Agenda Report
Fullerton City Council
MEETING DATE: OCTOBER 20, 2026
TO: CITY COUNCIL / SUCCESSOR AGENCY
SUBMITTED BY: SUNAYANA THOMAS, DIRECTOR OF COMMUNITY AND ECONOMIC DEVELOPMENT PREPARED BY: YAN GAO, AICP, SENIOR PLANNER
CHRIS SCHAEFER, AICP, PLANNING MANAGER
SUBJECT: GENERAL PLAN AMENDMENT TO ADOPT THE ENVIRONMENTAL JUSTICE ELEMENT AS THE FULLERTON PLAN APPENDIX N
SUMMARY
Staff requests City Council approve a General Plan Amendment (LRP-2026-0005) to adopt the first City Environmental Justice Element The Fullerton Plan as Appendix N. This action fulfills the City requirements to adopt an Environmental Justice Element per Government Code Section 65302.
PROPOSED MOTION
Adopt Resolution No. 2026-XXX.
RESOLUTION NO. 2026-XXX – A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF FULLERTON, CALIFORNIA, APPROVING A GENERAL PLAN AMENDMENT TO ADOPT THE NEW ENVIRONMENTAL JUSTICE ELEMENT OF THE FULLERTON GENERAL PLAN AS APPENDIX N
ALTERNATIVE OPTIONS
Approve the Proposed Motion
Provide alternative direction
Other options brought by City Council.
STAFF RECOMMENDATION
Staff recommends the Proposed Motion.
CITY MANAGER REMARKS
None.
PRIORITY POLICY STATEMENT
This item matches the following Priority Policy Statement:
• Infrastructure and City Assets.
FISCAL IMPACT
This item generates no fiscal impact other than the cost of preparing the document and related activities.
BACKGROUND AND DISCUSSION
State legislation requires certain jurisdictions create an Environmental Justice Element, in addition to the seven required general plan elements. The Planning for Healthy Communities Act amended Government Code Section 65302 requiring jurisdictions to address environmental justice when they adopt or revise two or more general plan elements concurrently on or after January 1, 2018 and contain one or more identified disadvantaged communities (DACs). Fullerton meets both criteria.
A jurisdiction may comply by adopting a stand-alone Environmental Justice Element or by integrating environmental justice policies throughout existing elements. The City elected to prepare a stand-alone element given the cost and complexity of updating additional elements,. The Fullerton Plan does not contain an Environmental Justice Element. Appendix N would add a new component to the General Plan and not remove or replace any chapters or appendices.
An Environmental Justice Element generally serves as a policy and planning document and designed to address the following items:
identify disadvantaged communities
address unique or compounded health risks
promote fair treatment and meaningful participation
set goals to reduce pollution and environmental hazards enhance community engagement.
The document does not call out specific construction projects nor does it commit the City to spending money on specified activities. Rather, it serves as an overarching policy document to guide decision makers, staff and the City in general.
The Planning Commission Staff Report dated August 12, 2026 (Attachment 9) provides a full discussion of the statutory framework, Fullerton Environmental Justice history and the CalEnviroScreen screening methodology and is not repeated in this report.
Disadvantaged Communities
Fullerton has nine census tracts formally designated as disadvantaged communities (001404, 001801, 001802, 011403, 011502, 011601, 011602, 086701 and 086802), identified using CalEPA’s 2022 disadvantaged community designation under SB 535. These tracts are concentrated in three areas of the City: the Northern Industrial Corridor adjacent to Imperial Highway, the Southwest Communities near the City of Buena Park and the Southeastern Communities near the City of Placentia. They are mapped in Figure 2-1 of Appendix N.
Planning Process and Public Outreach
The Environmental Justice Element preparation began in September 2025, concurrently with the Open Space and Conservation Element update, adopted as Appendix M in June 2026. Michael Baker International served as the consultant team for both efforts. Public engagement included:
An online public survey, October 27 to November 30, 2025 which received 642 responses A pop-up outreach booth at OktoBOOfest on October 30, 2025 with over 150 visitors A Community Meeting and public workshop focused on environmental justice topics at the Fullerton Hunt Branch Library on July 16, 2026 A 30-day public review period for the Draft Environmental Justice Element, June 1 to June 30, 2026 which generated nine written comments Ongoing digital outreach through the dedicated project webpage, website banners, email blasts, Instagram posts and digital display boards at the Fullerton Transit Center.
Staff provided a summary of the comment themes and staff responses in the Planning Commission Staff Report dated August 12, 2026 (Attachment 9). Attachments 3, 5 and 8 contain the complete survey summary and comment record, as well as the Community Meeting comments.
Senate Bill 18 Tribal Consultation
As required by SB 18, staff emailed notification letters to 34 local Native American tribes representatives on May 7, 2026, including peoples within the ancestral territories of the Tongva / Kizh and Acjachemen (Juaneño) tribes that overlay the Fullerton area. One tribal representative expressed interest in how to incorporate tribal perspectives and indigenous knowledge into the Element, particularly regarding cultural resource protection, environmental health, land stewardship and meaningful tribal engagement in future planning. A Attachment 6 includes the staff response and staff would continue this dialogue.
Planning Commission Actions
The Planning Commission conducted a review of the EJE over two separate public meetings due to the Environmental Justice Element (referred to as “EJ” or “EJE”) being a fairly new requirement, first mandated by state law in 2016. Only a few Orange County cities have adopted EJEs to date including, but not limited to, Anaheim, Santa Ana and Garden Grove. The Planning Commission held a Study Session on the General Plan and Environmental Justice Element on June 24, 2026. the Planning Commission held a duly noticed Public Hearing on August 12, 2026 to consider the draft version of the EJE and adopted Resolution No. PC-2026-11 recommending City Council approve the General Plan Amendment to adopt Appendix N: Environmental Justice Element (August 2026). Staff incorporated comments provided by the Planning Commission at the earlier Study Session into the Draft EJ Element.
Environmental Justice Element Overview
The EJE is a stand-alone document to integrate into The Fullerton Plan as Appendix N: Environmental Justice Element (similar to the Open Space Element and Safety Elements). The document contains three major sections:
Section 1 (Introduction, statutory basis, planning process and relationship to other General Plan elements) Section 2 (Existing Conditions, including identification of DACs and the CalEnviroScreen methodology) Section 3 (Goals and Policies). This Section contains eight goals and 50 supporting policies responding to the seven topic areas required by Government Code Section 65302(h)(1) plus one community-identified topic.
The following table provides more detail about Section 3 and the eight general goals covering the state-mandated focus areas including air, noise and odor, water quality, climate resilience, public facilities, parks and active transportation, healthy food access, safe and sanitary homes and civic engagement. The table further articulates the focus areas into goal descriptions. Each general goal category has related policies addressing the focus areas.
Goal
Focus Area
Goal Description
Policies
Goal 1
Air, Noise and Odor
Protect residents, especially those in disadvantaged communities, from dispro-portionate exposure to air, noise and odor pollution by promoting cleaner land use patterns, reducing vehicle emissions and enhancing natural buffers. 7 policies
Goal 2
Water Quality
Minimize water quality pollution, including compliance with state and federal water quality standards, reducing off-site runoff and surface pollutants and reducing pollutant loading in the water system. 5 policies
Goal 3
Climate Resilience
Reduce vulnerability to climate change, cumulative pollution burdens and overlap-ping health risks by implementing resilience strategies and prioritizing interventions in communities facing multiple hazards. 5 policies
Goal 4
Public Facilities
Ensure equitable access to high-quality public facilities and infrastructure that support community well-being and opportunity. 7 policies
Goal 5
Parks and Active Transportation
Expand and improve access to parks, recreation facilities and active trans-portation infrastructure to promote health, physical activity and environmental benefits in impacted communities. 7 policies
Goal 6
Healthy Food Access
Ensure residents have access to affordable, nutritious food by supporting local food systems, incentivizing healthy food retail and addressing food deserts. 4 policies
Goal 7
Safe and Sanitary Homes
Provide residents with access to safe, affordable and healthy housing by enforcing habitability standards, remediating environ-mental hazards and supporting programs that improve housing quality in impacted communities. 6 policies
Goal 8
Civic Engagement
Strengthen community voices in environmental and land use decisions by ensuring meaningful participation, acces-sible information and equitable repre-sentation of impacted communities in public processes. 9 policies
The 50 stated policies direct recommended improvements and programs targeted toward the nine designated tracts (i.e., DACs) and address requirements contained within California Government Code Section 65302(h)(1)(C). The following references the goals and policies:
GOAL 1: Protect residents, especially those in disadvantaged communities, from disproportionate exposure to air, noise and odor pollution by promoting cleaner land use patterns, reducing vehicle emissions and enhancing natural buffers.
P1.1 Land Use Compatibility
Promote land use compatibility by minimizing conflicts between sensitive receptors (such as homes, schools and childcare facilities) and pollution-generating uses through zoning, development standards and buffering where feasible.
P1.2 Promote Pollution Mitigation
Educate property owners on pollution mitigation measures such as retrofitting homes with air filters, ventilation systems and landscaping.
P1.3 Preserve and Enhance Natural Buffers
Support the expansion and maintenance of urban tree canopy, landscaping and green infrastructure in areas with elevated pollution exposure.
P1.4 Monitor Air Quality
Coordinate with regional, state and federal agencies, including the South Coast Air Quality Management District (SCAQMD), to monitor and reduce air quality impacts affecting disadvantaged communities, solicit feedback from community members regarding areas where they experience air quality concerns and identify locations and sources of recurring air pollution issues.
P1.5 Reduce Vehicle Miles Traveled
Encourage transportation strategies that reduce vehicle miles traveled and emissions, including transit-oriented development, active transportation improvements and support for zero emission vehicles.
P1.6 Enforce Truck and Bus Route Regulations
Enforce designated truck and bus routes to reduce air quality, noise and safety impacts on residential neighborhoods and other sensitive receptors and periodically evaluate and update route designations to ensure they continue to minimize community impacts and reflect current land use and transportation conditions.
P1.7 Cleaner Municipal Fleet and Fueling Infrastructure Continue to reduce air pollutant emissions from municipal operations by maintaining and expanding the City’s clean vehicle programs, including alternative fuel and zero emission fleet vehicles, publicly accessible clean fueling and electric vehicle charging infrastructure and environmentally responsible vehicle maintenance practices.
GOAL 2: Minimize water quality pollution, including compliance with state and federal water quality standards, reducing runoff and surface pollutants off-site and reducing pollutant loading in the water system.
P2.1 Compliance with Water Quality Regulations
Ensure compliance with state and federal water quality regulations through continued implementation of stormwater management programs and water quality monitoring.
P2.2 Maintenance and Monitoring
Continue regular maintenance and monitoring of stormwater collection and treatment facilities to ensure effective operation. Regularly inspect commercial, industrial and public facilities to ensure proper connections to the sanitary system and avoid illicit discharge.
P2.3 Low Impact Development
Encourage low impact development (LID) practices in new development and redevelopment to reduce runoff and improve stormwater infiltration.
P2.4 Collaborate with Neighboring Jurisdictions
Coordinate with Orange County regional water agencies and regulatory agencies to address water quality issues that may disproportionately affect impacted communities.
P2.5 Support Water Quality Remediation
Support identification, monitoring and remediation of known contamination sites, prioritizing efforts by the California State Water Resources Control Board and Regional Water Quality Control Boards on Leaking Underground Storage Tank cases, prioritizing sites affecting impacted communities where feasible.
GOAL 3: Reduce vulnerability to climate change, cumulative pollution burdens and overlapping health risks by implementing resilience strategies and prioritizing interventions in communities facing multiple hazards.
P3.1 Climate Responsive Planning
Incorporate climate change mitigation, greenhouse gas reduction and environmental justice considerations into City planning, construction and capital improvement projects through implementation of adopted plans, sustainable construction practices and materials reuse and recycling.
P3.2 Sustainable and Energy Efficient Development
Support energy efficient, low emission buildings and infrastructure by promoting green building practices, energy conservation and the use of sustainable design standards in public facilities and development projects; encourage the coordination and expansion of solar energy and energy storage opportunities for housing properties located within Fullerton's disadvantaged communities.
P3.3 Hazard Mitigation and Climate Resilience
Incorporate and advance the mitigation actions identified in the City of Fullerton Local Hazard Mitigation Plan into land use, infrastructure and climate resilience planning, with particular consideration for sensitive populations and populations with limited adaptive capacity, including communities disproportionately impacted by environmental and climate related hazards.
P3.4 Assessment of Cumulative Pollution Burdens
Consider cumulative pollution burdens and environmental health indicators in planning and decision-making processes by utilizing available data sources, such as CalEnviroScreen and regional studies, to identify communities that experience overlapping exposure to pollution and adverse health outcomes.
P3.5 Avoid Disproportionate Impacts
Ensure that future development, infrastructure and land use decisions do not exacerbate cumulative pollution exposures or health risks in communities already experiencing environmental and public health disparities.
GOAL 4: Ensure equitable access to high-quality public facilities and infrastructure that support community well-being and opportunity.
P4.1 Transit Oriented Development
Encourage compact, transit-oriented development near transit stops and corridors that support walkability, biking and transit use in both new and established neighborhoods.
P4.2 Collaborate with Transportation Providers
Collaborate with transit agencies to improve service and equitable access; continue partnerships with regional transit agencies to expand service and increase ridership.
P4.3 Equitable and Multimodal Transportation
Support equitable access to public facilities, employment centers, services and community destinations by continuing to provide and coordinate multimodal transportation options, including senior and specialized transportation services, active transportation programs, public transit and regional rail connections, while planning for future improvements that enhance accessibility, sustainability and community connectivity.
P4.4 Equitable Distribution of Public Facilities
Promote the equitable distribution of public improvements and amenities across all neighborhoods by prioritizing capital investment and infrastructure upgrades in impacted communities and planning for future public facility needs.
P4.5 Equitable Access to Educational, Cultural and Civic Facilities Coordinate with school districts, public agencies and service providers to improve access to educational, cultural and civic facilities in impacted communities.
P4.6 Maintenance and Quality of Public Facilities
Maintain and enhance public facilities and infrastructure through ongoing investment, responsible maintenance practices and design standards that ensure facilities are safe, accessible, energy efficient and compatible with surrounding land uses.
P4.7 Fair Share Contributions for Public Infrastructure Ensure that new development contributes its fair share toward the provision, maintenance and improvement of public facilities and infrastructure needed to serve projected growth in a manner consistent with City development fees.
GOAL 5: Expand and improve access to parks, recreation facilities and active transportation infrastructure to promote health, physical activity and environmental benefits in impacted communities.
P5.1 Equitable Recreational Programming
Continue to provide low cost and free recreational programs, classes and community events that promote physical activity and social connection, with particular attention to older adults, youth and other socially vulnerable populations.
P5.2 Joint Use of Recreational Facilities
Collaborate with school districts, educational institutions and other public or private partners to expand shared use of recreational facilities, such as fields, pools and courts, to increase community access to opportunities for physical activity.
P5.3 Recreation Supportive Facility Siting
Encourage the siting of educational and community facilities in locations that support walking, bicycling and access to parks, trails and transit, to promote daily physical activity and active lifestyles.
P5.4 Universal Access to Parks and Open Space
Ensure that parks, trails and recreational facilities are designed and maintained using universal design principles, so they are accessible, safe and welcoming to people of all ages and abilities.
P5.5 Urban Greening and Active Environments
Expand green infrastructure and urban forestry in parks, public spaces and public rightsofway to improve environmental quality, provide shade and create more comfortable and appealing environments for walking, bicycling and outdoor recreation.
P5.6 Prioritizing Park Access in Underserved Areas
Prioritize planning, investment and partnerships that expand access to parks, trails and recreational opportunities in neighborhoods with limited access to park and open space resources, particularly in impacted communities.
P5.7 Expanding Park Opportunities through Creative Solutions Encourage a range of strategies to increase park and open space access in parkpoor areas, including new parks where feasible, expansion or improvement of existing facilities, jointuse agreements, enhanced pedestrian and bicycle access and partnerships with schools or other public and private entities.
GOAL 6: Ensure residents have access to affordable, nutritious food by supporting local food systems, incentivizing healthy food retail and addressing food deserts.
P6.1 Promote Farmers Markets and Community Gardens
Encourage and promote farmers markets, community gardens and mobile food providers that increase access to fresh and affordable food in underserved neighborhoods.
P6.2 Promote Healthy Food Decisions
Promote educational opportunities and programs that provide residents with the knowledge, skills and resources to make healthy food decisions.
P6.3 Promote Healthy Food through Land Use
Evaluate healthy eating equity as part of the land use decision-making process to avoid concentrating fast-food establishments and convenience stores in ways that contribute to food deserts for impacted communities and the City as a whole.
P6.4 Community Partnerships to Address Food Insecurity
Support and strengthen partnerships with communitybased organizations, faithbased groups, service providers and regional food assistance programs to improve access to nutritious and affordable food for residents experiencing food insecurity, including seniors, lowincome households and other vulnerable populations.
GOAL 7: Provide residents with access to safe, affordable and healthy housing by enforcing habitability standards, remediating environmental hazards and supporting programs that improve housing quality in impacted communities.
P7.1 Implement Housing Element Policies
Coordinate implementation of housing policies with the Housing Element to support fair housing, affordability and housing quality for all residents.
P7.2 Diverse Housing Opportunities
Support a diverse range of housing types, tenures and affordability levels to meet the needs of residents at different life stages, income levels and household sizes in coordination with the Housing Element.
P7.3 Encourage Housing Maintenance
Encourage the maintenance, weatherization and rehabilitation of existing owner-occupied and rental housing especially in impacted communities. Include helpful Code Enforcement information or available funding resources where appropriate.
P7.4 Promote Housing Rehabilitation and Maintenance Funding Utilize and promote federal, state, local and private funding programs offering low interest loans or grants for housing rehabilitation and maintenance. Promote rehabilitation assistance opportunities for impacted communities.
P7.5 Homeownership Support Programs
Promote participation in existing county, state and federally sponsored firsttime homebuyer assistance programs to expand access to homeownership opportunities in coordination with the Housing Element.
P7.6 Environmental Health Awareness
Support education and outreach efforts that increase awareness of housingrelated environmental health risks, including leadbased paint and mold and inform residents of available remediation resources.
GOAL 8: Strengthen community voices in environmental and land use decisions by ensuring meaningful participation, accessible information and equitable representation of impacted communities in public processes.
P8.1 Meaningful Participation in Planning and Environmental Decisions Provide opportunities for meaningful public participation in planning, land use and environmental decisionmaking processes by continuing the City’s use of public workshops, hearings, advisory bodies and other engagement efforts that invite early and ongoing community input.
P8.2 Inclusive and Multilingual Communication
Utilize multiple communication methods and languages, as appropriate, to share information about City initiatives and participation opportunities, including printed materials, online platforms, multilingual outreach and partnerships with trusted community organizations.
P8.3 Accessible Meeting Locations, Times and Formats
Schedule public meetings, workshops and outreach activities at accessible locations and varied times to improve participation by residents with differing schedules, mobility needs and transportation access.
P8.4 Coordinated and Efficient Outreach
Coordinate outreach and engagement efforts across City departments and, where appropriate, with communitybased organizations to improve communication, reduce redundant or repetitive outreach efforts to avoid engagement fatigue or confusion and reduce barriers to participation, particularly for impacted communities.
P8.5 Addressing the Digital Divide
Consider the digital divide when designing civic engagement strategies by supplementing online outreach with inperson engagement, printed materials and other nondigital communication methods.
P8.6 Community Representation and Advisory Participation Support inclusive and transparent decisionmaking by encouraging participation on City commissions, boards and advisory committees that reflect the diversity of Fullerton’s communities.
P8.7 Grant Funding and Resources
Actively pursue and support federal, state, regional and private grant opportunities that advance environmental justice objectives, including improvements to public facilities, parks and open space, active transportation, climate resilience, urban greening, public health, housing quality and other community benefits in impacted communities.
P8.8 Tribal Engagement and Consultation
Support meaningful engagement and coordination with California Native American Tribes that are traditionally and culturally affiliated with the Fullerton area during the preparation of plans, programs and other initiatives that may affect tribal cultural resources, environmental conditions, community health or areas of cultural significance.
P8.9 Indigenous Knowledge and Stewardship Perspectives
Consider, where appropriate and consistent with Tribal preferences, Indigenous Traditional Ecological Knowledge and stewardship perspectives in planning efforts related to environmental health, open space conservation, urban forestry, habitat restoration, climate adaptation and community resilience.
As a means to track progress and assist staff in implementing the EJE once adopted, staff prepared a separate Action Plan (Attachment 4) as an internal implementation framework for periodic review and updating when policy actions are addressed or completed.
Analysis and Findings
The Draft Environmental Justice Element was evaluated and found to be consistent with SB 1000 and CA Government Code Section 65302(h). Additionally, it was found to be consistent with other elements of The Fullerton Plan including Land Use, Mobility, Housing, Safety and Open Space and Conservation Elements. Lastly, staff updated the document throughout the process to capture community input described in the August 12, 2026 Planning Commission Staff Report. The Planning Commission concurred with the analysis and recommends approval. Planning Commission Resolution No. PC-2026-11 (Attachment 10) contains the findings supporting City Council action.
Environmental Review (CEQA)
This General Plan Amendment is exempt from the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15061(b)(3), the Common Sense Exemption. The Element is a policy level document that does not authorize any specific development project, create zoning or development standards or approve any new development or construction. Future projects implemented under its framework would undergo their own project level CEQA review. Staff prepared a Notice of Exemption to filed with the Orange County Clerk-Recorder upon adoption.
Staff would submit the adopted Environmental Justice Element to the Governor’s Office of Land Use and Climate Innovation and the City’s General Plan website would list the Environmental Justice Element (2026) as Appendix N.
Attachments:
Attachment 1 – PowerPoint Presentation
Attachment 2 – Draft City Council Resolution No. 2026-XXXX Attachment 3 – Public Survey Responses Summary
Attachment 4 – Action Plan
Attachment 5 –Comments Received During Public Review Period and Responses Attachment 6 – Senate Bill 18 Notification Letter and Tribal Response Attachment 7 – City Webpage for Open Space and Environmental Justice Elements Attachment 8 – July 16, 2026 Community Meeting Notice and Meeting Notes Attachment 9 – August 12, 2026 Planning Commission Meeting Staff Report Attachment 10 – Planning Commission Resolution No. PC-2026-11 Attachment 11 – August 12, 2026 Planning Commission Meeting Minutes cc: City Manager Eddie Manfro
General Plan Amendment – Environmental Justice Element
October 20, 2026 - Page 2