Planning Commission
Agenda Report
November 12, 2025
TO: Planning Commission
FROM: Alex Hamilton, Interim Director of Community Development BY: Carlos Rojas, Senior Planner
SUBJECT: Heart of Norwalk Specific Plan
Authority:
Section 17.02.105 if the Norwalk Municipal Code (NMC) authorizes the Planning Commission to review general plan amendments, zone changes, and Environmental Impact Reports and prepare a recommendation to the City Council.
Introduction/background:
The Heart of Norwalk Specific Plan (“Specific Plan”) area consists of approximately 615 acres, roughly bounded by Imperial Highway to the north; I-5 Freeway to the east; Rosecrans Avenue to the south; and Pioneer Boulevard to the west. Regional access to the Specific Plan Area is provided by I-5, I-605, I-105, and U.S. Route 91. Local access is provided by Imperial Highway, Pioneer Boulevard, Rosecrans Avenue, and Norwalk Boulevard / San Antonio Drive.
On July 6, 2021, the City Council adopted The Heart of Norwalk Vision Plan for the future of San Antonio Village and the Firestone Corridor, two key neighborhoods in the center of the City. The Plan was developed in partnership with the City, the Southern California Association of Governments (SCAG) and the consulting firm, The Arroyo Group (TAG). This Vision Plan sets the overall tone for how the study area can grow in both the commercial and housing sectors, while balancing place making and open spaces. The Vision Plan emphasizes providing new commercial amenities, open spaces, complete streets, and affordable housing to support the Norwalk community. In order to implement this vision, staff initiated the development of a Specific Plan that will establish zoning regulations and development standards to make this vision into reality. There are 407 parcels within the Specific Plan area.
Additionally, the development of the Specific Plan will help the City accomplish its Regional Housing Needs Allocation (RHNA) of 5,034 units. The Housing Element accounted for many of the sites within the Heart of Norwalk area as residential inventory sites available for ATTACHMENT NO. 6
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development. Therefore, the Housing Element contains a program that commits to adopting the Heart of Norwalk Specific Plan, which would allow residential use at higher density.
Project Description:
The proposed Specific Plan effort intends to establish zoning regulations that will permit housing and desired commercial uses while ensuring that each development contributes to community goals. It will also establish a program of street, open space, and infrastructure projects to support the vision of the plan and future growth and propose funding and implementation measures needed to implement the proposed Specific Plan. It is important to note that the various renderings in the plan are illustrative only and mean to serve as a vision of the public realm.
Additionally, staff notes that throughout the life of the project, development will be influenced by market conditions, evolving development trends, and available funding opportunities. The Heart of Norwalk project area contains a wide variety of commercial and residential zoning districts. It should be noted that currently, within the commercially zoned properties, housing is permitted with a Conditional Use Permit. It is estimated that these commercial sites could reasonably be developed with 2,053 residential units under current zoning regulations. The Specific Plan is intended to be implemented over a 30-year period.
Community Feedback
The project team have received robust and consistent input for the project since the beginning of the Vision Plan outreach process in fall 2020. The Vision Plan outreach campaign engaged approximately 5,300 residents between December 2020 and March 2021. Nearly 100 residents attended four online events that were held in February and March 2021, 363 surveys were completed by community members, and over 3,000 residents engaged with Heart of Norwalk social media content.
Outreach in the Specific Plan process consisted of virtual and in-person community workshops and participation at three Front Street events in the summer of 2022. Further community workshops and social media engagement took place prior to the adoption of the Specific Plan.
Throughout the outreach process, members of the public have consistently expressed the desire for high-quality local commercial options and places to enjoy in groups and spend time in public.
They desire an authentic center to the City, with local and national businesses, places to walk and spend time, nightlife, and spaces that can encourage and celebrate local culture, such as performance arts spaces.
Front Street has been identified as a focal area for local business and nightlife, preserving older buildings and the historic feel of the street, and possibly catering to the younger population of the community. Norwalk Town Square, on the other hand, is seen as a place with shopping, family entertainment, and easy parking. Multi-family residential uses were supported as an appropriate part of these districts, especially as they help make the desired commercial amenities possible. Finally, through surveys and workshops, members of the public also expressed a desire to connect these districts through streets that prioritize walking, biking and public space over traffic movement.
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Planning Commission and City Council Study Sessions
On June 25, 2025, staff held a study session with the Planning Commission to provide a refresher on the proposed plan, review the status of the Specific Plan, and gather feedback from the Commission. The primary concerns raised during the session related to parking— specifically, the adequacy of parking supply in relation to the proposed land uses. Additionally, Commissioners expressed concern about the level of outreach conducted with property owners within the project area. Furthermore, there were comments and questions about truck routes, comments about the master bike plan and landscape palettes.
Following the Planning Commission session, staff conducted a similar study session with the City Council on August 19, 2025, presenting the same information. After the presentation, the City Council directed staff to engage directly with property owners to provide an update on the Specific Plan and to discuss the potential impact the plan may have on their property.
Property Owner Feedback
To engage property owners within the project boundary, staff initiated a series of outreach meetings during Summer 2025. A total of 228 customized flyers were sent via certified mail to property owners within each district and corridor. Each flyer highlighted the specific property and included the following information: property address, current zoning, proposed zoning, existing development standards, and proposed development standards.
The table below summarizes the three property owner meetings hosted by staff as part of this planning effort.
Date Heart of Norwalk
District/Corridor
Participants
August 7, 2025 Front Street Historic District
& Firestone Corridor
13 September 18, 2025 San Antonio Corridor &
Norwalk Railway Trail
11 September 25, 2025 Town Square and Triangle
District
7 Overall, the comments received during the meetings were positive, though some concerns were raised regarding truck routes and existing land uses that may become legal non-conforming. Staff used these meetings as an opportunity to clarify questions from property owners. One recurring question was whether the City was purchasing properties or requiring the discontinuation of existing uses.
Staff clarified that the City is not acquiring any land as part of this process and is not currently undertaking any projects on the sites within the project area. Regarding existing uses that may be made non-conforming by adoption of this plan, staff explained that current operations may continue until the business owner voluntarily discontinues the use for a period of one year or the Norwalk Planning Commission November 12, 2025
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property is sold. The new regulations outlined in this plan will only be triggered when a new development is proposed.
Analysis:
The plan provides the framework for development and redevelopment for the center of the city and adjacent areas, with the goal of creating standards for responsible development over the next 30 years. The goals and policies of the plan are aimed at encouraging a broader mix of land uses, improving economic base of the City, creating vibrant and safe public spaces, encouraging new residential development, and providing a variety of mobility options.
The plan is organized into ten (10) chapters and three appendices (A-C), all of which contain the vision, zoning standards and design guidelines, infrastructure improvements, plant palette, and implementation procedures for all parcels within the plan area. After adoption of the plan, subsequent development agreements, local public works projects, zoning text or map amendments, and any action requiring ministerial or discretionary approval related to development with the Heart of Norwalk area must be consistent with the plan. The planning area has been divided into six (6) sub-areas: Front Street Historic District, Town Square District, Triangle District, Firestone Corridor, San Antonio Corridor, and the Norwalk Railway Trail.
The characteristics of the six (6) subareas varies as a reflection of the different allowable land uses, building scale, architectural style, and development intensity for each of the respective areas. Multi-family development will be permitted in all sub-areas. Density for residential development will range from 30 to 80 units per acre. The highest density will be allowed in the Firestone Corridor, which in combination with the Front Street Historic District, is envisioned to bring new commercial, entertainment, and residential uses to the city, creating more activity and vibrancy to the area. These two areas are expected to have the most immediate change and be developed within the next five to 10 years. The Firestone Corridor and Front Street Historic District are more conducive to higher density as a majority of the parcels are on a major arterial and in close proximity to the I-5 freeway. The Triangle District will have the lowest density at 30 units per acre, which will encourage development that will be compatible with the scale of existing structures.
Building heights will also vary between the different districts and corridors. The maximum building height will vary based on the proposed use and which area it is located in. The maximum building height for developments on the Town Square District, the San Antonio Corridor and the Railway Trail will be up to five (5) stories or 65 feet and the maximum building height for developments on the Front Street Historic District, Firestone Corridor and Triangle District will be up to four (4) stories or 55 feet. To mitigate height concerns, new development regulation such as creation of “stepbacks” will help control the massing and scale of new projects within the proposed San Antonio Corridor. Projects within this corridor which are four or more stories tall are encouraged to step back the fourth story from San Antonio Drive, and/or from the rear alley that backs up to single-family homes in the case of the west of the street. The implementation of “stepbacks” will provide architectural relief.
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In addition, the plan creates standards that will allow for more vibrancy and mixed-use development within all the districts and corridors. One of the main goals of the plan area is to activate multiple areas within the plan. To achieve this, ground floor residential will not be allowed in some of the districts and corridors.
The plan will also include design standards and guidelines that will not only provide clear guidance for property owners, developers, and city staff, but also to ensure new development will be consistent with the high-quality architecture the city strives to maintain. All new projects will be required to comply with both design standards and guidelines. Design standards for building modulation will help break up large wall planes and help contribute to additional landscaping opportunities or creating spaces for people to gather.
The plan will introduce the Development Opportunity Reserve (DOR) program which is a specialized land use tool that be utilized in concert with this plan to assign density or other incentives (e.g., increase in maximum building height, reduction in parking requirements, reduced setback requirements), where the objective is to incentivize a developer/investor to providing community benefits. Projects that meet City and community objectives may receive DOR incentives in exchange for implementing identified priority public improvements. The public benefits identified by the City for the plan area include the following: (1) publicly accessible open space and community buildings (e.g., library, community rooms); (2) off-site streetscape improvements; (3) mobility hubs (e.g., bus shelters, bicycle racks, rideshare pickup zones); and, (4) affordable housing (in addition to any housing used to qualify for density bonuses under state law). All these new implementation tools along with various mitigation measures that will be incorporated into the EIR will guide the City’s growth and all future development and redevelopment of the Heart of Norwalk area.
Specific Plan
A specific plan is a zoning tool available to local jurisdictions to guide development over a defined area. The specific plan has been identified as the appropriate zoning tool for the project area due to its unique historic characteristics and prime location for new development, the desire to introduce new commercial and residential uses, and to ensure high-quality streetscape, open space, architecture and landscape design. The Specific Plan encourages excellence in site planning while allowing for flexibility to respond to market conditions in accordance with community values and priorities. It allows for a more context sensitive design that benefits the property owners and the community in a myriad of ways.
The Specific Plan will contain the minimum components required by the State of California 65451 of the Government Code mandates that a specific plan includes text and a diagram of diagrams that specify all the following:
The distribution, location and the extent of the uses of land, including open space within the area covered by the plan (Chapter 3-8 of the SP).
The proposed distribution, location, and extent and intensity of major components of public and private transportation, sewage, water, drainage, solid waste disposal, energy, and Norwalk Planning Commission November 12, 2025
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other essential facilities proposed to be located within the area covered by the plan and needed to support the land uses described in the plan (Chapter 9 of the SP). Standards and criteria by which development will proceed, standards for the conservation, development, and utilization of natural resources, where applicable (Appendix A of the SP). A statement of the relationship of the specific plan to the general Plan. (Section 1.4 of SP) The proposed Heart of Norwalk Specific Plan, SPA No. 18, contains the required components.
The Specific Plan details the site’s context and setting, including its relationship with the surrounding community and its intent of transforming the project area by allowing additional commercial and residential uses in the area and community-enhancing activation.
Implementation
The Specific Plan includes an Implementation Chapter (Chapter 10), which identifies potential funding sources for public improvements - such as Enhanced Infrastructure Financing Districts (EIFDs) and various grants available to the City and/or private developers. EIFDs are particularly well-suited for areas expected to experience significant private development and that require substantial infrastructure investment, such as the capital improvements outlined in Chapter 10.
EIFDs leverage the City’s (and potentially the County’s) share of property tax revenue generated from new development to finance public infrastructure projects—without imposing new or increased taxes. Notably, the EIFD Public Financing Authority is currently in the process of adopting a resolution to formally establish the Norwalk EIFD and adopt its Infrastructure Financing Plan.
Additionally, as previously mentioned, the Specific Plan will serve as a strategic tool for pursuing state and federal grant opportunities, as well as other funding sources. It will also support efforts to secure resources and foster public-private partnerships for the development of future projects within the Specific Plan area.
General Plan Amendment (GPA) No. 2025-02 - Land Use Element As previously mentioned, six (6) new districts and corridors will be created with the boundaries of the Heart of Norwalk Specific Plan area, all which will allow multi-family residential and commercial uses. The current land use designations for parcels within the proposed plan vary from Commercial, Industrial, Commercial and Office and Multi-Family High Density Residential.
In order for these new uses to be allowed, a General Plan Amendment is required to change the land use designation to be consistent with the proposed zoning created as part of the Heart of Norwalk. The current land use designation will be replaced with a new land use designation, Heart of Norwalk Specific Plan Area No. 18 (SPA No. 18) to reflect the vision of the proposed Specific Plan and will be expanded to cover all the parcels within the Heart of Norwalk Specific Plan area, with the exception of parcels that are designated as Low Density Residential. The new land use designation will have a maximum of 80 units per acre, depending on the district or corridor of the parcel.
General Plan Amendment (GPA) No. 2025-03- Circulation Element Norwalk Planning Commission November 12, 2025
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The proposed GPA amendment introduces a new roadway classification under the “Local Network” component of the Circulation System in the General Plan. Specifically, a new category titled “Boulevard” will be added under “Roadway Facility Designation.” Boulevard will be defined as:
A divided or undivided roadway with a typical right-of-way (ROW) width of at least 100 feet, designed to safely accommodate automobile, pedestrian, and bicycle traffic. Boulevards will also incorporate green, landscaped elements such as medians or linear parks.
As part of this amendment, Figure 5-1: “The Circulation Plan: Street Designations” in the City of Norwalk General Plan will be updated as follows:
1. Add a new category to the legend titled “Boulevard” with a 100-foot ROW.
2. Reclassify the following roadway segments as Boulevard:
Firestone Boulevard, between Imperial Highway and Rosecrans Avenue; and San Antonio Drive, between Pioneer Boulevard and I-5
Zone Change (ZC) No. 2025-02
The properties within the plan, as defined on the specific plan, are comprised of various zones which consist of High Density Residential (R-3), General Commercial (C-3), Commercial Manufacturing, Light Manufacturing (M-1), Planning Unit Development (PUD) No. 1, and PUD No. 3. Majority of the parcels within the proposed Specific Plan area are zoned C-3. Those parcels zoned as PUD or SPA will remain the same.
A Zone Change will be required to change the zone of the Heart of Norwalk Specific Plan area properties to one of the six (6) districts and corridors. As previously discussed, each of the new subareas will allow uses that are intended to create more vibrancy, and will also allow multi- family development, either as a stand-alone use or part of mixed-use development. In addition, development standards for each of these districts and corridors are included in Appendix A of the Specific Plan.
Zone Text Amendment (ZTA) No. 2025-04
The ZTA will amend the Norwalk Municipal Code to establish the new Specific Plan Area (SPA) No. 18, within Chapter 17.09 of the NMC. The new SPA will describe the purpose and intent of the Heart of Norwalk Specific Plan and how it relates to the Municipal Code and General Plan, but more importantly, it will codify the proposed Specific Plan itself, as the document will “live” outside of the NMC. The Heart of Norwalk Specific Plan, which includes the vision and framework for the plan, will be referenced in the Code and be a separate document outside of the NMC. Once approved, any action requiring ministerial or discretionary approval related to areas within the specific plan will have to be consistent with the Heart of Norwalk Specific Plan.
It should be noted that where any provision of this proposed Specific Plan and the NMC appear to be in conflict, the provisions of the Heart of Norwalk Specific Plan shall prevail. For matter on which the Specific Plan is silent, the provisions of the NMC shall apply.
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Environmental Assessment:
Pursuant to the California Environmental Quality Act (CEQA), a Draft Environmental Impact Report (Draft EIR) was prepared for the project and available for a 45-day public review period.
The Draft EIR analyzed 16 environmental topic areas and included supporting technical studies relating to cultural resources, geotechnical conditions, hazardous materials, transportation and traffic, air quality, greenhouse gas emissions, energy, noise, and water supply. All project impacts would be less than significant, in some cases with mitigation incorporated, except for air quality and noise. Project related impacts to air quality and noise from direct and indirect sources would remain significant and unavoidable despite implementation of mitigation.
The Draft EIR also identified and analyzed three alternatives to the project, which included a No Project Alternative, Reduced Capacity Alternative, and Increased Commercial Alternative. These alternative were selected based on their potential to implement certain components of the project to accomplish some or most of the basic objectives of the project and avoid or substantially lessen one or more of the proposed project’s significant effects. Specifically, the “No Project” Alternative is considered to enable the decision-makers to compare the impacts of approving the project with the impacts of not approving the project. The “Reduced Capacity” Alternative was selected for analysis, since this alternative would achieve most of the project objectives, while also reducing the significant impacts on construction noise and air quality due to a reduction in future development and the overall population. Last, the “Increased Commercial” Alternative was selected for analysis to evaluate an alternative that would achieve all the Specific Plan objectives, however, this alternative place greater demand on some resources than those in the proposed Specific Plan, such as aesthetics, greenhouse gas emissions, transportation, and utilities (except for electricity).
A total of three (3) comment letters were received during the 45-day public review period and responses to comments are included in the Final EIR (FEIR). None of the responses to comments or revisions made in the FEIR constitute significant new information requiring recirculation of the Draft EIR for further public comment under CEQA Guidelines Section 15088.5. None of the information or material included in the Final EIR indicates that the project will result in a new significant environmental impact not previously disclosed in the Draft EIR. Additionally, none of this information or material indicates that there would be a substantial increase in the severity of a previously identified environmental impact that will not be mitigated, or that there would be any of the other circumstances requiring recirculation.
Mitigation Measures
The City has prepared a Mitigated Monitoring and Reporting Program (MMRP) for the Specific Plan. The MMRP contains 17 mitigation measures covering eight environmental impact categories including Air Quality, Biological Resources, Cultural Resources, Geology and Soils, Greenhouse Gas Emissions, Noise, Transportation, and Tribal Cultural Resources. With the Norwalk Planning Commission November 12, 2025
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incorporation of mitigation measures, the identified potentially significant environmental impacts can be reduced to less than significant levels. The Draft EIR identifies a significant and unavoidable impact regarding cumulatively considerable net increase in emissions of criteria air pollutants during construction and potential exposure to sensitive receptors; temporary increases in ambient noise during construction that would expose sensitive receptors to increased noise levels; and construction activities that would intermittently generate vibrations that exceed the residential annoyance threshold.
The proposed Specific Plan would generate a considerable net increase of any criteria pollutant, that would have significant impact on the environment despite implementation of Mitigation Measure AQ-1 through AQ-8. Additionally, the proposed Specific Plan would generate a substantial temporary or permanent increase in ambient noise levels in the vicinity of the plan area and excessive groundborne vibration or groundborne noise levels, that would have a significant impact on the environment despite implementation of Mitigation Measure NOI-1 through NOI-3. If the Norwalk City Council decides to approve the Specific Plan, the City must cite their findings in accordance with Section 15091 of CEQA and prepare a Statement of Overriding Considerations in accordance with Section 15093 of CEQA.
Summary:
Based on the analysis in this report, staff is supportive of General Plan Amendment No. 2025- 02, General Plan Amendment No. 2025-03, Zone Change No. 2025-02, and Zoning Text Amendment No. 2025-04. The proposed project has been analyzed by the EIR, which finds that two significant and unavoidable impacts related to Air Quality and Noise would result from implementation of the project. With the incorporation of mitigation measures, all other potentially significant environmental impacts can be reduced to less than significant levels. Should the City Council approve the proposed Specific Plan, it would have to adopt a statement of overriding considerations and findings of fact identifying that the benefits of the project outweigh the unavoidable significant environmental effects. The proposed Specific Plan will implement zoning regulations that accommodate both housing and targeted commercial uses, ensuring that new development actively contributes to the city’s long-term community goals. This effort will support economic diversification and expand housing options to meet current and future needs.
Furthermore, the project advances the City’s sustainability and climate resilience objectives by fostering a more walkable environment and reducing reliance on vehicles within the specific plan area.
Recommendation:
That the Planning Commission:
1. Adopt Resolution No. 25-16 recommending City Council approval of General Plan Amendment No. 2025-02;
2. Adopt Resolution No. 25-17 recommending City Council approval of General Plan Amendment No. 2025-03;
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3. Adopt Resolution No. 25-18 recommending City Council approval of Zone Chage No. 2025- 02;
4. Adopt Resolution No. 25-19 recommending City Council approval of Zoning Text Amendment No. 2025-04, to establish the “Heart of Norwalk Specific Plan”; and
5. Adopt Resolution 25-20 recommending City Council adopt environmental findings pursuant to the California Environmental Quality Act, certify the Final Environmental Impact Report (SCH #2024040140) for Specific Plan No. 18, the “Heart of Norwalk,” approve a Mitigation Monitoring and Reporting Program and adopt a Statement of Overriding Consideration.
Attachments:
A. PC Resolution No. 25-16 recommending City Council approval of General Plan Amendment No. 2025-02
B. PC Resolution No. 25-17 recommending City Council approval of General Plan Amendment No. 2025-03
C. PC Resolution No. 25-18 recommending City Council approve Zone Change No. 2025-02 D. PC Resolution No. 25-19 recommending City Council approval of Zoning Text Amendment No. 2025-04 to establish Specific Plan Area No. 18, the “Heart of Norwalk Specific Plan” E. PC Resolution No. 25-20 recommending City Council adopt environmental findings pursuant to the California Environmental Quality Act, certify the Final Environmental Impact Report (SCH #2024040140) for Specific Plan Area No. 18, the “Heart of Norwalk,” approve a Mitigation Monitoring and Reporting Program and adopt a Statement of Overriding Consideration.
F. Draft City Council Ordinance Adopting Zoning Change No. 2025-02 to amend several zoning designations to Specific Plan area
G. Draft City Council Ordinance Adopting Zoning Text Amendment No. 2022-01 H. Location and Vicinity Map
I. Draft Heart of Norwalk Specific Plan
(https://www.norwalk.org/departments_services/community_development/heart_of_norwalk.p hp)
J. Draft Environmental Impact Report
(https://www.norwalk.org/departments_services/community_development/heart_of_norwalk.p hp)
K. Final Environmental Impact Report
(https://www.norwalk.org/departments_services/community_development/heart_of_norwalk.p hp
L. Errata to the Program Environmental Impact Report
M. Draft Mitigation Monitoring and Reporting Program
N. Heart of Norwalk Draft Statement of Overriding Consideration