged to support a human-scaled
neighborhood environment. Figure 4-3, Building Massing, demonstrates how the standards of this section can be met.

SREOC Building Height Limitations
Building height shall be subject to limitations imposed by the communication tower on the SREOC, as detailed in
Appendix E. Development within the radio frequency path of the communication tower shall reduce building height or incorporate stepbacks to comply with the allowable height. This section supersedes the heights identified in Table 4-4. The communication tower requires a width of approximately 30 to 50 feet of clearance at certain height levels for direct line-of- sight communication with other towers, as described in
Appendix E. Figure 4-4 provides a simplified guide for areas impacted by the height restrictions. Future development must demonstrate that buildings and trees within the antenna clearance zone comply with the requirements through the application processes of Chapter 8.

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Table 4-4: Building Form, Scale, and Massing
Standard Minimum Maximum Notes

DEVELOPMENT INTENSITY
Floor Area Ratio (FAR)1 - 0.40
DDS Housing Density 32 du/ac - Units are included in the total maximum in Table 4-1.

Density - - See Table 4-1 for maximum number of units.

BUILDING HEIGHT 2
Residential - 100 feet Maximum height may be exceeded by 35 feet for two buildings.

DDS Housing - 50 feet
Mixed-Use - 135 feet
Commercial (stand-alone) - 35 feet
Parking Structure - - Equal to the height of the building(s) it serves3

GROUND FLOOR HEIGHT
Residential 10 feet -
Mixed-Use 12 feet -
Commercial 25 feet -

BUILDING SEPARATION
Primary Buildings 10 feet - Between 2 or more primary structures.

NOTES:

1. FAR requirements shall apply to commercial uses only.

2. Building heights shall comply with height limitations associated with the Regional Emergency Operations Center communication tower. See Figure 4-3 and Appendix E.
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3. If part of a wrap-style building, height of parking structure may not exceed height of the residential portion of the building.

Figure 4-3: Building Form, Scale, and Massing

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Figure 4-4: SREOC Tower Location and Antenna Clearance

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4.6.2 Building Orientatio n
To foster a pedestrian environment, main building entries in the FDCSP area shall be oriented to the Promenade, a street, plaza, paseo, or park.

Residential
For residential buildings adjacent to the Promenade, primary ground-floor common entries or individual-dwelling-unit entries shall be oriented to the street.

For residential buildings adjacent to all other road types, primary ground-floor common entries or individual-dwelling-unit entries may be oriented to the street, paseo, or private drive.

Commercial and Mixed Use
Main building entries shall be oriented to a street, plaza area, or park unless a corner entry is required, as defined below.

Corner Treatment for All Uses
Corners at key intersections identified on Figure 4-5 shall provide entries or design features. Design features shall have a distinct but complementary design to the overall mass of the building. Corner design features may include:
 Increased building height at the corner by up to 10 feet; if applicable, the height must comply with Appendix E.
 Open space in the form of a plaza or entry court.
 Enhanced canopies, awnings, or marquees.
 Building entries.

Figure 4-5: Key Intersections1

1. The key intersections are flexible in their location and are currently placed where the Concept Land Use Plan shows mixed-use.

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Figure 4-6: Building Orientation

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4.6.3 Setbacks
Setbacks define the minimum distance between buildings and streets, creating areas that contribute to the public realm.

Required setbacks are established in Table 4-5.

Within required setback areas, the following are allowed:
 Landscaping/ hardscape
 Outdoor dining and seating
 City-approved public art
 Pedestrian paths
 Green infrastructure (e.g. bioswales)
 Lighting
 Street furniture
 Publicly accessible open space
 Wayfinding signs
 Bike racks
All required setback areas shall be maintained.

4.6.4 Encroachments and
Projections
Architectural elements, building stoops, and signs may
encroach into a required setback area or public right-of-way subject to design review per Chapter 8, and may require an encroachment permit subject to Section 15-13 of the CMMC.

Encroachments shall not interfere with required ADA
accessibility or emergency or fire access.

Projections such as roof or eave overhangs, awnings, open unenclosed stairways, and chimneys and fireplaces are
allowed to encroach into a required setback or public right-of- way, and must comply with Section 13-32 of the CMMC.

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Table 4-5: Setbacks
Type Minimum Maximum

BUILDING SETBACKS
The Promenade1 5 feet 15 feet
Local Roads1,2 10 feet 10 feet
Private Drives1 10 feet -
Alley1 5 feet -
Regional Emergency
Operations Center3 25 feet -
Golf Course 20 feet -
Paseo 5 feet -
Parking Structures1,4 5 feet -
NOTES:

1. Measured from back of sidewalk.

2. Applies to public roads, including Shelley Circle.

3. Measured from property line.

4. Setback must be landscaped.

The setback areas may contain landscaping and planters, street furniture, lighting, and outdoor dining.
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4.6.5 Frontages and Entries
A building frontage is the portion of the building facing a street.

How the frontage is designed contributes to the neighborhood character and the extent to which a pedestrian-oriented environment is created.

Common entries to a residential or mixed-use building shall provide at least two of the following:
 Pedestrian-level articulation using materials (as defined in the callout box to the left).
 Ground-floor activation through leasing offices, common spaces, or recreation areas.
 Common entrances at building corners.

Individual-dwelling-unit entries facing the street shall include at least two of the following:
 Access through a courtyard with minimum dimensions
sufficient for pedestrian circulation and unit access,
generally no less than 12 feet in width and 25 feet in
length, or equivalent area.
 A minimum grade separation of 2 feet from the existing grade to the finished floor, excluding units designed to meet ADA requirements.
 An entry patio, porch, or stoop with enclosure walls
and/or railing. See minimum open space dimensions in
Chapter 6.

The ground floor of a building’s frontage shall provide a minimum amount of transparency as follows:
 Residential Units: 30 percent.
 Non-residential and Common Residential Spaces: 60
percent.

Architectural Materials:
 Textured masonry like brick or stone
 Wood or engineered wood accents or slats, shade
canopies
 Windows
 Smooth or lightly textured stucco
 Cast-in-place concrete
 Fiber-cement panel systems
 Metal accent elements
 Green walls and other natural materials
 Other materials as approved by the Planning
Division
Ground Floor Transparency: Area of a façade that
consists of windows or other glazed surface that permits light and visibility into a structure.
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Figure 4-7: Building Frontage

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4.6.6 Lighting
Lighting shall be designed to enhance safety and visibility while minimizing glare and light spillover.
 Pedestrian-scale lighting shall be provided along streets, paseos, open spaces, and building entrances.
 Lighting shall be directed downward and shielded to
minimize impacts from light spillage on adjacent
properties.
 Illuminators shall be integrated with the architectural design/theme of the buildings.
 Outdoor lighting for streets, open space areas (such as fields), and commercial areas shall be placed to
minimize visual nuisance and maximize safety,
specifically adjacent to residential areas.
 Shielding shall be used to mitigate outdoor lighting glare from adjacent properties, uses, buildings, and roadways.  Outdoor lighting shall not project above the roofline of the building on which it is mounted.
 Time-control devices shall be utilized on exterior lighting sources.
 Outdoor security lighting for construction purposes shall be either directed away from or located away from
existing residential areas.

4.6.7 Trash, Recycling and
Utility Enclosures
Trash and recycling facilities and utilities shall be designed to minimize visual and operational impacts and shall not impede vehicle, bicycle, or pedestrian accessibility.
 All trash enclosures and utilities shall be screened from public streets, alleys, and adjacent properties.
 Outdoor trash enclosures shall be screened on at least three sides by a solid wall not less than six feet in height and feature a solid gate or door. Refuse areas shall be located so that the doors do not interfere or block
circulation when open and shall also have a roof.
 Indoor trash enclosures or trash rooms shall be built per the latest Building Code standards and a will-serve letter from the refuse service shall be provided in contract with the City.
 Trash enclosures and utility areas shall be physically integrated into the project and shall include an off-street loading area and other requirements of the Costa Mesa
Sanitary District or utility provider.
 Storage areas for utilities that are visible from the upper stories or adjacent structures shall have an opaque or
semi-opaque horizontal cover/screen to mitigate
unsightly views. The horizontal screen/cover shall be
integrated into the enclosure design.
 Storage areas for trash or utilities shall not be closer than 20 feet from doors or operable windows of adjacent structures.
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 Trash enclosure areas shall comply with Section 13-73 of the CMMC.
 Utilities shall comply with Section 13-71 of the CMMC.

4.6.8 Fences, Walls, Netting,
and Safety
Fences and walls shall be designed for safety while
contributing to the overall design character of the area.  All fences and walls shall comply with Section 13-75 of the CMMC.
 Gated neighborhoods are prohibited.
 Perimeter fencing and netting for golf course safety shall be installed consistent with an errant ball analysis that shall identify the location and type of netting, or fencing required for safety purposes. Final location for netting shall be approved by the Community Development
Department, who will confer with the golf course
operator and developer prior to determining final
location.
 The developer shall coordinate with Costa Mesa Police Department to implement cameras at all entrances to
the FDCSP site (see Chapter 8, Administration and
Implementation), if necessary.

4.6.9 Signage
Submittal of a planned signing program (PSP) is required for the FDCSP site. A cohesive exterior sign program shall
establish the placement and design criteria for all on-site signs.

Sign types may include, but are not limited to:
 Freestanding signs.
 Wall signs.
 Projecting signs.
 Monument signs.
 Building identification.
 Tenant identification.
 Landmark signage or interpretive signage
acknowledging history of the site.

The PSP shall also include the following for each sign type:
 Sign size, area, letter size, font style, and color palette.  Sign construction materials and illumination method
and/or type of lighting.
 General location requirements.
 Note of other architectural or environmental
considerations.

Section 13-116, Signs Adjacent to Residential Zones, and Section 13-117, Maintenance of Permanent Signs, of CMMC Article 3, Sign Regulations, shall apply.
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Interpretive panels can provide historic photos and tell the story of an area’s previous use, significance, or history in the community.

4.6.10 Historic Requirements
As part of the State’s disposition process and through the preparation of this Specific Plan and accompanying EIR, a Historical Resources Inventory and Evaluation Report were conducted for the site. Under the National Register of Historic Places criteria, the FDCSP qualified as an eligible historic landscape or historic district. The proposed Specific Plan project will include removal of all or a significant portion of the FDC, which will impact the site’s historic district designation.

Qualifying under NRHP/CRHR Criteria A/1, the district has significance at the local level for the important role it played in the evolution of public institutional mental health care. At the state level, it also qualified under NRHP/CRHR Criteria C/3 as a representative example of a post-war state hospital campus.

However, it was found that neither the FDC as a whole nor any individual resources within the FDC meet the eligibility requirements to be a California Historical Landmark.

Requirements for the historic district designation are:
 Prior to any ground-disturbing activities or alterations that may impact the FDC complex, Historic American
Buildings Survey–style documentation shall be
completed by a qualified architectural historian. The
documentation should include a historical narrative,
physical description of the historic district, scaled district map, and high-resolution digital photographs. The final documentation should be submitted to the City and a
local archive or publicly accessible repository for
archival purposes and should be approved by the City
prior to demolition of the FDC.
 At least two interpretive panels shall be installed along the multi-use trail within the FDCSP area. The panels
should contain material documenting the history of the
FDC, its place in the broader history of the City of Costa Mesa, and the place of state developmental centers in
the general history of the State of California and its
people. The two panels should address different topics
relevant to the above themes and should include both
pictures and explanatory text.

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5 Mobility

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5.1 Purpose
This chapter provides the context and standards for connecting the future community to the existing street network.

Redevelopment will include a new internal network of on-street and off-street facilities that provide access throughout the site.

The mobility plan also outlines how all modes of transportation will be accommodated consistent with the guiding principles in Chapter 3.

5.2 Mobility Plan
The mobility plan and overall roadway network for the Fairview Developmental Center Specific Plan (FDCSP) area were
designed with input from the community and industry best practices. The following objectives have been established to guide implementation:

1. Provide an interconnected network of streets composed of smaller blocks that create a walkable grid pattern.

Blocks can be designed with mid-block alleys and
paseos to further enhance mobility and access,
especially for pedestrians and bicyclists.

2. Allow shared use of mid-block alleys by pedestrians, bicyclists, and motorists, as appropriate. These through- connections should be designed to encourage slow
vehicle speeds and clearly signed for shared use with
pedestrians and bicyclists.

3. Avoid cul-de-sacs unless physical conditions provide no practical alternative.

4. Incorporate existing, healthy trees within the streetscape to the extent possible.

5. Incorporate a native-focused street tree palette that provides shade and variety of shapes and colors.

6. Curtail speeding by keeping lane widths as narrow as possible.

7. Design curb lanes for multiple uses where possible,
including passenger pick-up/drop-off, shuttle or bus
boardings where applicable, bicycle or scooter parking, and loading zones.

8. Provide a network of bike facilities throughout the site, with connections to the off-street bike path along Harbor Boulevard and to the Tanager and Joann Street Bicycle
Trails.

9. Provide dedicated pedestrian crossings in high-traffic areas to ensure the safety, comfort and convenience of
walkers.

10. Design streets to accommodate community events, such as farmers markets and seasonal celebrations, through
temporary street closures to be used as programmable
open space.

The following sections describe how the mobility plan’s existing and proposed elements implement these objectives. See also Section 8.3.5, Transportation Demand Management, which
further supports these objectives and citywide efforts to mitigate traffic impacts.
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5.2.1 Circulation Standards
The circulation system in the Specific Plan area shall support a safe, connected, and multimodal environment that prioritizes pedestrians and cyclists while accommodating vehicles,
emergency access, and service functions.
 Streets shall be designed to support all modes of travel, including pedestrians, bicycles, vehicles, and transit, if applicable.
 Emergency vehicle access shall be provided to all
buildings and shall comply with the Costa Mesa Fire &
Rescue requirements.
 Street design shall be consistent with the street
typologies identified in this chapter.
 Mid-block alleys may be used to provide access to
parking and other building services.

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5.2.2 Existing Roadway
Network
The existing roadway network provides the context for
designing a new circulation network for the Plan area. This network is provided on Figure 5-1, Existing Roadway Network, which shows the existing area roadway infrastructure in the vicinity of the site. The major roadways closest to the Specific Plan area are described below:

State Route (SR-55)
The closest regional highway is State Route 55 (SR-55), east of the Specific Plan area. It is an eight-lane (four in each direction), north-south freeway route from Yorba Linda to the coastal cities in Orange County. The closest interchanges are at Fair Drive and Victoria Street.

Harbor Boulevard
Harbor Boulevard is a north-south major arterial roadway running just east of the Specific Plan area. It is six lanes (three in each direction), with a center median providing turn lanes into commercial developments along the roadway, where
appropriate. In the project vicinity, there are signalized intersections at Merrimac Way, Fair Drive, the Harbor Center Shopping Center, and Wilson Street.

Fair Drive
Fair Drive is the main entrance into the Specific Plan Area. It is an east-west primary arterial. East of Harbor Boulevard, it is four lanes (two in each direction) with a center two-way left-turn lane. West of Harbor Boulevard, the road narrows to a two-lane local street that connects to the current FDC site. This will remain the primary entrance into the Specific Plan area.

Merrimac Way
Merrimac Way is a two-lane, east-west primary arterial east of Harbor Boulevard. West of Harbor Boulevard, it is a two-lane private road that leads to the Harbor Village Apartments and ends at the FDC site. While this roadway currently provides access to the FDC site, its use will only be for emergency access in the future. See Section 5.2.3 for more information on the proposed roadways into and throughout the site as part of this Specific Plan.

Shelley Circle
Currently, internal circulation on the FDC site is accommodated by Shelley Circle, a primary local roadway with two lanes, one in each direction. A sidewalk lines the inner portion of the circle.

Shelley Circle can be accessed at two points: Fair Drive and Merrimac Way. This roadway loops around the FDC site, with smaller private roadways extending from it to provide
circulation between existing buildings. Shelley Circle has recently been improved through the Southern Regional
Emergency Operations Center project and will be maintained, but connections to the internal roadway system will be adjusted with future development. See Section 5.2.3 for more
information on the proposed roadways into and throughout the site as part of this Specific Plan.

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Figure 5-1: Existing Roadway Network

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5.2.3 Proposed Roadways
Network
The proposed roadways for the Specific Plan area provide various types of streets to accommodate safe travel for all modes of transportation. Figure 5-2, Proposed Roadway
Network, depicts the proposed roadway network. Street
classifications specific to the Specific Plan site include:
 Promenade
 Local Road
 Shelley Circle
 Secondary Access
A grand entry via a Promenade from Fair Drive welcomes
pedestrians, cyclists, and motorists into the community.

Shelley Circle provides another prominent connection, with access from the Promenade south to the Southern Regional Emergency Operations Center (SREOC).

Internal connections are through local roads that create walkable blocks and form a gridded street network. These streets may be public or private.

A secondary access road will be required for additional safe ingress and egress for development of 2,300 residential units or more. The secondary access via a new street is proposed through the golf course connecting to the existing intersection at Harbor Boulevard and the Harbor Shopping Center Driveway and aligned with the shopping center east of Harbor Boulevard.

This roadway alignment will be finalized with a master
developer, and a redesign and/or reconfiguration of impacted golf course holes is required (see Chapter 8, Administration and Implementation).

Merrimac Way is a private drive and will only provide future emergency access through the Harbor Village Apartments. In the event that a new lease agreement between the State and Village Investments (Harbor Village) allows for the use of Merrimac Way as an additional access road, then an additional access road through the golf course may not be necessary.

The mobility plan is flexible as long as its objectives are met and pedestrians are prioritized. The only fixed elements are the paseo and the backbone roadways shown in Figure 5-3,
Backbone Roadway Network, which includes the SREOC route and form the foundation of the Plan. The specific location of other streets in the grid may vary based on the final block layout. All streets and trails shall comply with the cross-sections provided on Figures 5-4 through 5-11, subject to review by the Public Works Director. These cross sections illustrate how pedestrian, bicycle, and vehicle infrastructure supports safe circulation for all users. Cross-sections are provided for the Promenade, secondary access road, Shelley Circle, and two local roadway options: one with on-street parking and one without. These cross sections may be modified if greater pedestrian and bicycle safety features are proposed, subject to approval by the Public Works Director, or designee. Additional details on connectivity and intersection control are described in the sections below.

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Figure 5-2: Proposed Roadway Network

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Figure 5-3: Backbone Roadway Network

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Figure 5-4: Promenade Street Section Option 1

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Figure 5-5: Promenade Street Section Option 2

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Figure 5-6: Shelley Circle Street Section

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Figure 5-7: Secondary Access through the Golf Course Option 1

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Figure 5-8: Secondary Access through the Golf Course Option 2

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Figure 5-9: Local Road, No Parking Street Section

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Figure 5-10: Local Road with Parking Street Section

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Figure 5-11: Multi-Use Trail Section

5.2.4 Pedestrian Connectivity
The Specific Plan area is intended to be a pedestrian-oriented community. A strong pedestrian network is crucial for ensuring that community members and visitors of all ages can move throughout the Specific Plan area in a safe, convenient and comfortable manner. New pedestrian infrastructure shall connect to the existing network in the surrounding area, enhancing the environment through a range of improvements, including multi-use paths, The Promenade, paseos, and
sidewalks.

Existing
Many of the streets near the site have existing pedestrian infrastructure, such as sidewalks and crosswalks. Traditional sidewalks—generally ranging between three and seven feet in width—line both sides of many nearby streets, including Harbor Boulevard, Victoria Street, Wilson Street, Fair Drive, Mesa Verde Drive East, Adams Avenue, Placentia Avenue, and most of Merrimac Way. Approximately one to two miles west of the Specific Plan site is the Santa Ana River Trail, a multi-use trail that follows along the Santa Ana River and provides regional connectivity. Pedestrians and cyclists can use this trail to access well-known open space areas in the City such as
Fairview Park, Talbert Nature Preserve, and Talbert Regional Park.

Within the FDC site is a narrow sidewalk along the south side of Merrimac Way, from Harbor Boulevard leading to Shelley Circle. Shelley Circle is lined internally with a single sidewalk for most of the roadway. An interim sidewalk will be added to Shelley Circle as infrastructure and roadway improvements are 1615
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made for the SREOC. Additional pedestrian enhancements are required for the area as described below.

Proposed
As a pedestrian-first community, the Specific Plan prioritizes safety, convenience and comfort for pedestrians. This includes ample eight-foot sidewalks, a central paseo, and a separated multi-use trail along Shelley Circle. Additional standards for lighting and landscaping are provided in Chapter 4, Land Use and Urban Design and Chapter 6, Open Space, Landscaping and Public Art. As identified on the Street Sections in Figures 5-4 through 5-11, pedestrians will have connections both on- street and off-street, making it easy to walk to parks, retail, and restaurants in the community. To increase pedestrian safety, the following features may be included in crosswalk designs:
 Raised Crosswalks
 Decorative Paving, or other visual breaks
 Bulb-outs
 High Visibility Crosswalks
The parkways identified within the street sections shall be allowed to incorporate street furniture that includes, and is not limited to:
 Benches
 Bike Racks
 Shade Canopies
 Public Art
 Lighting Standards
 Trash Receptacles

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5.2.5 Bicycle Connectivity
Many people in Costa Mesa already use bicycles as a means of transportation, and this Specific Plan further encourages residents and visitors to do so. Existing bike infrastructure facilitates safe circulation throughout the City and proposed infrastructure in the Specific Plan will enhance the existing network to and within the Specific Plan area.

Existing
Costa Mesa maintains an extensive network of bicycle
infrastructure throughout the City, allowing bicycles to be safely used as a means of transportation across the City and to major nearby destinations. Much of the existing bikeway
infrastructure also connects to regional infrastructure, such as the Santa Ana River Trail. The City of Costa Mesa adopted an Active Transportation Plan (ATP) in 2018 to guide
improvements to the existing circulation network and outline proposed improvements to the City’s bike infrastructure network. This can be seen in Figure 5-12, Existing and
Proposed Surrounding Bicycle Network. Bicycle infrastructure is classified into four categories, established by the Caltrans Bicycle Infrastructure Classification System and reaffirmed in the City’s ATP.
 Class I: Off Street Paved Bicycle Paths and/or Trails  Class II: On-Street Striped and Signed Bicycle Lanes
 Class III: On-Street Shared-Lane Signed Bicycle Routes (includes designation for route and boulevard)
 Class IV: On-Street and Separate Bikeway (Cycle Track) Class I bike lanes currently exist to the north, east, and south of the site along the southern boundary of the Costa Mesa Country Club; along Harbor Boulevard; and parallel to Tanager Drive from the Harbor Boulevard intersection to Golf Course Drive. Many of the trails throughout the community are
anticipated to be multi-use paths, providing additional connectivity for pedestrians and bicyclists.

Proposed
The Specific Plan proposes a network of bikeways that provide safe bicycling options throughout the area and connect to the City’s existing bikeway network. The bicycle network for this Specific Plan consists of on-street and off-street facilities, including Classes I, III, and IV options, as depicted on Figure 5-13, Proposed Bicycle Network. Class IV paths are provided on Shelley Circle along a separated multi-use path that connects around the boundary of the site up to the Tanager Trail. An on-site multi-purpose paseo provides a central connection through the new neighborhood. Off-site facilities include the southbound Class II bike lane on Harbor Boulevard connecting to the Joann Trail. Heading east toward Placentia Avenue on Joann Trail provides access to Estancia High
School, Fairview Park, and the Santa Ana River Trail. To the west, Merrimac Way and Fair Drive both provide Class II bike lanes that connect to the nearby campus of Orange Coast College and the OC Fairgrounds and Event Center.

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Figure 5-12: Existing and Proposed Surrounding Bicycle Network

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Figure 5-13: Proposed Bicycle Network

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5.2.6 Intersections
On-site and off -site improvements are required to ensure efficient movement of traffic for the FDC buildout. Figure 5- 14 shows the necessary intersection improvements at the two existing intersections with Harbor Boulevard, all of which can be accommodated within the existing right -of-way. As previously discussed, the secondary access road through the golf course is a new roadway that will connect to the existing intersection with the Harbor Shopping Center, also shown on Figure 5-14.

Roadway design must also accommodate vehicles accessing the SREOC. The backbone roadway network in Figure 5-3
identifies Shelley Circle as a required access route, and Figure 5-15, SREOC Turning Radius Vehicle Size, provides the
turning radius standards for SREOC vehicles.

On-site intersections must accommodate all modes of
transportation. Proposed intersection controls could include roundabouts or four-way stops, or other alternatives, that will be evaluated through project review and are subject to
approval by the Public Works Department. Given the proximity to Harbor Boulevard, design attention should ensure safe and efficient operation for the neighborhood and ingress and egress for Cornerstone Lane residents.

Figure 5-14: Intersection Improvements

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Figure 5-15: SREOC Turning Radius
Vehicle Size

Source: Caltrans, Highway Design Manual, 7th edition, Chapter 400.

5.2.7 Public Transit
Public transit services in the City of Costa Mesa are provided by the Orange County Transportation Authority (OCTA), which operates both fixed route and paratransit service across all cities in Orange County. Figure 5-16, Bus Stops and Transit Routes, shows the bus routes operating near the Specific Plan area and nearby bus stops. Relevant information about the nearby routes can be seen below in Table 5-1, Bus Routes.

Paratransit services are also provided by OCTA through OC ACCESS. This service provides transit options for residents who are unable to use traditional fixed-route transit services due to physical or cognitive limitations. OC ACCESS provides service within ¾ mile of traditional fixed routes, which includes the full site. The City of Costa Mesa had been testing Let’s Go Costa Mesa, a three-year grant-funded pilot microtransit program. The grant funding will conclude around October 2027, and the continuation of the program will be evaluated by City Council.

As the Fairview Developmental Center Specific Plan is
implemented and population and transit demand increase, the City and Master Developer will work with OCTA to provide relevant service and/or stops for the area.

Table 5-1: Bus Routes
Bus
Route Nearest Stop Starting
Location
Ending
Location
43 Harbor & Merrimac Fullerton Costa Mesa
47 Wilson & Harbor Fullerton Balboa
178 Adams & Harbor Huntington Beach Irvine
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Figure 5-16: Bus Stops and Transit Routes

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5.2.8 Parking Standards
Parking in the FDCSP area shall be designed to support
development needs while minimizing visual impacts and
reinforcing a pedestrian-oriented environment, and shall be provided in accordance with Table 5-2.
 Surface parking shall not be located between a
residential building and its primary street frontage.
 Parking structures shall be screened from public streets through building placement, architectural treatment, or landscaping.
 Bicycle parking shall be provided consistent with
Table 5-2.
 A Parking Management Plan with parking study shall be submitted for the FDC area addressing the following:
shared parking between residential and commercial,
curb side drop-off and pick-up locations, and EV
chargers, and may include other measures that
demonstrate adequate parking would be provided for all
uses identified in Table 5-2.

All modes of transportation should be planned for throughout the Specific Plan area.
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Table 5-2: Parking Requirements
Use/Unit Type Minimum Number of Parking Spaces¹ Unit

COMMERCIAL
Retail, Office, Food & Beverage² 4 Per 1,000 sf

RESIDENTIAL
Affordable and Market Rate3 No minimum Per Unit

EV CHARGING
EV Capable 0.10 Per Total Spaces
EV Ready 0.25 Per Total Spaces

OPEN SPACE
Public Parks (including playgrounds)4 5 Per Acre
Courts4 2 Per Court
Fields4 30 Per Field
BICYCLE PARKING5
Residential – Long Term 0.5 Per unit
Residential – Short Term 1 Per 10,000 sf6
Retail and Commercial 5% of required vehicle parking % Per Total Vehicle Spaces Public Parks and Trails 2 Per 0.5 acre of Park/ Trail
NOTES:

1. Parking rates may be superseded by State legislation, including AB 2097 and State Density Bonus Law (Gov Code § 65915) .

2. Outdoor dining associated with food and beverage establishments are excluded from parking requirements.

3. Affordable includes Very Low, Low, Moderate, Senior, Permanent Supportive, and Special Needs.

4. On-street parking may be used to satisfy and/or contribute to this requirement.

5. Or as otherwise required by California Building Code and CalGreen Code.

6. Minimum of 2 spaces shall be provided, regardless of size.

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6 Open Space,
Landscaping &
Public Art

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6.1 Purpose
Open space is an essential part of the community, providing areas for active and passive recreation, fostering social interaction, and supporting community events. This chapter outlines the open space plan elements, standards, and direction for Open Space, Trails, Landscaping, and Public Art for the Fairview Developmental Center Specific Plan (FDCSP) area, consistent with the guiding principles in Chapter 3.

6.2 Open Space and
Trails Plan
The open space and trails plan establishes standards that are foundational for creating attractive, usable, and sustainable open spaces. The standards were developed based on
feedback from the community and industry best practices. The following design objectives shall guide the final open space and trails network:

1. Locate and configure park sites to be easily accessed by residents of all ages via sidewalks, bicycle paths, and trails.

2. Link trails to create a fitness loop within and around the Specific Plan area.

3. Link on-site trails to off-site trails, including the Tanager Trail and the Joann Street Trail.

4. Create unique places within parks and other open space areas through landscape design, art, and/or
programming.

5. On-street parking (including diagonal parking) may be used where feasible to meet off-street parking
requirements for public parks to maximize the available land area for park amenities.

6. Community-serving uses or programming shall be
provided and coordinated with the City’s Parks and
Community Services Department and any current or
future adopted Park’s Master Plan.

7. Direct noise and lighting impacts from sports fields away from homes to the extent feasible.

8. Design publicly accessible and common open space
amenities, including plazas and other outdoor gathering areas, with ample shade, seating, lighting, and native
plantings.

9. Preserve or reuse existing trees where feasible.

10. Locate and incorporate restaurant patios adjacent to publicly accessible open space areas to encourage the
enjoyment of open space facilities.

11. Any trees removed shall be replaced consistent with City requirements at a 2:1 ratio (two new trees for each tree removed).

12. Utilize creative options such as programmable streets to increase the amount of public open space available for
special events.
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Figure 6-1: Conceptual Site with Open Space

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The open space plan includes multiple categories of open space. These categories are defined below but are not shown on a figure because a Master Developer, with City approval, will provide additional detail regarding where and what type of open space will be developed in a development application (see Chapter 8). The minimum amount of publicly accessible open space required, as shown in Table 6-1, shall be provided, and the requirements of this chapter can be met through a combination of the types of spaces as described in this Chapter. Figure 6-1 illustrates how future open space could be designed and distributed throughout the plan area. Section

6.2.1 provides the standards for each type of open space.

Common Open Space. These open space areas are privately owned and maintained but are shared spaces and can be
accessible to the public. Examples include but are not limited to courtyards, plazas, pool areas, rooftop decks, and
playgrounds.

Public Open Space. These open space areas are publicly
accessible but could be maintained by the City or property owner. Anyone living in the community or visiting the Specific Plan area would have access. Examples include trails,
pedestrian paths, parks, and temporary open spaces such as street closures.

Private Open Space. These open space areas are private and only accessible to the property owner or lessee. Examples include balconies, enclosed patios, and rooftop amenities.

Paseo. One paseo generally east-west through the site has been identified in the Plan to provide a centralized pedestrian amenity in the heart of the community. Different from a trail this community-centered connection should have buildings or open space on either side. The paseo will have special paving and pedestrian-scaled lighting and provide amenities such as landscaping and/or planters, seating, and possibly public art.

Pedestrian Paths. A linear open space for non-vehicular use between buildings or blocks, providing walkable connections.

May be in a setback area.

Trails. Multi-Use Trails provide connections to the surrounding Costa Mesa Community from the FDCSP site. See Section

6.2.2 and Chapter 5 for more details.

Figure 6-2, Proposed Open Space and Trails Plan, provides a conceptual layout depicting the minimum requirement for publicly accessible open space, including a central paseo consistent with Chapter 4, Land Use and Urban Design.

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Figure 6-2: Proposed Open Space and Trails Plan

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6.2.1 Open Space Standards
Open space areas are an important part of community building and general site design for the Specific Plan area. Open space shall be distributed throughout the plan area and can be categorized into three general types: Common, Private, and Public. A reciprocal access easement for ingress and egress may be required to facilitate the ease of pedestrian and bicycle access throughout privately owned-publicly accessible open space. A fourth type, the Paseo, shall serve as a key element of the public open space network and is further defined in this section. All open space shall comply with the standards of this section and Table 6-1. Figures 6-3 and 6-4 provides a visual reference for what these categories of open space could look like and how they could be designed in future development.

Public Open Space
 Public open space may be dedicated and owned by the
City or privately owned and maintained with a public
access agreement, and shall require approval by the
Parks and Community Services Department, or
designee.
 Shall be consistent with the city’s adopted and future updates to the Parks Master Plan.
 Public open space may contain active and/or passive
recreational uses.
 Public open space shall include areas dedicated for all ages, including children and elderly.
 A minimum of 14 acres of publicly accessible open
space shall be provided in the Specific Plan area.
 Stand-alone commercial centers shall include a privately owned, publicly accessible gathering area, with outdoor amenities and spaces for dining, socializing, events, and other activities. The minimum size shall be 5,000 square feet.
 Public open spaces shall be consistent with any adopted or future adopted Parks Master Plan.

Table 6-1: Open Space Requirements
Minimum

OPEN SPACE
Residential 90 sq feet per unit1
Commercial 5,000 sq feet2
Public3 4.26 acres per 1,000 people
NOTES:

1. May consist of outdoor/indoor common areas; private open space; and privately owned, publicly accessible open space, such as park areas and plazas.

2. If commercial is provided in a stand-alone configuration.

3. Can be met through land dedication, park improvements, and in-lieu fees; however, no less than 14 acres of publicly accessible open space shall be provided for the Specific Plan site (see also Chapter 4). May also count privately owned, publicly accessible open spaces toward this requirement, as approved by the Community Development Director.

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Common Open Space
 Common or shared open spaces within multifamily
projects may be on roofs, upper decks, parking
podiums, or at ground level.
 Common open space shall have a minimum dimension
of 15 feet in all direction.
 Indoor common open spaces may include
recreation/fitness facilities, event rooms or gathering areas, shared workspaces, and similar indoor uses.
 Pedestrian walkways shall connect common open
spaces to building entrances, private drives, or public streets.
 Rooftop amenities may include shade structures that
exceed the building height by 10 feet.

Private Open Space
 Balconies shall have a minimum area of 60 square feet with a minimum dimension of 6 feet in each direction.
 Balconies shall be recessed a minimum of one foot into the building facade.
 No balcony shall overhang the public right-of-way.
 Private patios or porches shall have a minimum area of 80 square feet, shall be contiguous to the unit served, and shall include fencing with a maximum height of six
feet.
 Rooftop amenities may include shade structures that
exceed the building height by 10 feet.

Open space areas should provide active and passive opportunities for community engagement.
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Pedestrian Paths
 The minimum clear width of a pedestrian path shall be 16 feet.
 Lighting shall be provided consistent with Chapter 4 of this Specific Plan.

Paseo
 Paseos shall be open to the public and designed
primarily for pedestrian use.
 Where a paseo is required to provide Fire Department
access to buildings with portions of the building more
than 150 feet from an approved fire access point, the
minimum clear width shall be increased to 20 feet, as
required per California Fire Code.
 Paseos shall connect to streets, open spaces, trails, plazas, and building entrances where feasible.
 Lighting, landscaping, and seating shall be provided to enhance safety and comfort. Seating along a paseo
shall be provided at a ratio of one bench for every 150 feet of continuous linear pathway.
 Ground-floor uses adjacent to a paseo shall include
active uses, residential entries, common spaces, or
patios where feasible.
 Public art shall be implemented, where feasible, as
described in Section 6.4.

Active and passive open space amenities shall include
amenities such as sports fields, trails, a central paseo, playgrounds, and landscaped areas with benches and a
peaceful view of the golf course.
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Figure 6-3: Paseo

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Figure 6-4: Open Space Illustrative

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6.2.2 Trails
On-site and off-site trails for active transportation travel will provide connections to the rest of the Costa Mesa community, integrating this new neighborhood with the rest of the City.

Existing connections include the Tanager Drive Trail to the north and Joann Street Bicycle Trail to the south, as shown on Figure 6-2. These two trails can also connect via existing and planned bikeways on Placentia Avenue, Fair Drive, Wilson Street, Mesa Verde Drive East, Harla Avenue, Merrimac Way, Golf Course Drive, and Harbor Boulevard. Bikeways are
described in more detail in Chapter 5.

Multi-use trails are encouraged throughout the Specific Plan site, and the final location for many connections will be identified through the Master Developer’s site plan application.

The multi-use trail, as depicted on Figure 6-2 and further detailed in the street sections in Chapter 5, is a requirement for implementation of this plan.

Multi-use trails are an important part of the open space plan and mobility plan for the FDCSP area.
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6.2.3 Nearby City Parks
The Costa Mesa Parks and Community Services Department
manages many of the recreation facilities, programs, and services in Costa Mesa, including the public parks. There are 32 parks across the City, ranging from under one acre to over 200 acres. See Figure 6-5, Nearby City Parks and Open
Space, for those near the Specific Plan site. Publicly accessible open space will be provided through implementation of this Plan. Section 6.2 outlines the open space and recreation plan for the Specific Plan area.

Nearby city parks provide open space and recreation facilities available for the public to use.
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Figure 6-5: Nearby City Parks and Open Space

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6.3 Landscaping and
Trees
Landscaping shall be provided throughout the Specific Plan area to enhance aesthetics, provide shade, manage
stormwater, and pursuant to Section 13-105 of the CMMC, contribute to environmental quality.
 The Master Developer shall prepare a program for
preservation, relocation, and replacement of existing on- site and impacted off-site trees, demonstrating all
applicable requirements of the FDCSP. Relocated trees
may be used for streetscape, parks, paseo, publicly
accessible open space, private outdoor areas, and
within setback.
 Existing trees removed during development shall be
replaced on-site at a ratio of two new trees for every one tree that is removed.
 Existing trees may be boxed and relocated on-site.

Relocation must be performed by qualified personnel
following recognized ISA Best Management Practices,
including proper root pruning, secure anchoring,
supplemental irrigation, and soil preparation. After
relocation trees must be monitored, irrigated, maintained and inspected to promote establishment and long-term
survival. See Appendix F for an inventory of the trees on the FDC site.
 Tree preservation may include tree extraction, staging, and relocation within the Specific Plan area.

Landscape features could include street furniture such as integrated seat walls and benches.
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 Replacement trees shall be boxed/contained trees from local, quality, native and non-native nursery tree stock.  Landscaping, trees, and other plant material shall
comply with Section 13-106 of the CMMC.
 Street trees shall be provided along all public and
private streets.
 Landscaping shall be used to screen parking areas,
utilities, and services through the use of planting islands and perimeter landscaping.
 Landscaping shall comply with applicable water
efficiency standards and City requirements per Section
13-107 of the CMMC.
 Pursuant to the Migratory Bird Treaty Act and California Fish and Game Code, removal of any trees, shrubs, or
any other potential nesting habitat shall be conducted
outside of the avian nesting season. The nesting season generally extends from early February through August.

6.3.1 Hardscape, Outdoor
Furnishings and Amenities
 Special paving treatments shall be used at pedestrian crossings, plazas, and entry points to reinforce walkability and visibility.
 Hardscape elements such as walls, planters, and seat
edges shall be designed with durable materials that
complement surrounding architecture.
 Universal accessibility shall be thoughtfully integrated into all public areas.
 Parks, plazas, and open spaces shall include site
furnishings appropriate for the type, size, and character of the amenity or feature.
 Furnishings include, seating, tables, shade elements, waste, recycling, and compost receptacles, bicycle
parking, lighting, and other features.
 Site lighting shall be provided for safety, to identify ingress and egress, and be integrated into the overall landscape design.

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6.4 Public Art
Public art contributes significantly to the public experience and identity of a place. It stimulates creativity and imagination and can add a unique human quality to the outdoor environment.

Costa Mesa is the City of Arts and, consistent with the City’s motto redevelopment of the Fairview Developmental Center property shall integrate art and art education. The following guidelines address the development, placement, and selection of artwork:
 Public art within the Plan area is subject to the
requirements of the City’s adopted Arts & Culture Master Plan and subsequent updates.
 Public art associated with commercial uses should invite interaction, reflect local context, and contribute to
placemaking in public spaces and along key pedestrian
routes.
 The design and placement of public art shall consider its physical impact on its surroundings, such as buildings, open spaces, and pedestrian circulation, to ensure
compatibility and visibility.
 Artwork should be sited so as not to obstruct pedestrian movement, compete with storefront visibility, or impede vehicular sightlines.
 Murals, bas-relief, or integrated art elements should be used to enhance building facades and activate
otherwise blank walls.
 Public art shall be constructed of durable materials
suitable for outdoor conditions and should be
appropriately lit to ensure visibility during evening hours.

Art can create a sense of place by adding an interesting element to an outdoor area.
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7 Infrastructure &
Public Services

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7.1 Purpose
This chapter describes the infrastructure and utilities that previously supported the FDC, and identifies the improvements needed for redevelopment under this Specific Plan. It also outlines nearby public services that will provide facilities and support to the community.

7.2 Infrastructure,
Utilities and Public
Services
Adequate infrastructure is required to support redevelopment for residents and businesses. This section discusses the existing utilities and infrastructure currently servicing the FDC site, as well as the new, upgraded infrastructure that will be required to accommodate the redevelopment proposed in this Specific Plan. In this plan, utilities and infrastructure refer to dry utilities such as electricity and gas in addition to wet utilities such as water, sewer, and drainage.

7.2.1 Electricity and Natural
Gas
Electrical service to support the current buildings on the FDC site is provided by Southern California Edison (SCE). The existing system feeds an on-site central “power plant.” From there, electrical power is distributed through transformers in and around on-site buildings for service. Redevelopment proposed by this Specific Plan will require updated
infrastructure. None of the existing supporting utilities are feasible to keep on-site and the systems will all need to be modernized to meet current code requirements. SCE
previously confirmed that it has the capacity in the area to service the redevelopment, and it will oversee the installation of typical facilities needed for electrical service around the property. This will require further coordination between the Master Developer and SCE to reconfirm capacity remains
available and to determine exact points of connection for new infrastructure.

Natural gas service is currently provided by Southern California Gas Company (SoCal Gas). Similar to the electrical services, natural gas is provided by a single meter and then distributed across the site. All distribution lines and appurtenances beyond this gas meter are owned by the State. Also similar to the electrical services, all facilities supporting the current gas system will need to be removed and replaced with a typical system. In coordination with the selected Master Developer, it is anticipated that SoCal Gas will remove the existing facilities and require a new, typical gas service system to support redevelopment. The new system will connect to the existing high pressure distribution system found in Harbor Boulevard.

The Master Developer shall coordinate with SoCalGas to verify service availability for the proposed development within the plan area.

In conclusion, new infrastructure for all dry utilities will need to be installed throughout the site to support redevelopment. The selected Master Developer will coordinate with the gas and electric companies for related utility infrastructure needs at 1645
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the site. This Specific Plan encourages the Master Developer to fully rely upon electric power for redevelopment of the site.

7.2.2 Water and Sewer
Water
Water service in Costa Mesa is provided by the Mesa Water District (MWD), which uses groundwater from the local Orange County Groundwater Basin and recycled water from the
Orange County Water District (OCWD). In emergencies, MWD will obtain potable water from the regional wholesaler, Municipal Water District of Orange County (MWDOC). The
Specific Plan site currently receives water from a main water line that runs under Harbor Boulevard, which then enters an on-site system of smaller water lines (see Figure 7-1, Existing Water System Facilities). The system currently provides service to existing uses and has no major issues in terms of supply, pressure, or fire flows; however, future development will require project-specific evaluation of domestic demand and fire protection needs. Final infrastructure sizing, looping, hydrant spacing, and pressure/flow performance shall be confirmed through detailed engineering and coordination with the MWD and Costa Mesa Fire & Rescue during subsequent planning, mapping, and building permit phases.

MWD prepared a Water Supply Assessment (WSA) and a
hydraulic analysis for the FDC buildout. The WSA concluded that adequate water supply is available for the maximum buildout described in Chapter 4. The hydraulic analysis found that maximum peak demand could affect one of the District’s reservoirs and, any required modifications will be determined during the Master Developer’s project review. The Master Developer will be responsible for coordinating with MWD to identify the necessary improvements. Both studies are included in the Environmental Impact Report (EIR).

The existing on-site water system will be demolished and replaced with a new 8- to 12-inch polyvinyl chloride (PVC) system. The new system will connect at Fair Drive and the future roadway to Fair Drive to create a looped network (see Figure 7-2, Proposed Water System Facilities). Additionally, development of the SREOC property will include a new 10-inch domestic line dedicated to its water needs, connecting from an existing main at Fair Drive and Harbor Boulevard.

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Wastewater
The Costa Mesa Sanitary District (CMSD) maintains 224 miles of gravity sewers citywide (see Figure 7-3, Existing Sewer Facilities). The FDC site currently uses a private on-site sewer system that connects to a CMSD sewer main via a private line in Merrimac Way. Data collected during the monitoring of the two nearby manholes along Harbor Boulevard indicates that the sewer system is in good condition with ample capacity.

Wastewater flows north in the CMSD sewer system to the
Orange County Sanitation District (OCSD) trunk sewer facility at Baker Street, where it is treated and recycled. As of December 2025, OCSD confirmed sufficient capacity to
accommodate the estimated wastewater flows from the
Specific Plan’s maximum buildout.

Development of the Specific Plan area will require the following improvements:
 Upsize one of the two existing parallel 15-inch sewer lines between Fair Drive to Merrimac Way to 18- inches
or greater (approximately 1,860 Linear Feet (LF)).
 Upsize the existing 18-inch line between Merrimac Way and Baker Street to 21- inches or greater (approximately 4,240 LF).
 Total estimated lineal feet of sewer replacement or
upsizing is 6,100 LF.
 Existing capacity in the sewer system can support 1,600 residential units before full upgrades are required, based on conservative generation factors.

 Further evaluation and coordination with CMSD will be required to confirm final sizing and cost-sharing
responsibilities. The Master Developer will be
responsible for coordinating this with CMSD and the
City.

The on-site sewer system will be demolished and replaced with a new 8- to 12-inch system sized to accommodate Specific Plan buildout (see Figure 7-4, Proposed Sewer Facilities). The new on-site system will continue to discharge at the existing Fair Drive connection point. Additionally, the SREOC property will install a new dedicated 8-inch sewer line running east-west and connecting to the CMSD sewer system in Harbor
Boulevard, designed and installed to avoid conflicts with future Specific Plan development areas.

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7.2.3 Storm Drain
The City of Costa Mesa has approximately 42 miles of storm drains and over 1,100 catch basins across the community. The storm drain system is maintained by the City, including clearing blocked drains, removing debris from drains/basins, and repairing any damaged pipes. On the FDC site, the system primarily discharges via surface flow to the Costa Mesa Country Club (golf course) to the west. Runoff at the golf course is then collected through a network of inlets that lead to the City storm drain systems (see Figure 7-5, Existing Storm Drain Facilities).

Prior to construction on the FDC site, the City will require the following studies and improvements (see Chapter 8; some conditions may be phased):

1. Pipe condition analysis, using closed-circuit television (CCTV), of the existing 36-inch storm drain that accepts drainage from the FDC site.

2. Replacement of the corrugated metal pipe (CMP)
portion of the storm drain with reinforced-concrete pipe (RCP).

3. Realignment of the 36-inch RCP storm drain to avoid the lake (on golf course).

4. Future study to determine capacity of the existing 36- inch storm drain.

5. Balance proposed condition 25-year peak flow to match existing 25-year peak flow, including on-site detention if necessary.

6. Prepare detailed hydrology and hydraulics report for City review and approval based on the approved Tentative
Tract Map.

These changes and infrastructure upgrades will create a new storm drain network (see Figure 7-6, Proposed Storm Drain Facilities) that can accommodate the development levels proposed in this Specific Plan. Prior to any connections to the storm drain facilities, the Master Developer shall also submit an application for review to Orange County Public Works (OCPW). 1648
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Figure 7-1: Existing Water System Facilities

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Figure 7-2: Proposed Water System Facilities

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Figure 7-3: Existing Sewer Facilities

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Figure 7-4: Proposed Sewer Facilities

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Figure 7-5: Existing Storm Drain Facilities

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Figure 7-6: Proposed Storm Drain Facilities

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7.2.4 Waste Management and
Recycling
Waste management and recycling services are required for construction and demolition as well as for ongoing service once new housing and commercial businesses are built. The City of Costa Mesa has requirements for both types of waste.

Construction and Demolition Waste
The City’s Municipal Code requires that all project-related construction and demolition divert 65 percent of nonhazardous project waste from the landfill by recycling or salvage. Asphalt, concrete, excavated soil, and land-clearing debris can all be diverted. Other materials include but are not limited to cardboard, plastic, lumber, drywall, concrete, brick, and other masonry. The City offers options for waste hauling, either through a franchise waste hauler or self-hauling. Coordination with the City’s Public Works Department is required prior to issuance of a building permit.

Residential and Commercial Waste
Multi-family properties of five or more units and commercial businesses may select a waste collection and recycling hauler from the City’s approved list. Single-family residential service and multi-family properties of four units or less are managed by the Costa Mesa Sanitary District—the current provider is CR&R. See Chapter 4, Section 4.6.7, for trash and recycling enclosure requirements.

7.2.5 Public Services
It is important for new developments in Costa Mesa to have access to the public services that are readily available to residents. These include, but are not limited to, fire protection, police services, schools, and libraries. These services can be seen in Figure 7-7, Public Services. It is important to note that this Specific Plan does not identify or propose new public safety facility sites but also does not preclude the siting of future public safety facilities or support functions within the Specific Plan area. A nexus study which calculates the new increment of development, estimates the portion of an
improvement project attributable to that increment of growth, and allocates the fee for the FDC, shall be required of the Master Developer (see Section 8.3.3 and Table 8-3). If a future need is identified, such facilities will be accommodated, consistent with applicable City review and implementation actions.

Police
Police services are provided by the Costa Mesa Police
Department. The Costa Mesa Police Department headquarters is at 99 Fair Drive, approximately 0.85 miles east of the Plan area. Due to the distance from the Police headquarters and the proximity to Harbor Boulevard, a substation is needed within the Specific Plan area, either separate from or connected to a Fire Department substation. This is due to an increase in population from the residential and commercial uses at the site that will necessitate additional personnel commensurate to the current ratio of Police personnel to the population.
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Fire and Emergency Services
Fire protection and emergency services are provided by the Costa Mesa Fire & Rescue Department. The department has six fire stations around the City, and the three closest stations to the Plan area are:
 Fire Station 1 (1570 Adams Avenue): approximately 0.9 miles from the Specific Plan entrance at Harbor
Boulevard and Fair Drive and 1.7 miles from the
proposed SREOC site.
 Fire Station 5 (2450 Vanguard Way): approximately 0.9 miles from the Specific Plan entrance at Harbor
Boulevard and Fair Drive and 1.7 miles from the
proposed SREOC site.
 Fire Station 4 (2300 Placentia Avenue): approximately

1.4 mile s from the Specific Plan entrance at Harbor
Boulevard and Fair Drive and 2.2 miles from the proposed SREOC site.

As redevelopment occurs, fire protection and emergency
services needs may evolve due to changes in population, building intensity, roadway network conditions, and travel patterns. The Master Developer shall coordinate with Costa Mesa Fire & Rescue and applicable agencies to confirm
emergency access, fire lane geometry, turning radii, vertical clearances, hydrant spacing, and required fire flows. Project phasing shall incorporate any identified fire protection improvements needed to maintain effective emergency
response and public safety, up to and including the placement of a fire station on-site or another acceptable location.

Schools
The Specific Plan area is in the Newport-Mesa Unified School District (NMUSD). NMUSD oversees 44 schools—12
preschools, 22 elementary schools, an independent study school, an intermediate school (grades 7-8), a middle school (grades 7-8), 2 middle/high schools (grades 7-12), 4 high schools (grades 9-12), and an adult education program, across the cities of Costa Mesa, Newport Beach, and Corona del Mar.

The schools near the Specific Plan area that could serve future residents are:
 Adams Elementary School (2850 Clubhouse Road):
approximately 1.6 miles to the Specific Plan entrance.
 TeWinkle Middle School (3224 California Avenue):
approximately 2.0 miles to the Specific Plan entrance.
 Estancia High School (2323 Placentia Avenue):
approximately 1.6 miles to the Specific Plan entrance.

Library
Libraries in Costa Mesa are operated as part of the Orange County Public Libraries. Two branch libraries are in the City:
 The Donald Dungan Library (1855 Park Avenue):
approximately 1.9 miles to the Specific Plan entrance.
 The Mesa Verde Library (2969 Mesa Verde Drive):
approximately 1.6 miles to the Specific Plan entrance.

In addition to book and media check-out programs, the libraries also provide additional services and resources, including:
hotspots, laptops and charger kiosks, public computers, Wi-Fi, wireless printing, private study rooms, and technology tutoring. 1656
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Figure 7-7: Public Services

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8 Administration &
Implementation
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8.1 Purpose
A specific plan is required to contain a program of
implementation measures consisting of, but not limited to, regulations, programs, infrastructure projects, and financing measures. This chapter outlines the requirements and actions for administering and implementing the Fairview
Developmental Center Specific Plan (FDCSP). Administration of the Plan includes review, approval processes, and
modification and amendment procedures. It also describes the implementation actions and conceptual phasing for short-, mid- , and long-term development, as well as the financing
measures needed for development and capital improvements.

8.2 Administration

8.2.1 Adoption and Applicability
This Plan was prepared in conformance with California
Government Code Title 7, Division 1, Chapter 3, Article 8, Section 65450 et seq.; the City of Costa Mesa General Plan; and the Zoning Code (Costa Mesa Municipal Code (CMMC)
Title 13) and has been adopted by Ordinance No. XXXX-XX.

Under the Zoning Code, individual specific plans may establish additional or separate provisions and standards for the plan area; and may adopt zones and amend the Zoning Map. This Specific Plan establishes the land uses and zoning for the Plan area, and addresses general provisions, permitted uses, development and design standards, and mobility and
infrastructure improvements. Unless otherwise specified, where the provisions of this Specific Plan differ from those in the Zoning Code and City regulations, including the citywide objective design standards, the provisions of this Specific Plan shall control. Where the Specific Plan is silent on a subject, the requirements of the Zoning Code (Title 13), shall remain applicable. This Specific Plan is subject to the requirements of state law, including but not limited to the Housing Accountability Act. To the extent that the provisions of this Specific Plan conflict with applicable state law, state law shall control.

8.2.2 Responsibility and
Enforcement
The City of Costa Mesa Community Development Department, its Director, or designees, shall be responsible for administering the Plan in accordance with the requirements of this document, all governing and applicable State and federal laws, the City of Costa Mesa’s General Plan, and the CMMC.

8.2.3 Severability
If any portion of this Plan and its regulations are declared invalid or ineffective in whole or in part by a court of competent jurisdiction, such decision shall not affect the validity of the remaining portions of this Plan.

8.2.4 Interpretation
In the event of ambiguity concerning the content or application of the Plan, the ambiguity shall be determined by the
Community Development Director, or designee(s). Such
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interpretations shall be consistent with the vision, guiding principles, purposes, objectives, and intent established in this Plan. See also “Specific Plan Conformity and Minor Conditional Use Approvals” in Section 8.2.7. Any appeals of interpretations shall go forward to Planning Commission.

8.2.5 Environmental Review
The FDCSP was adopted in compliance with the requirements of the California Environmental Quality Act (CEQA) (California Public Resources Code Sections 21000 et seq.). Pursuant to Section 15168(c), Use with Later Activities, of the CEQA Guidelines, later activities in the program, such as those implementing the Plan, can be approved as being within the scope of the project covered by the Program EIR and
associated Mitigation Monitoring and Reporting Program, and no new environmental document would be required, pursuant to CEQA Guidelines Section 15162. If a later activity causes substantial changes or would have effects that were not examined in the Program EIR, a new initial study may need to be prepared, leading to either an EIR or a Negative
Declaration. That later analysis may tier from the Program EIR as provided in CEQA Guidelines Section 15152.

In addition to the CEQA provisions noted above, pursuant to State CEQA Guidelines Section 15183, later projects that are consistent with the development density established by the Specific Plan and/or General Plan shall not require additional environmental review, except as might be necessary to
examine whether there are project-specific significant effects which are peculiar to the project or its site.

8.2.6 Application Review and
Processing
This section provides the review and approval authority for the implementation of the Specific Plan, as authorized by CMMC Title 13, Planning, Zoning and Development, Chapter III, Planning Applications. All development applications must be consistent with the Vision, Guiding Principles, purpose, intent, objectives, development and design standards of this Specific Plan.

8.2.6.A FDC Development Review
Application
Prior to a formal Tentative Map submittal, the Master Developer shall submit an FDC development review application to the Community Development Department, in a form developed and approved by the Department, that includes a conceptual map and supporting documentation to demonstrate conformance with the Specific Plan. The conceptual map shall divide the FDCSP site into Planning Subareas detailing the development program and phase. Details in the preliminary review
application shall include, but not be limited to:

1. Legal description (metes and bounds) of the overall
Planning Area boundary and graphic depiction of each
Planning Subarea, if applicable.

2. The general location, acreage and type of land use for each Planning Subarea.

3. Proposed maximum number of dwelling units for each
Planning Subarea.
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4. Proposed maximum number of gross and net acres for
non-residential land uses, including community facilities and service stations, if applicable.

5. Identification of applicable project design features, mitigation measures, and any Development Agreement
stipulations (if applicable) unique to the Planning Area.

6. Residential development typologies and the unit count by lot or block shall be provided, including the location and affordability levels of affordable housing. A broad color palette for the exterior walls and roofing materials for future homes and businesses shall also be included.

7. Backbone circulation and location of local roads.

8. Draft Transportation Demand Management Plan and
Climate Action and Adaptation Plan compliance.

9. Estimated acres of park, recreation and other open
space uses and location of parks, paseo, and trails.

10. Construction phasing/staging, including demolition and remediation.

11. General phasing of infrastructure for the entire planning area, including roadway locations (including secondary
and collector arterials, if appropriate and known), sewer, storm drainage and a Runoff Management Plan
(ROMP), Master Plan of Drainage (MPD), including the
location of water quality facilities.

12. Preliminary conceptual grading at 10-foot contours.

13. Historic American Buildings Survey Report (see Section

4.7.10).

14. Other relevant programs, policies, and guidelines
contained in The Plan, as may be required for
consideration, together with a description of how they
are being implemented by the Planning Subareas.

15. Any proposed changes to the Costa Mesa Country Club Golf Course to accommodate additional site access
shall be accompanied by an outreach plan.

16. Use of City-land, including any portion of the golf course, for an access road will require the Developer to enter
into an agreement with the City that considers the
following:
 Result in the least possible changes or impact to
existing uses;
 Developer-funded replacement or reconfiguration of
impacted uses to a condition that considers prior
conditions;
 Developer-funds all survey and design work, subject
to City review and approval;
 The equivalent of the appraised value of City land to be directed to City public benefits;
 Construction schedule, staging, and coordination
plan to be approved the City;
 The agreement may be a standalone agreement or
in combination with another agreement.

The Master Developer may submit additional materials that further demonstrate their conformance to this Plan. Additional focused studies may be required as part of this application and will be included in an application submittal checklist developed by the Community Development Department.
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8.2.6.B Tentative Map Application
A Tentative Map shall be required for the site area controlled by the Master Developer, in accordance with Title 13, Chapter XI, Subdivisions, of the CMMC, and shall be consistent with the preliminary review application. The Tentative Map is subject to the review authority identified in Table 8-1.

Minor Map Amendment (MMA)
This Specific Plan establishes a process to authorize limited modifications to an approved Tentative Map that remains in substantial conformance with the conditions of approval and does not increase the project’s environmental impacts. The Community Development Director, or designee, has the sole discretion to determine whether an MMA is the appropriate process for proposed tentative map or phasing plan changes prior to final map recordation. An MMA shall only be used to process changes to the project for an increase or decrease of no more than 10 percent.

An MMA may be applied for minor changes that include, but are not limited to:

1. Moving units from one phase to another with no increase or decrease in overall unit count.

2. Minor shifting of lot lines in any direction that does not result in safety impacts to the infrastructure or roadway network.

3. Minor pad elevation height changes.

4. Minor changes in project grading that do not result in a significant environmental impact.

5. Minor shifts in alignment of local roadways or the
required Backbone Roads.

6. Revising private roadways such that they are shown as separate lots or including them within lots.

7. Changes to residential product type or building footprint within a lot, as long as the change is consistent with the development standards and there is no increase in unit
count for that particular lot.

8.2.6.C Specific Plan Conformity
The FDC development review application process included in Section 8.2.6.A describes the process for initiating an application for the development’s consistency with this Specific Plan. The Vision and Guiding Principles (Chapter 3) shall be used to determine conformance to the Specific Plan.

8.2.6.D Minor Conditional Use
Approvals
The Vision and Guiding Principles (Chapter 3) shall be
consulted when a use determination and/or interpretation (Section 8.2.4) is being made. Any use requiring a Minor Conditional Use Permit (Table 4-3) shall be reviewed by the Planning Manager to determine its similarity to another listed use and the use’s suitability within the Specific Plan area.

Additional approvals, such as granting Modifications, as described below (Section 8.2.6.F), require demonstrated compatibility and conformance.
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8.2.6.E Affordable Housing Plan and
Density Bonus Program
Affordable housing requirements for the Specific Plan area are provided in Chapter 4, Table 4-1, and further described in Section 4.4. Tracking requirements are provided in Section 8.3.

Development in the Specific Plan area is exempt from the City’s Affordable Housing Inclusionary Ordinance pursuant to Section 13-329, Chapter XVII, of the CMMC. Density bonus projects are subject to Government Code Section 65915, et seq. and CMMC Title 13, Chapter IX, Article 4, Density Bonus and other Incentives.

Conformance with the FDCSP requires that the minimum
number of affordable housing units per income category is met, as identified in Table 4-1. The Master Developer shall submit an Affordable Housing Plan detailing how the requirements of this Specific Plan will be implemented. The Plan shall include but is not limited to the following information:

1. The location, structure, tenure (to be detailed within the Affordable Housing Plan) , and size of the proposed
market rate and affordable units, including bedroom
count.

2. The affordable units shall be comparable to the market rate units in terms of materials used and bedroom count and shall be proportionate in terms of unit mix.

3. The total number of affordable units to be provided per development application.

4. A floor plan and site plan depicting the location of the affordable units.

5. The affordable housing agreement shall specify the
number, type, location, size and phasing of all affordable units, provisions for income certification and screening of potential purchasers or renters of units, and resale control mechanisms, including the financing of ongoing
administrative and monitoring costs, consistent with the approved affordable housing plan, as determined by the
Community Development Director.

6. A fair housing marketing plan for the process by which qualified households will be reviewed and selected to
rent or own affordable units. At least 10-20 percent of the affordable units shall be set aside for households
who live or work in Costa Mesa with a priority for
households that are first responders, teachers, public
service employees, or seniors.

7. Construction phasing plan schedule with the anticipated dates for building permit issuance, certificate of
occupancy, completion, and opening date. This
schedule may be modified with approval by the
Community Development Director, or designee.

Affordable Housing Agreement Requirements
Prior to approval of any final parcel map or issuance of any building permit, whichever occurs first, the developer shall execute and record an affordable housing agreement in a form approved by the city attorney that at a minimum specifies: the number, type, location, size, and phasing of all affordable units; provisions for income certification; and screening of potential renters of the affordable units, consistent with this Specific Plan. Site preparation and remediation may begin prior to establishment of this agreement.
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Alternative Means of Compliance
A developer may propose an alternative means of compliance with the minimum requirements in Table 4-1 by providing a different mix of very low, low, and moderate income housing as long as the overall number of affordable units is met.

Alternatively, a developer may propose a lower number of total affordable units if the mix proposes deeper levels of
affordability (e.g. there is an increase in extremely low, very low, or low income categories). Any proposed alternative means of compliance will be reviewed as part of the submitted affordable housing plan and determination made by the
Community Development Director, or designee. The
Community Development Director may refer the alternative means of compliance to the Planning Commission, at their sole discretion.

Affordable Housing Plan Modifications
If a change to the required affordable housing cannot be met through an alternate means of compliance and a Master
Developer proposes a deviation from the affordable housing units identified in Table 4-1, the Community Development Director may approve the modification to the number and income level of units as long as the following are met:
 The total number of housing units does not exceed
the total maximum number of units in Table 4-1.
 The total number of housing units is not less than the minimum number of units in Table 4-1.

Very low, low, and moderate Income units can be
accommodated elsewhere in the City, and the change would result in “no net loss.”
Table 8-1: Development Application
Process and Review Authority
Review
Authority Application Type1 Appeal
Authority
Planning
Division
 Use Approval
 Reasonable Accommodation
Zoning
Administrator
Community
Development
Director
 Affordable Housing Plan
 Minor Modification
 Minor Conditional Use Permit
 Major Modification/ Variance
 Specific Plan Conformity
 Phasing Plan Adjustment
 Planned Sign Program
 Density Bonus Request
 T entative Parcel Map
 Minor Map Amendment
Planning
Commission
Planning
Commission
 Conditional Use Permit
 T entative Tract Map
 FDC Development Review
Application, except the secondary
access road shall be reviewed by
the City Council
City Council
City Council
 Development Agreement
 Final Tract Map
 Specific Plan Amendment
None
NOTE:

1. When required, mailed notices shall comply with Title 13, Chapter III Planning Applications, Section 13-29(d)(1), of the CMMC.

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8.2.6.F Modifications
Concurrent with the submittal of the FDC Development Review Application or the Tentative Map, an application requesting a minor or major modification, as described below, must be submitted to the Planning Division for review and to refer the application to the appropriate review authority identified in Table 8-1. Such submittals must be accompanied by supporting technical studies and documentation to make the applicable findings described in this section.

Minor Modifications
A minor modification is a deviation from the development and/or design standards of this Specific Plan (Chapter 4) that may be granted by the Community Development Director, or designee. A list of Minor Modifications is provided in Table 8-2.

Major Modifications/ Variance
A major modification is a deviation from this Specific Plan, that is not an interpretation (Section 8.2.4) or minor modification (Table 8-2) and does not warrant a Specific Plan Amendment.

Major Modifications may be granted by the Community
Development Director, or designee, but has authority to defer decision to the Planning Commission. Major Modifications include:
 A deviation in a development or design standard at a
percentage greater than what is allowed under a
Minor Modification (Table 8-2), but shall not exceed
20 percent.
 Any proposed change determined by the Director to
be a Major Modification.

Findings
When granting approval of Minor or Major Modifications for a development project, as specified above, the final review authority shall find that the evidence presented in the administrative record substantially meets all required findings listed here:

1. Granting the deviation and/or modification will not allow a use, density, or intensity which is not in accordance with the Housing Element and this Specific Plan.

2. Granting the modification will not be materially
detrimental to the health, safety, and general welfare of the public or otherwise injurious to property or
improvements within the immediate neighborhood.

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Table 8-2: Minor Modifications
Minor Modifications
Adjustments to development and design standards by no more than 10 percent.

Adjustments to parking standards by no more than 10 percent.

Adjustments to the Affordable Housing Plan; see Section 8.2.6.E, Affordable Housing Requirements/ Program.

Adjustments to allowable projections and encroachments if consistent with the building code.

Addition or update of information to this Specific Plan—text and/or map changes—for the purposes of clarification provided that the edit is still consistent with the intent of the Plan and does not constitute a major modification or amendment.

Certain adjustments to the Mobility Plan, including ultimate roadway alignment for non-backbone roads, lane configuration, bike lanes, sidewalks and trails, and traffic controls, also requires approval by the Public Works Department, Transportation Services Manager.

Use determinations for land uses not specified in Section 4.5 Uses, but similar in intent and character subject to interpretation by the Director, as specified in Section 8.2.4, Interpretation.

8.2.6.G Specific Plan Amendments
A Specific Plan Amendment may be initiated by the Master Developer, City Council, Planning Commission, or City Staff in the event of the following:

1. A proposed reduction in the minimum open space per
Table 4-1.

2. A proposed change to the maximum allowable number
of dwelling units and/or non-residential square feet
(Table 4-1).

3. A proposed decrease to the total number of very low- and low-income affordable housing units identified in
(Table 4-1) that cannot be met through a minor
modification (Table 8-2) or an alternative means of
compliance.

4. A change in use not allowed in the FDCSP that cannot be addressed through Section 8.2.4.

5. Proposed change to the backbone roadway network not
identified in Chapter 5, Mobility.

6. A proposed change to the Specific Plan area boundary.

A Specific Plan Amendment may require additional studies or analysis, as requested by the City and/or required by CEQA.

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8.3 Implementation

8.3.1 Site Preparation
It is anticipated that the State will leave the FDC property with the existing buildings still standing on the site, including parking lots, utilities, walkways, and landscape areas. Several State- initiated reports indicate that buildings constructed in the 1950s and 1960s have considerable lead- and asbestos-containing materials that will need to be remediated with demolition. The site likely contains hazardous materials from the existing utility infrastructure and expected contaminated soils. Prior to beginning demolition, the owner, beneficiary, or trustee shall contact the South Coast Air Quality Management District.

Additionally, the owner, beneficiary, or trustee shall provide an Erosion Control Plan that addresses Best Management
Practices. It is anticipated that site preparation and remediation efforts, in addition to grading, will adequately prepare the site for new development. Infrastructure improvements related to mobility and utilities are provided in Chapter 5, Mobility, and Chapter 7, Infrastructure and Public Services, and specific tasks are identified in Table 8-3.

8.3.2 Interim Conditions and
Requirements During
Construction
All portions of the Specific Plan area are subject to the following operational standards. Any vacant land or portions of the Specific Plan area under active construction, including demolition, grading and excavation, and above-ground building activities, shall be maintained in a visually attractive manner with the following criteria.

Fencing and Screening. The owner, beneficiary or trustee shall install a minimum six-foot-high fence with dust control covers adjacent to the property boundaries, or other alternative fencing acceptable to the City’s Building Official or Code Enforcement Manager that is adequate to protect the public health, and welfare, unless the City officials determine that the installation of such fencing will be detrimental to the public safety and welfare.
 Any fencing required under this section may
additionally require screening if deemed necessary
to protect the safety, adjacent properties from dust,
the streetscape, and overall appearance of the site.

The Building Official or Code Enforcement Manager
may enforce fencing standards for vacant areas
consistent with this section.
 If fencing is proposed for long-term vacant sites (for example, vacancy anticipated for more than 12
months vs. active construction sites) with no berms,
then fencing shall be permanently installed into the
ground and set back three feet to provide for
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landscaping to be installed and maintained in the
front.
 Any decorative or graphic elements on fencing must
be approved by the City and shall not contain any
advertising but may include graphics and visuals that
promote the project and the City of Costa Mesa.

Stormwater. A stormwater pollution prevention plan shall be approved by the Public Works Division, and Best Management Practices must be effectively implemented at all times to prevent soil, debris, or runoff from affecting right-of-way through erosion or other means.

Storage. Open storage is prohibited on a vacant lot or site within the Specific Plan area. Vehicle storage, such as cars, trucks, vans, motorcycles, and buses, is not permitted. Vacant lots are permitted to be used for construction staging, construction parking, and site security trailers while any portion of the site is under construction. A Construction Staging Plan may be required by the Building Official.

Property Maintenance. The Specific Plan area shall be kept clear of debris, litter, rubbish, overgrown weeds, graffiti, and other elements that contribute to blight.

Lighting. Exterior security lighting shall illuminate areas with visibility from a street or alley; however, the lights shall be shielded to avoid lighting adjacent properties.

8.3.3 Development Impact Fees
A future FDCSP impact fee program may be initiated in
addition to citywide development impact fees. Development impact fees are a potential funding source for maintenance of parks, recreational open space, public services, and other services that impact City resources. These fees will be paid by a developer and may only be used to pay for improvements necessitated by implementation of the FDCSP and only in an amount proportionate to the new development’s share of the benefit. The fees can be combined with other funding sources to pay for an improvement that serves both new and existing residents or businesses. A nexus study—which calculates the new increment of development, estimates the portion of an improvement project attributable to that increment of growth, and allocates the fee for the FDC—is required by state law for implementation. Cities can, and usually do, have more than one impact fee, with each fee dedicated to an individual category of improvements, such as public safety, facilities, parks, etc.

At a minimum, the following fees will be required to be paid prior to building permit issuance. Additional fees, as determined or adopted by the City, may also be required.
 Traffic Impact Fees
 Park Development Fees
 Drainage Fee
 Fire System Development Fees
 School Fees
 Sewer Fees

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8.3.4 Transportation Demand
Management
Development projects meeting the qualification criteria below shall implement Transportation Demand Management (TDM)
measures to support the Specific Plan’s mobility objectives in Chapter 5.

A draft TDM plan shall be submitted concurrent with an FDC Development Review Application, with the final plan submitted concurrently for each TTM. The approved TDM Plan shall
demonstrate consistency with the mobility goals and trip reduction targets of the Specific Plan and citywide CAAP goals, and shall be implemented and maintained throughout project occupancy. The TDM Plan shall include:
 Trip reduction goals.
 Required TDM measures.
 Incentives for walking, biking, and/or use of transit including, but not limited to, bicycle facilities,
rideshare programs, and transit ridership supportive
measures.
 Monitoring and reporting procedures.
 Responsible party for implementation.
 Corrective measures if performance targets are not
met.

.

8.3.5 Conceptual Phasing and
Financing
Buildout of the Specific Plan area is anticipated to take place in multiple phases, potentially over a 15- to 20-year horizon. The Community Development Director, or designee, has the
authority to approve an adjustment to the phasing plan.

Adjustments are not considered a modification or an
amendment to the specific plan unless otherwise stated in an executed Development Agreement. A phasing plan shall be submitted by the Master Developer to the Director, or designee, and be kept on file with the Planning Division. If a Development Agreement is in place for the property, all aspects of the phasing plan shall comply with the terms of the agreement including, but not limited to, affordable housing, infrastructure and other site improvements. Conceptual phasing for
implementation of development on the FDC site is identified in Table 8-3.

8.3.5.A Funding and Financing
Redevelopment of the FDC site is expected to be privately financed by the Master Developer. Through the State disposition process, as outlined by State Department of General Services (DGS) on their State Commercial Opportunities Portal
(www.dgs.ca.gov/RESD/Projects/Page-Content/Projects-List- Folder/State-Commercial-Opportunities-Portal), the Master Developer will need to meet the following:
 Accept the property in its current “as-is” condition, without warranties from the State.
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 Enter into a long-term ground lease or purchase
agreement with the State.
 Secure all necessary financing, conduct all due
diligence, and obtain all necessary permits,
entitlements and utility approvals from relevant
authorities.
 Cover all on-site and off-site development costs,
including security, maintenance, remediation,
construction, management, and operations.
 Pay prevailing wages to the extent required by State
law.
 Comply with CEQA.
 Pay any applicable development fees, including but
not limited to fees for permitting and applicable
impact fees.
 Meet all contractual milestones established in the
final agreement with DGS.

Additionally, a developer must submit a statement of financial capacity and strategy to determine whether the proposed project is not only financially viable, but likely to succeed. DGS will seek to understand how pre-development costs will be addressed, as well as the likelihood that development costs can be covered through the proposed means. The statement shall include:
 A listing of the estimates related to both pre-
development and development costs.
 A clear financing strategy, detailing sources and
amounts of capital (equity, debt, etc.) for both pre-
development and development costs.
 Analysis of how the project will support local financial sustainability.
 Any material assumptions that impact financial
feasibility (e.g., location of connections for municipal utilities).

The Specific Plan is intended to provide a sufficient amount of market-rate development to enable the master developer to finance the infrastructure and other public facilities and services, including donation of land for affordable housing development. Nevertheless, market conditions change over time. The City may consider utilizing one or more of the following funding and financing tools and sources, when, in the sole discretion and opinion of the City, it is necessary to facilitate development and build out of the Specific Plan.

Community Facilities District. Creation of a CFD could be used to finance infrastructure investments through municipal- rate bonds. Although initiated by the City, the developer would still be responsible for paying off the debt. Properties with 100 percent affordable housing would be exempt from the CFD property tax levy.

Landscaping and Lighting Maintenance District. This type of district may be used for maintenance and servicing
landscaping and lighting through annual assessments on
benefiting properties. Assessment districts may also be used to fund and maintain parks.

Parking Districts. The City may consider establishing one or more parking districts if requested by the master developer to coordinate, own, and/or operate shared parking lots and parking structures. While parking districts would not fund implementation of this Plan, paid parking could be used to 1672
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offset ongoing maintenance and operating costs for the
Plan area.

Grant and Loan Programs. Although the Specific Plan does not explicitly call for using grant and loan programs to implement the public realm improvements, the City may utilize various federal, state, local, and private grants to provide additional funding for public improvements. In particular, objectives such as promoting pedestrian- and bike-friendly environments, and relieving traffic congestion may help improvements qualify for various grants dedicated to advancing these goals. The City may submit proposals for this type of funding, but implementation of the Specific Plan is not reliant on grant funds.

See also Section 8.3.3 regarding Development Impact Fees.

Table 8-3, Implementation and Conceptual Phasing, identifies each phase of development, specific action items, timing, responsible party, and the anticipated funding source.
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Table 8-3: Implementation and Conceptual Phasing
Action Items Timing1 Responsible
Party2 Funding

PRELIMINARY
Prepare Nexus Study, Establish and Adopt
FDCSP Development Fee(s) Short-term City
City General
Fund or State
Grant
Preliminary and Development Review
Applications Short-term Master Developer Private
Coordination with John Wayne/County Airport
Land Use Commission Short-term Master Developer Private PHASE I: SITE PREPARATION
Construction Fencing Short-term Master Developer Private Building Demolition Short-term and likely completed in stages Master Developer Private Soil Remediation Short-term and likely completed in stages Master Developer Private Additional Tree Study and Removal Corresponds with other site preparation actions Master Developer Private Grading (and associated storm drain
improvements and erosion control)
Short-term and likely completed in stages with
building demolition/remediation Master Developer Private PHASE II: BACKBONE INFRASTRUCTURE
Relocation or Abandonment of State Storm
Drain through Golf Course (off-site)
Expect to be concurrent with initial grading
operations Master Developer Private
Stormwater System Concurrent with grading Master Developer Private Sewer System Concurrent with grading Master Developer Private Water System Concurrent with grading Master Developer Private Backbone Road Network (Per Mobility Plan,
Chapter 5), including all improvements (on-
street parking, bike lanes, sidewalks, etc.)
After grading and wet utility installation Master Developer Private 1674
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Action Items Timing1 Responsible
Party2 Funding
Other Local Roads, including all improvements
(on-street parking, bike lanes, side-walks, etc.)
As needed to support the delivery of pads to
homebuilders Master Developer Private
Electricity Concurrent with roadways Utility/Master Developer Private Natural Gas (For Commercial Areas Only) Concurrent with the delivery of commercial pad(s) Utility/Master Developer Private
Relocation of REOC Shelley Circle Detention/
Retention Areas
Concurrent with final improvements to Shelley
Circle Master Developer Private
Secondary Access Road and Golf Course Hole
Relocation
Triggered by total number of Proposed Units -
May be implemented in later phase of
development
Master Developer Private
Intersection Improvements Harbor Boulevard
and Fair Drive Mid-term Master Developer Private
Intersection Improvements Harbor Boulevard
and Shopping Center/Secondary Access
Triggered by total number of Proposed Units -
May be implemented in later phase of
development
Master Developer Private
PHASE III: DEVELOPMENT AREAS
Deliver Development Pads for Affordable and
DDS Housing (Per VTTM)
Stages concurrent with grading, roads, and
infrastructure improvements Master Developer Private
Deliver Parcels to Homebuilders Stages concurrent with grading, roads, and infrastructure improvements Master Developer Private
On-Site Parks and Trails (including historic
interpretive panels) Based on final Conditions of Approval Master Developer Private Off-Site Multi-Use Trail connecting to Tanager
Trail Based on final Conditions of Approval Master Developer Private NOTES:

1. Short-term: 1 to 5 years | Mid-term: 5 to 10 years | Long-term: 10 to 20 years.

2. Responsibility may be passed to individual builders in the event that not all development is built by the Master Developer.

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Table 8-4: Ongoing Ownership, Maintenance, and Funding
Improvement Funding1 Ownership Maintenance1
Water System (potable and
nonpotable)
Developer Private/Water District Water District
Sewer System Developer Sanitation District Sanitation District Stormwater System
Backbone
Developer Private/City Association/City
Other Offsite Developer City Association
Private Internal Streets Developer Private Association Public Streets Developer City City
Landscaping on Public Streets Developer City City
Landscaping on Private Internal
Streets/Drives
Developer Private Association
Private and Common Open Space/
Recreation Areas for Residential
Developer Private Association
Publicly Accessible Open Space
Areas
Developer Private/City Association
NOTES:

1. Could include public funding received to support improvements, such as a grant or District Assessment. .
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A
Definitions

APPENDIX
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Fairview Developmental Center Specific Plan

Use Definitions
Affordable Housing.

Housing which is deed-restricted for individuals or households qualifying as low-income. Low-income households are
identified as households making 50 – 80% of the Median
Family Income (MFI).

Approval, discretionary.

Approval of permits which require a greater level of scrutiny and discretion when determining issuance, involving a longer review process, public input, and often CEQA review.

Approval, ministerial.

Approval of permits which require no discretion, so long as certain clear requirements are met. Ministerial approvals generally do not require CEQA review.

CEQA Review.

A state-mandated environmental review under the California Environmental Quality Act (CEQA) requiring public agencies to evaluate and disclose the potential environmental impacts of a proposed project.

Community Clubhouse.

A building which provides facilities and equipment for
recreational purposes to residents of a community.

Density (Residential).

The number of housing units within a specific area, generally per acre.

Density Bonus.

An incentive provided to developers allowing a development to have a greater density than the allowable gross residential density permitted by local regulations.

Design Guidelines.

A series of recommendations providing direction for applying established design principles to new developments.

Development Agreement.

A voluntary contract between a property owner or developer and local government agency which outlines conditions, rules, and requirements for the development of a specific property.

Development and Design Standards.

A set of mandatory, quantifiable requirements for developments in an area that ensure consistency with established design principles.

Environmental Impact Report (EIR).

A detailed report which documents the potential environmental effects of a project under the California Environmental Quality Act (CEQA).
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Appendix A: Definitions

Floor-Area Ratio (FAR).

The ratio of the floor area of a building in relation to the land area that is it on.

General Plan Amendment.

A formal adjustment or change to the city’s General Plan which is approved by the local legislative body.

General Plan.

A long-term planning document that guides a jurisdictions future growth and development by providing policy direction through an established vision and subsequent goals,
objectives, and policies.

Goods and Services, Convenience.

Retail items and services which people need on a regular basis, generally encouraging them to be located throughout areas and close to households.

Goods, Comparison.

Retail items that consumers purchase more infrequently or rarely, promoting larger-scale retailers and concentration of these retailers.

Ground Floor Transparency
Area of a façade that consists of windows or other glazed surface that permits light and visibility into a structure.

Home Occupation.

A secondary commercial use activity within a dwelling unit, incidental to the residential use, for the purpose of producing income.

Housing, Multifamily.

Housing which contains two (2) or more dwelling units
designed for the independent occupancy of two (2) or more households.

Housing, Single-Family.

A detached, free-standing residential building located on its own land which is generally occupied by a single household or family.

Market-Rate Housing.

Housing which is non-subsidized and priced according to the areas existing supply and demand, including moderate income and above moderate income priced housing.

Master Developer.

A developer who is in charge of leading and managing the construction of large-scale developments, generally including multiple projects.

Master Plan.

A long-term strategic planning document guiding development within a certain area, ensuring growth that aligns with a community’s vision.
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Fairview Developmental Center Specific Plan

Medical Use.

Any building used for the practice of any type of medicine, including, but not limited to, medical clinics and offices, dentist offices, and urgent care facilities.

Mixed-use development.

The development of lot(s) or structure(s) with two or more different land uses such as, but not limited to a combination of residential, office, retail, public, or entertainment in a single or physically integrated group of structures.

Modification, Major.

A discretionary entitlement, usually granted by the planning commission, which permits departure from the strict application of the development standards contained in this Specific Plan, based on specified findings (See Chapter 7).

Modification, Minor.

A discretionary entitlement which permits limited deviation from the strict application of the development standards contained in this Specific Plan, based on specified findings (See Chapter 7).

Open space.

May consist of common, private, and public areas set aside for active and passive use by residents and visitors to the community. May also include paseos and trails.

Open space, common.

An area of land or contained within a building reserved primarily for the leisure and recreational use of all residents of a development or common interest development and owned in common by them, generally through a homeowners’
association.

Open space, private.

An area of land located adjacent to an individual dwelling unit, owned or leased and maintained by its residents, and reserved exclusively for their use.

Parkway.

The area of a street that lies between the curb and the adjacent property line or physical boundary definition, which is used for landscaping and/or passive recreational purposes.

Permanent Supportive Housing.

Permanent housing which provides housing assistance and supportive services to households in which at least one member lives with a disability.

Permitted use.

Any use allowed in a land use designation without requiring a discretionary approval, and subject to the provisions applicable to that district.

Permitted Uses.

Land uses which are legally permitted within a specified district as designated by this Specific Plan.
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Appendix A: Definitions

Regional Center.

Community-based, non-profit agencies that provide
assessments and coordinate services for individuals with developmental disabilities, overseen by the California
Department of Developmental Services.

Regional Housing Needs Assessment (RHNA).

A state-mandated process in California which requires
jurisdictions to plan for a determined number of new housing units at various income levels. This allocation is updated every six to eight years and aids in planning for the housing needs across the state.

Residential Care Facility.

Facilities which provide care and non-medical support to individuals requiring aid for daily activities. These are commonly referred to as assisted living homes or board and care homes.

Senior Housing.

Housing which is designated for seniors (generally above the age of 55) and provides living options that include additional services and activities for aging adults.

Setback.

The required minimum distance between a building and the lot line, or another structure.

Single Room Occupancy Units.

Small, affordable dwelling units within a larger building, often with less restrictive requirements and ranging amenities.

Specific Plan.

A land use tool used to implement a city’s general plan, establishing a link between the implementing policies of the general plan and future development for a defined area of the city.

Zoning.

The way in which municipalities regulate land uses by
identifying what land can be developed, what purposes the land can serve, and what development standards must be
followed, typically included part of a jurisdiction’s Municipal Code.
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APPENDIX
Outreach
To see more information about outreach, please visit:
https://fdcplan.com/participate/
B
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APPENDIX
Market
Study
C
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Market Study
Fairview Developmental Center Specific Plan
DRAFT January 2024, revised 11/2024

1685
Prepared for:

City of Costa Mesa
77 Fair Drive
Costa Mesa, CA 92626
714-754-5000
www.costamesaca.gov

Prepared by:

3 MacArthur Place, Suite 1100
Santa Ana CA 92707
714-966-9220
placeworks.com
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DRAFT January 2024, revised 11/2024 Page i
Contents

1. Contents

1. Introduction ........................................................................ 1

2. National and Regional Housing Market Context ....................... 3 Long-Term Demographic Trends ............................................................ 3 Generational Dynamics ...................................................................... 3 Age Distribution in California .............................................................. 4 Household Changes .......................................................................... 5 Households by Size ........................................................................... 6 Average Household Size .................................................................... 7 Life Transitions ................................................................................. 8 Residential Development Trends ............................................................ 9 US Housing Production ..................................................................... 9 California Housing Production .......................................................... 11 Housing Unit Size ........................................................................... 11 Sales Price for New Single-Family Houses ......................................... 12 Implications of Long-term National Trends ............................................ 13 Generational Waves ........................................................................ 13 Mismatch Between Household Living Arrangements and National Housing Production ..................................................................................... 13 Housing Market Not Producing Enough Housing ................................ 14 Larger Housing Units Increase Housing Costs ..................................... 14

3. Costa Mesa Housing Market ............................................... 15 Market Area Analysis .......................................................................... 15 Household Characteristics ................................................................... 16 Household Size ............................................................................... 16 Household Size and Household Income ............................................. 16 Household Type .............................................................................. 17 Multigenerational Households ........................................................... 17 Length of Time at Current Residence ................................................. 18 Age of Householder ......................................................................... 19 Housing Characteristics ....................................................................... 20 Type of Housing ............................................................................. 20 Tenure ........................................................................................... 21 Household Size ............................................................................... 21 Housing Overpayment ..................................................................... 22 Characteristics of Households That Moved to The Market Area in the prior year .................................................................................................. 23 Household Size ............................................................................... 23 Housing Type ................................................................................. 24 Household Income .......................................................................... 24 City-Level Changes ............................................................................. 25 Housing Type ................................................................................. 25 Overcrowding ................................................................................. 26 Households With Children ................................................................ 26 Household Type .............................................................................. 27 Implications of Market Characteristics ................................................... 27 1687
Page ii Fairview Developmental Center Market Study
Smaller Households ........................................................................ 27 Overcrowding and Overpayment ....................................................... 27 Housing and Age ............................................................................ 28

4. Residential Market Demand Projections ............................... 29 Background ....................................................................................... 29 Past Growth ................................................................................... 29 RHNA Housing Needs ..................................................................... 29 Market Demand Projections ............................................................. 29 Comparison of Household Projections ................................................... 30 Local Trend Projection ..................................................................... 30 SCAG Forecast ................................................................................ 31 Department of Finance Projection ..................................................... 31 Projections Summary ...................................................................... 32 Household Forecast ............................................................................ 33 Households by Income ....................................................................... 34 Market Demand for Ownership Housing ................................................ 36 Market Demand for Rental Housing ...................................................... 37 Market Demand from Overcrowding ..................................................... 38 Market Demand from In-Commuting Workers ........................................ 40 Estimated Price Points ........................................................................ 42

5. Non-Residential Market Potential ........................................ 45 Market Analysis Basics ....................................................................... 45 Retail Types ................................................................................... 45 Consumer Spending ........................................................................ 46 Estimated Retail Sales ..................................................................... 46 Sales Efficiency ............................................................................... 46 Supportable Retail Building Space ........................................................ 46 Retail Recommendations ................................................................. 49 Supportable Building Space for Other Commercial Uses .......................... 50 Planning Implications for Non-Residential Uses ..................................... 50

List of Figures
Figure 1: Number of Live Births, Fertility Rates, and Approximate Generational Labels, United States, 2009 to 2022 ................................. 3 Figure 2: Population by Age Group and Sex as a Percentage of Total Population, California and the US, 2021 ............................................... 4 Figure 3: Type of Household by Share of Total Number of Households, United States, 1970 to 2021 ............................................................... 6 Figure 4: Average Number of Persons per Household, United States, 1970 to 2022 ............................................................................................. 7 Figure 5: Median Age at First Marriage and Mean Female Age at First Birth, United States, 1959 to 2021 (Birth) and 2022 (Marriage) .............. 8 Figure 6: Monthly Number of Housing Units Completed, United States, January 1968 to May 2023 ............................................................... 10 1688
Figure 7: Net Annual Increase in Housing, California, 1990 to 2023 ........... 11 Figure 8: Average Unit Size for Single-family Detached Housing and Multifamily Housing Completions, Actual and Trend, United States, 1971 through 2022 .......................................................................... 12 Figure 9: Real Average Sales Price and Real Average Sales Price per Square Foot for New Single-family Housing, United States, 1971 to 2022 .............................................................................................. 13 Figure 10: Market Area Extent ................................................................. 15 Figure 11: Average Household Size, Market Area Cities, 2013 and 2023 ..... 16 Figure 12: Length of Time at Current Residence by Income Category, Market Area, 2021 ........................................................................... 18 Figure 13: Age Distribution of Householders by Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ............................................ 19 Figure 14: Percentage of Households by Income Category and by Type of Housing, Costa Mesa–Fountain Valley Market Area, 2021 ..................... 20 Figure 15: Homeownership Rate by Housing Unit Type and Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ..................... 21 Figure 16: Average Household Size by Housing Type and Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ................................... 21 Figure 17: Housing Overpayment by Housing Unit Type, Tenure, and Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ......... 22 Figure 18: Tenure by Number of Persons in Household, Costa Mesa– Fountain Valley Market Area, 2021 ..................................................... 23 Figure 19: Tenure by Housing Unit Type, Costa Mesa–Fountain Valley Market Area, 2021 ........................................................................... 24 Figure 20: Tenure by Household Income Category, Costa Mesa–Fountain Valley Market Area, 2021 .................................................................. 24 Figure 21: Share of Market Area Housing Growth by Type of Housing, Costa Mesa, Huntington Bach, and Newport Beach., 2012 to 2022 ....... 25 Figure 22: Percentage of Households with Children under the Age of 18, Costa Mesa, Huntington Beach, and Newport Beach, 2012 to 2022 ...... 26 Figure 23: Three or More Person Households as a Share of Total Households, Costa Mesa, Huntington Beach, and Newport Beach, 2013 and 2023 ............................................................................... 27 Figure 24: Total Number of Households, Actual 2004–2023 and Trend Projections 2024–2044, Costa Mesa .................................................. 31 Figure 25: Total Number of Households, Actual and Comparison of Three Projections, Costa Mesa, 1990 to 2044 .............................................. 32 Figure 26: Total Number of Households, Actual and Forecast, Costa Mesa, 1990 to 2044 .................................................................................. 33

List of Tables
Table 1: Change in the Number of Households by the Number of Persons in Household, United States, 1970 and 2022 ........................................ 7 Table 2: Average Annual Housing Unit Production During Economic Expansions, United States, December 1970 through May 2023 ............... 9 Table 3: Household Size by Income Category, Costa Mesa–Fountain Valley Market Area, 2023............................................................................ 16 1689
Page iv Fairview Developmental Center Market Study
Table 4: Household Type and Presence of Children under the Age of 18 by Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ......... 17 Table 5: Multigenerational Households as a Share of Total Households and Share of Population by Income Category, Costa Mesa–Fountain Valley Market Area, 2021 ........................................................................... 18 Table 6: SCAG and DOF Forecasts and the Resulting Projections for Household Growth in Costa Mesa, 2024 to 2044 ................................. 32 Table 7: Change in Number of Households by Household Income Category: Costa Mesa, Fountain Valley, Huntington Beach, and Santa Ana, 2012 and 2022 ........................................................................ 35

Table 8: Market Demand for Ownership Housing by Income Category, Costa Mesa, 2024 to 2043 ............................................................... 36 Table 9: Total Number of Households and Overcrowded Households by Number of Persons and Presence of Subfamilies; Costa Mesa; 2022 ...... 39 Table 10: Number of Jobs and Employed Residents in Costa Mesa and Estimated Average Hourly Wage in Orange County, by Economic Sector; 2024 .............................................................................................. 41 Table 11:Affordable Rents and Home Purchase Prices by Household Income, Costa Mesa, 2023 ................................................................ 43 Table 12: Retail Market Potential in Square Feet of Gross Floor Area ........... 47 Table 13: Supportable Gross Floor Area (sq. ft.) for Other Commercial Uses . 51

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Summary
Summary
The City of Costa Mesa is preparing a specific plan to guide the redevelopment of the currently state-owned Fairview Developmental Center. Although the state intends to solicit a master developer to purchase and redevelop the site, the specific plan provides an opportunity for the community to weigh-in on the type of development—the uses, the scale, the amenities, and so forth.

This report describes the market demand for housing and non-residential uses.

Its purpose is to support public discussion about desired types of development and to support the preparation of the specific plan. Market demand is not the only consideration in planning; certainly, community values and aspirations should influence future development. Nevertheless, a plan for development that does not build on market demand is a plan that cannot be developed. Thus, this report is intended to provide a basic overview of the key drivers of market demand.

As currently envisioned in the city’s General Plan, the redevelopment will result in 2,300 new housing units, with a majority of these offered to income-quali- fied households at an affordable rent or sales price. It is also currently envi- sioned that the plan would provide commercial uses and amenities that serve the community that develops in the plan area.

CHANGES IN HOUSING
Costa Mesa was mostly built-out in an earlier era, primarily characterized by single-family detached housing and family households with kids. As discussed in this report, the majority of households living in the city today, the majority of households that have moved into the city in the past year, and the majority (but not all) of households expected to make up market demand for new hous- ing in the plan area will not have children. Most will be one-, two-, and three- person households, although there will also be some larger families.

These changes in households are the result of decades of slow, incremental change. Nevertheless, they indicate that the housing market will need fewer bedrooms, smaller units, and more multifamily and single-family attached housing.

HOUSING NEEDS FOR MODERATE-INCOME AND LOWER

HOUSEHOLDS
The analysis presented in this report shows that, over the past ten years, the number of very low income and extremely low-income households has de- creased, while the number of acutely low income (the lowest income category), low income, and moderate-income households has increased in Costa Mesa. It is not clear why there has been a decline in the number of extremely low and very low-income households (and this out migration has happened countywide too), but the report shows that overcrowding and unaffordable housing costs are problems faced by many households across these income groups.

The currently envisioned development of 575 very low-income housing units, 345 low-income housing units, and 690 moderate-income housing units pro- vides an opportunity to address both the expected growth in these households as well as the existing conditions of overcrowding and unaffordable housing costs.
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HOUSING NEEDS FOR ABOVE MODERATE-INCOME

HOUSEHOLDS
The currently envisioned development also includes 690 housing units for households with above moderate incomes. These households represent the majority of expected growth in the city. Furthermore, this housing provides the opportunity for a master developer to offset some of the costs of land and infra- structure for affordable housing. The analysis suggests that households with above moderate income could account for 800 new households per year in Costa Mesa during the period when new housing will be available for rent or purchase in the plan area.

NON-RESIDENTIAL DEVELOPMENT
Finally, the plan area could also provide retail and other commercial develop- ment to serve the needs of the new residents in the plan area. The analysis rec- ommends that the plan accommodate 29,500 to 55,900 square feet of gross floor area for retail businesses and another 76,500 square feet of gross floor area for other commercial businesses, such as a fitness center and medical and professional offices.

The plan does not necessarily need to accommodate non-residential uses, which will reduce the land area available for housing. However, eliminating the non-residential uses could increase traffic as plan area residents have to leave to purchase basic goods and services. The city is likely to receive a similar amount of sales tax, whether households shop in the plan area or patronize businesses along Harbor Boulevard and elsewhere in Costa Mesa. Similarly, the plan could accommodate more non-residential uses, but this, too, could increase traffic as these businesses would need to attract more customers from outside of the plan area.

TRADEOFFS
The specific plan will represent a collection of tradeoffs, from the number of subsidized affordable housing units to the number of market rate housing units that help subsidize the affordable housing development; from the amount of re- tail floor area to the amount of landscaped open space. This report helps high- light the market demand to inform the necessary discussion about tradeoffs and the community’s vision for the future of the Fairview Developmental Cen- ter.

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1. Introduction

1. Introduction
This report describes the long-term demand for housing and nonresidential uses that may drive redevelopment of the Fairview Developmental Center. The report is intended to inform public discussion during the planning process and provide guidance for the ultimate land use plan.

The analysis primarily focuses on the overall demand for market rate housing development in Costa Mesa, the economic and market conditions underpinning that demand, and the types of housing that are needed. Market rate housing will generate the revenue that will enable a master developer to provide infra- structure and community amenities to support the development of affordable housing and the development of housing to further the CA Department of De- velopmental Services Mission. Thus, the report also addresses affordable hous- ing because the development of affordable housing is a fundamental compo- nent of the redevelopment of the Fairview Developmental Center. As discussed in the report, nonresidential uses for the plan area will likely be ancillary to the residential components, and the demand will be driven by the households liv- ing in the plan area.

The study begins with an overview of the national and state context for housing development. This broad overview is important because many of the market factors that are analyzed for the residential market area reflect long-term demo- graphic and social changes. The decreasing average size of households, for ex- ample, has been occurring across the US for decades. This is not something that city policy can change, but it is something that the Specific Plan must ac- count for.

Cities play a critical role in housing development: they regulate the locations where new housing can be developed and the density and other development standards with which new housing development must comply. In so doing, cit- ies influence the price of land and the financial feasibility of new development.

However, an individual city’s influence and its ability to promote housing pro- duction are very limited relative to everything else that goes into making a housing development happen, such as the acceptable risk and necessary rate of return required by the equity investors and banks that fund new develop- ment, the availability of construction workers to do the actual construction, the availability and cost of construction materials, or the interest rates that deter- mine how much households can pay to purchase new housing.

After the national context overview, the study provides detailed data and analy- sis about the factors that determine the long-term demand for housing and the types of housing. This section also looks at the difference in these market fac- tors for households with incomes above moderate (i.e., above 120 percent of the area median income) and households with moderate incomes (i.e., 80 to 120 percent of the area median income) or below. In preparing this study, the consultants interviewed housing industry stakeholders, including market rate developers and affordable housing developers. Their insights are reflected in the analysis.

The study projects demand for new housing units by type and price point. As discussed in the report, it will likely be several years before on-site housing pro- duction begins and before new housing is available on the market. A project of this size could easily be a 10- to 20-year development. Thus, the focus of the projections is this longer-term demand rather than demand over the next two to 1693