Placentia City Council
May 19, 2026

3;kc,25,Eggolk
Agenda Item No: 3.b

PLACENTIA CITY COUNCIL AGENDA REPORT
Meeting Date: May 19, 2026
Submitted by: Joe Lambert
From: Development Services
Subject:

STUDY SESSION TO REVIEW SP -5 CORRIDOR PLAN AND SPECIFIC PLAN UPDATE

PROGRESS
Financial Impact:

No fiscal impacts are associated with this Study Session. Potential significant economic benefit to the local Placentia economy, including jobs, public & private investment, and annual/one-time revenue.

Summary:

On October 1, 2019, City Council adopted the comprehensive General Plan Update. This update included all Elements of the General Plan except the Housing Element, which was adopted as part of the required 6th Cycle Regional Housing Needs Assessment (RHNA) allocations in February 2024. The Land Use Element of the 2019 General Plan strongly encourages enhancements and improvements to the visual image, physical design characteristics, economic vitality and infrastructure of major corridors citywide including Orangethorpe Avenue and Placentia Avenue. City Council previously authorized Placeworks, Inc. (Placeworks) to complete the SP -5 Corridor Plan, Specific Plan Update and supporting environmental documentation furthering the goals of the General Plan. At this time, City Staff and Placeworks will present the progress made to date and will present policy questions to City Council.

Recommended Action:

It is recommended that the City Council:

1. Receive and file the Staff Report and presentation; and

2. Solicit public comments (if any) regarding the proposed SP -5 Corridor Plan and Specific Plan Update; and

3. Provide direction to Staff as appropriate regarding the proposed SP -5 Corridor Plan and Specific Plan Update.

Strategic Plan Statement:

This item is consistent with Strategic Goal 4: Economic Development and Goal 5:

Organizational Excellence with the SP -5 Specific Plan to include amended development standards and design guidelines. This will specifically create opportunities for development and opportunities for new businesses in the City within SP -5. In that regard, it will promote economic development by providing more construction and business opportunities. Also, the 1 adopted General Plan strongly encourages enhancements and improvements to the visual image, physical design characteristics, economic vitality and infrastructure of major corridors including Placentia Avenue and Orangethorpe Avenue. The SP -5 Update fosters organizational excellence as it will implement many of the numerous goals of the General Plan that encourage corridor planning.

Discussion:

Backaround
Within the last few years, as part of an annual goal setting process, City Council included a goal to prepare an update to Specific Plan 5 (SP -5). Placeworks was the Planning firm selected for this effort which will provide a vision for the future of SP -5, focusing on future land uses. This effort will also revitalize the SP -5 project area with updated development standards and design guidelines that are specifically tailored to the neighborhood. As SP -5 is a Specific Pian, it is a Zoning document, and amending the Specific Plan requires supporting environmental documentation pursuant to the California Environmental Quality Act (CEQA) which is anticipated to be an Environmental Impact Report (EIR).

The SP -5 update is consistent with the goals and policies of the City's General Plan. The General Plan is the City's land use constitution, a legal policy document that is mandated to exist by the State of California. The General Plan is intended to reflect the community's values and set policies to guide in the development, maintenance, and use of the City's built environment. The Land Use Element is one of several mandatory General Plan Elements required by the State. On October 1, 2019, City Council adopted the comprehensive General Pian Update, which included an updated Land Use Element. The Land Use Element of the 2019 General Plan strongly encourages enhancements and improvements to the visual image, physical design characteristics, economic vitality and infrastructure of major corridors including both Orangethorpe Avenue and Placentia Avenue. City Staff and Placeworks will present the data gathered and progress made to date, and will seek input from City Council on several key policy questions prior to drafting a revised SP -5 Plan.

Discussion
The updated SP -5 development standards and regulations will foster responsible, progressive and attractive development to meet City Council's goals for the corridor. New development activity and rezoning will bring new businesses to the SP -5 Corridor, and to the relatively close Old Town Placentia and TOD Districts, benefiting the traditional downtown with new shoppers and diners.

The SP -5 update is intended to plan for appropriate light industrial, commercial, and possibly mixed-use development that will provide a catalyst for development, thereby increasing development and business activity and revenue to the City in the form of property taxes, sales tax, Transient Occupancy Tax and impact fees. This will also result in a more unified aesthetic and identity for the SP -5 area, which currently appears aesthetically and visually inconsistent.

Placeworks (with Staff oversight) prepared a presentation (Attachment 1) for City Council review. The presentation will summarize a review of the SP -5 Update to date, a summary of public outreach, proposed boundary changes (if any), and existing conditions (including land use, urban design, mobility, opportunity areas, mobility considerations, and policy guidance/questions, with next steps. The goal of this Study Session is to receive City Council and public input regarding the following staff recommendations and policy questions. 2 Specific Plan 5 (SP -5) Overview
• The existing Plan only allows non-residential uses such as retail, restaurants, health clubs, hotels, offices, and sales and service operations as well as medical and auto dealerships (except Parcel 9 which is entitled for 75 residential units, 5 of which are live - work).
• All standards are geared toward commercial development (except Parcel 9). • Allows a maximum height of 75 feet.
• Development standards require setbacks, building separation and maximum lot coverage depending on the use.
• Parking is required at the City's standard except for a few SP -5 parcels where shared parking is required due to lot size and configuration.

Specific Plan 5 (SP -5) Boundary Expansion
• The existing Specific Plan consists of 11 parcels.
• Should boundaries extend to include parcels to the east? (see Attachments 1 and 2) • Should boundaries extend to include parcels to the north? (see Attachments 1 and 2) • Land uses to the east and north are generally consistent with existing land uses within SP -5.

Community Feedback
• Community Open House #1 occurred March 2026.
• Online Survey was open until April 2026.
• Top desired land uses (in order): dining and social places, gathering/recreation spaces including trails, brewery, commercial/grocery, hotels.
• Some support lower -medium density mixed-use/townhomes, while others commented there should be no new housing.

Market Study
• Market Study conducted November 2025 (Attachment 4).
• Convenience Goods with demand in the area include: Specialty food stores; Beer, wine, and liquor stores; Health and personal care stores; Florists; Drinking establishments. • Still demand for 50-193 hotel rooms in the area.
• Trade area for the market potential for new housing is the area within a 10 -minute drive of the plan area. From 2025 to 2045, the number of households in the 10 -minute drive - time trade area will increase between 8,490 and 13,430. It also estimates that the number of housing units in the area will increase between 8,930 and 14,140. It is important to note that the projected demand for new housing represents the entire area, some of which can reasonably be expected to be developed in Placentia's other specific plan areas. Where new housing gets developed will depend, in large part, on where land is available to be purchased at a price that is financially feasible for new development, especially when demolition of existing buildings and remediation will be necessary.

Policy Questions:
• What is your vision for the SP -5 area now that the northeast corner of Placentia Avenue and Orangethorpe Avenue is entitled? Should the area allow the following: retail and dining, employment opportunities, walkable streetscapes, housing, mixed-use development?
• Should the future land use focus on job creation and innovation? Should it augment existing permitted uses including light industrial, office, auto related, hospitality? • Should certain uses be prohibited on certain properties? (for example limit mixed-use or 3 residential development to certain parcel if any)
• Should boundaries extend to include parcels to the east? • Should boundaries extend to include parcels to the north? • What options should be explored to enhance connectivity to and through the area? Staff Recommendations:
• Boundary expansion should include: Option 1 - parcels to the east bound by SR -57 on the east; and should include Option 2 - parcels to the north bound by Crowther Avenue on the north.
• Allow general retail, restaurant, brewery/distillery, office, hospitality throughout the plan area.
• Allow light industrial/incubator type uses throughout the plan or in selected areas. Focus on job creation/innovation.
• Any additional residential or mixed-use (if any) should be limited and strategically placed. • Initiate an SP -5 Streetscape Master Plan
• Enhance connectivity to and through the area utilizing pedestrian and multi -modal connections.

Next Steps:

Summer 2026:
• Community Workshop #2
• Draft updated SP -5 document
Fall 2026:
• Planning Commission Study Session
• Second City Council Study Session
• Approve project description and initiate the Environmental Impact Report (EIR) Financial Summary:

The SP -5 Specific Plan update effort has been budgeted in the CIP since FY 2024-25. The funding source for this effort is General Plan Update fee revenue, which is a sustainable revenue source that accrues annually and must be spent on Planning efforts related to the General Plan such as this project. To complete the task, commensurate CIP fees will continue to be budgeted in FY 2026-27. As noted, General Plan Update Fee Funds would be utilized for this project which are restricted to General Plan related studies and plans and therefore does not affect operational funds.

Attachments

1.SP-5 StudySession Draft.pdf

2.SP-5 Survey Questions.pdf

3.SP-5 Survey Results.pdf

4.SP-5 Market Demand Overview.pdf
4 Specific Plan 5 Update
May 19, 2026
Study Session #1

• Specific Plan 5 Update Project Overview
• What is Specific Plan 5?
• Existing Conditions and Market Study
• Area Boundary
• Share Community Feedback
• Gather initial feedback, questions, and
comments
• Next Steps
�eNr4k
pLACEWORKS
2 6

What is Specific Plan 5?
A land use tool that establishes the
following for a specific area of the
city
• A land use plan
• Development standards and
design direction
• A conceptual
circulation/mobility plan
• A conceptual infrastructure
plan
• Identifies phasing and
financing options for
implementation

Specific Plan 5 Overview
• The existing Plan only allows non-residential uses such as retail, restaurants, health clubs, hotels, offices, and sales and service operations as well as medical and auto dealerships.
• All standards are geared toward commercial
development.
• Allows a maximum height of 75 feet.
• Development standards require setbacks,
building separation and maximum lot coverage
depending on the use.
• Parking is required at the City's standard except
of a few SP -5 parcels where shared parking is
required due to lot size and configuration.
8 Project Overview and Outreach
Project Existing Conditions* Stakeholcler Develop Environmental Plan Kickoff Market Analysis, & Cornmukity the Plan Impact Report Adoption Opportunities/ Outreach
Constraints
• Community Open House #1 and Survey — March/April 2026 • Planning Commission & City Council Study Sessions
• Community Open House #2
• Project Webpage
• Other opportunities during EIR review and adoption hearings

Update Considerations
• Boundary Expansion
57 Existing Uses
Light Industrial
Industrial
Medical Office/ Clinic
Office
Hospitality
Auto- related
Commercial
City of Fullerton
ptchinson,Topa
a�
an9ethotPe Pie
City of Placentia
1571
6 10

Existing Conditions
7 11

IIII
Existing Land Use
• Industrial
• Commercial &
Services
• Vacant
Potential Specific Plan 5 Boundary Expansion
III
Railroad ROW
Existing Land Use (SLAG 2019)
. Agriculture
. Commercial and Services
Education
Facilities
General Office
. Industrial
Mixed Residential and Commercial
▪ Mobile Homes and Trailer Parks
Di Multi -Family Residential
MNone
hi Open Space and Recreation
❑ Rural Residential
❑ Single Family Residential
. Specific Plan
.Transportation, Communications, and
Utilities
Under Construction
MUndevelopable
❑ Unknown
Vacant
▪ Water
•
b
grim alTe
I
10 e Vie
t. 0 gl61111
�t'^Y �� elS
I A. : : d. :-� �r ... ��L�ii.
:..'P=r3 CC.
11;
r 1.. r •
�
1 1 .. f%
--0...."'-
\ �� 5
d from SCAG's 2019 datasetfor South
: Data deriv:
iithbfsri -- 4] ,000 ft

Zoning
The following
designations apply to
the plan and possible
expansion areas:
• SP -5
• M
• C-2
• C -2-H65
•
Zoning
■ C-1
■ C-1 (0)
C-1 (0-1)
■ C2 -
C -2-H65
• C -M
▪ c-0
■
■
■
■
■
■
■
■
1 R-2
M
M (0)

M (PMD)
PUD -1
PUD -2
PUD -2 (0)
PUD -3
PUD -3 (0)
PUD -4
R-1
R-1 (MHP)
R-1 (0)
MR-2 {MHP)
• R-3
• R-3 (0-1)
A R -A
■ R -G
• R -G (0)
• R-G(0)&C-1 (O}
■ RPC(O]
• 5P-1
▪ SP -2
■ 5P-3
■ SP -4
■ 5P-5
• SP -6 (0)
• SP -7
■ SP -8
■ SP -9
• 5P-10
■
■ Old Town
■ TOD
T -C
1x11111180 1#l11 A ;�•,
■►1x11 v#■111!
i��rii xxx�'1j.117l�►�
11�ry1j irr 7
X11#11 rl f11
44,
$ n to FF
•tit*zaz
w""" AVE.

General Plan Land Use
The following
designations apply
to the Plan and
possible expansion
areas:
• Industrial
• Commercial
• Specific Plan
Potential Specific Plan 5 Boundary Expansion
s1
Railroad ROW
1 Existing General Plan Land Use
Low Density Residential
Medium Density Residential
High Density Residential
Planned Community
hi Office
Commercial
NICommercial Manufacturing
Industrial
Parks
1 Parkway Vista
�f Railroad
.I Schools
111 Specific Plan
Old Town
hi TOD

Property OwnershipAll11 , ,
The plan area is
comprised
entirely of
private owners,
with two areas of
multiple parcels
showing
contiguous
ownership.

Current Specific Plan 5 Boundary
b
Potential Specific Plan 5 Boundary Expansion
Railroad ROW
1 Placentia City Limits
I.

Parcels by Ownership
Public (City or County -Owned)
IIPrivate (Contiguous)
Other Private
1 r
I. 1
Wily tviapsContrjklutors rtaheim, Cit,
15 1 000 a"trl

Parcel Size
•
Variety of
parcels sizes
within the Plan
Area.

The majority of
parcels are
between 1 and
5 acres.

Current Specific Plan 5 Boundary
b
Potential Specific Plan 5 Boundary Expansion
fib
a,I
Railroad ROW
1 Placentia City Limits
• i
Parcels by Acreage
Area (acres)
k >1-5
1111 : 0-5 -
F 0-0.5
.:. iuty Maps Contributors it ty. • Anaheirn, City of Fu

Jobs and Commercial Centers
Areas along the
57 -freeway,
including SP -5,
contain a variety
of employment
opportunities.

Railroad ROW
Placentia City Limits
r.

Jab Counts (US Census)
Job Count [Jobs/Census Block]
a 1-2
• 3-21
• 22-104
• 105-329
330-802
Job Density (US Census)
Job Density [Jobs/So. Mi.]
▪ 5-234
▪ 235 - 921
▪ 922 - 2067
▪ 2,068 - 3,672
3,673 - 5,735
Memorial Park
. unty of Los Angeles, Calhor nic k m Ks, tsr ....
_ ▪ 17
rr:!�t 5 r y —ddr
.�G :t, sQr

Transportation
Bus transit
connections:
• Orangethorpe
Ave.
• Placentia Ave.
• Chapman
Ave.

Potential Specific Plan 5 Boundary Expansion
qb
IL.

Railroad ROW
1 Transportation & Mobility
Bus Stop
CZ
Bus Routes
Local
Corn rn u nity
Express

Bicycle Lanes
• Primarily Class 1
connections for SP -5
• Variety of bikeways
throughout the city
providing
opportunities for new
connections.

Bike Lanes:
■ Class 1: separated
path or trail
■ Class 11: on -road
buffered or striped
bike lane
■ Class 111: on -road
shared lane with
vehicle traffic
Potential Specific Plan 5 Boundary Expansion
Railroad ROW
Transportation & Mobility
Existing Bikeways
Class I
Class II
Class III
Proposed Bikeways
—__— Class 1
— Class 2
Class 3
Placentia City Limits
1;e
13 MIT;1utia
Woo
Memorial
110.
1 111±',011.. .
.!
•
Aimfes
McFadden
19 Market Study
Convenience Goods with
demand in the area
include:
• Specialty food stores
• Beer, wine, and liquor
stores
• Health and personal
care stores
• Florists
• Drinking establishments
er
Whittier
South Whittier
La Habra
Heights
East Whittier
La Mirada
La Ha
i
Rowland
Heights
Buena
La Palma
:ypress
Sta'iton
Garden-G'rov
11 Westminster
North Tustin
1 - Convenience -Goods Trade Area
-Comparison-Goods Trade Area
— 15 -Minute Drive -Time Context Area
in

Community Input
• March 5'h Open House
• Whitten Community Center
• April Survey
17e
O
TOTAL

RESPONDENTS
Online Survey &
In -Person Workshop
69%

SUPPORT

BOUNDARY EXPANSION
Supported Including Potential
Expansion Option 1 and

TOP DESIRED LAND USES
Restau rants
Outdoor Gathering Space
Brewery.

Recreation
Moved Use
Townhorroes
Apartments
73%
72%
61%
60%
36%
27%
15%
17 21

Community Input

RESPONDENT PROFILE TOP DESIRED AMENITIES
Other2%
Visitors
Residents
J%
Business
Owners

11.1 k
led
71% % 51% 42% %
Plaza
Pedestrian Unique Mixed Bike
En h ancements Placemaking Use Paths

TOP RETAIL GOODS
150
100
# of Responses
50 0
Liquor Stores
h & Wellness
J
H
LL
Garden Center
Specialty Stores
0 0
y�
L
6 18 22

Community Input
Two words that describe the current area...

PARKING ABANDONEDDRAB
VACANTKUNDOWNEYESOR[BND ABANDONMENTlNDUSTRIAIUGLYcRU
WASP D9AABBLIGHIf11
DILAPIDATEDsRUNGY EIIVIAL BO R 1 N G suNo
sncrcxr UNAPPEALING XETRR ESS
COMMERCIA eo�MEr��A�AWaoeveioaeo

Community Input
Place people go to shop, have dinner, or for
entertainment...

Packing House Gardenwalk
Costco ORANGE THE BRUER',TargetWalmart Canes
FULLERTON BREAY0RBA LINDA
Sm's TJ Maxx Chick-fiI-A
Rose BirchaWaimar4ivat PLACENTIAANAHEIM Fra; s
sit-down DOWNTOWN Ralph's Chick-fil-A Stater Bros
Kohl's movies Spectrum 99 RANCH Disney H-MarL
theater
24 Community Input
.__ 1 THEMES AND IDEAS FOR THE P-5 AREA

DINING AND S O IAL PLACES
Bring Restaurants, Breweries, Food Halls (Packing House style), Coffee, Bars, etc. to the area.

GAMERING
Plazas, Courtyards, Third Spaces, and Kid Friendly Gathering Places are desired.

RECREATION
Consider adding Parks, Green Space, Shaded Playgrounds, Bike Trials and a Sports Complex.

COMMERCIAL
Grocery Stores (Asian market specifically), Boutique Retail, High End Hotels.

RESIDENTIAL
Some support adding low density Mixed -Use or Condos/Townhomes but others commented that this area should not add housing.
lir-
21 25

Study Session Input
What is your vision for the SP -5 area?
Should the area allow the following?
• Mixed-use developments
• Housing
• Hospitality
• Retail and Dining
• Employment Opportunities
• Walkable streetscapes
57 1
Parcel•
W prane�oPe ��e
22 26

Boundary Expansion
Should the boundaries expand?
Which areas should be included?
1 57
Existing Uses
Light Industrial
Industrial
Medical Office/ Clinic
Office
Hospitality
Auto- related
Commercial
Project Boundaries
City of Fullerton
—•— Project Boundary
- - • Potential Boundary Expansion Option 1
- - • Potential Boundary Expansion Option 2
City of Placentia
23 27
1571

Connectivity
• What options should be
explored to enhance
connectivity to and through the
area?

Next Steps
• Community Workshop #2 — Summer
• Draft the Plan Update
• Planning Commission and Council Updates Fall 2026
to approve project description and initiate the EIR
Project Existing Conditions, Stakeholder Develop Environmental Plan Kickoff Market Analysis, & Commuhitythe Plan Impact Report Adoption Opportunities/ Outreach
Constraints
25 29

SPECIFIC PLAN 5 UPDATE
On-line Survey April 2026
CITY OF PLACENTIA SPECIFIC PLAN 5 UPDATE
The City of Placentia is updating Specific Plan -5 (SP -5). The goal of the SP -5 update is to revitalize the area with updated development standards and design guidelinesthat are specifically tailored to the neighborhood.

What is a Specific Plan?
A land use tool that establishes the following for a specific area of the city:
+A land use plan.
• Development standards and design direction.
+ A conceptual circulation plan.
• A conceptual infrastructure plan.
• Phasing and financing for implementation.

1. Are there other areas that should be included?
Below is the Land Use and Proj eot Bound e ry Map.

Potential Boundary
Expansion Option 1
.r m..,..a. /
- - Pox w. aw•r«r. +..ixai qe
004
11 !�
■
arm 1 t 0
Potential Boundary
Expansion Option 2
Please select the potential areas that you think should be included in the project boundary.
❑ Potential Boundary Expansion Opuon 1
O Potential Boundary Expansion Option 2
❑ Both
O None
30 2. Below are existing and potential uses within the Specific Plan 5 Area.

What uses do you like the most?

EXISTING USES /
• BREWERY

CERVECERIA

FAST FOOD
COMIDA RAP10A
apipir
HO TEL
dII
f VACANT

VACANTE
U5OS ACTUALES

11.011.114111111

MEDICAL
M 6DICO
OFFICE

OFICINA C

EXTENDED STAY

E STANC IA PROLONGADA
If rr
POTENTIAL USES ! POSIBLES U5O5

TOW NHOMES
CASA$ ADOS ADAS

RESTAURANTS

RESTAURANTES

OUTDOOR GATHERING

R EU MONIES AL AIRE L IRRE

MIXED USE -
USO Mt1CTO "--

OFFIC E
OFI CIN 0.

LIGHT INDUSTRIAL

INDUSTRIA LIGE RA
Please select all that apply.

O Brewery
O Medical
❑ Fast Food
❑ Office
O hotel
❑ Auto
O Extended Stay
❑ T nhornes
❑ Outdoor Gathering Space
❑ Restaurants
❑ Recrest on
❑ Mixed Use
❑ Apartments
❑ Light Industrial
❑ Other
31 3. What amenities and uses should be part of the future vison for SP -5? r
MP Eo UM _.
oy .11
•
•w; : AI' .

C u<wl 111.1.M ictems., fr
Please select all that apply.

Plaza
Pedestn a n Amenities
Uo using
Unique Placeme ki n g
Mixed Use
Bike Path
Other

4. What 2 words would you use to describe the current area?

5. Please share one idea for the future of the Specific Plan 5 Area. 32 Below is the market analysis of the area. Please answer the following questions.

Trade Areas I Areas Coma
Suppariahk Ratan f(imasa1 Garnimi Waite
... oma

11.1.111,6l1.1.11•1•1111.11.61.1...
.s c...m,.1 d. a..e d.cena. A. a a rrr Uw..w.
...nem VIXIISKI RN. 1:1Te
MIS. et, rot
S.... 11'96 11b41
IN. L9 •, 2111
. . w
daapupe+d.a
.r.a .71.u, >4,3. w.a
B...ter. and .....4 . BWA1 w1 aaa,
worML Se" WON
..w... am ,..-0m. r.. m..a,,.. Nine.,.a ra..wa aw,... Cu, r.... .i. WlbrwrrORM .44ir.,Fw .

A Convenience -Goods Trade Area is a quid https://www . p la ce ntia. ora () 121 /Specific- Plan -No • 5-.Ipdate

6. Where do you go to shop, have dinner, or for other entertainment? 33 7. What services would you like to have in the SP -5 area?

8. Which of these goods would you like to have in the SP -5 area? O Specialty Food stores
❑ Beer, wine. and hquor stores
0 Health and personal care stores
O Florists
pFurniture stores
O lawn and garden equip. and supplies stores
▪ Shoe stores
Jewelry, luggage. and leather goods stores
O Sporting goods store
aBook sto res and news dealers
O Other

9. Which of the following best describes your connection to the Specific Plan 5 Area? (Optional)
Ites:dert
U Business Owner
▪ Visaor
rl Other

10. What is your email address? (Optional)
Submit
34 SPECIFIC PLAN 5 UPDATE

OUTREACH SUMMARY RESULTS AT A GLANCE
The City's recent Community Open House and the Online Survey was hosted in March and April 2026. Participants shared their preferences for project boundaries, land uses, amenities, and desired retail goods to shape the future of the area. A snapshot of the survey results are provided below. 178
TOTAL

RESPONDENTS
Online Survey &
In -Person Workshop
69%

SUPPORT

BOUNDARY EXPANSION
Supported Including Potential
Expansion Option 1 and 2

TOP DESIRED LAND USES
Restaurants
Outdoor Gathering Space
Brewery
Recreation
Mixed Use
Townhomes
Apartments
73%
72%
61%
60%
36%
27%
15%

RESPONDENT PROFILE TOP DESIRED AMENITIES
Other
.Visitors
3%
Business
Owners
Residents

TOP RETAIL GOODS
71% 60% 51% 42% 39%
Plaza Pedestrian Unique Mixed Bike
Enhancements Placemaking Use Paths
m 150
N
Q 100
N
N
ce
50 4 0
V7 L
VI a)
C C
(1)
3 N a)
o2S a)
L
LL
0 L (�
LL
0 Specialty Stores
Book Stores
(1)
S
O
35 SPECIFIC PLAN 5 UPDATE

OUTREACH SUMMARY RESULTS AT A GLANCE

TWO WORDS THAT DESCRIBE THE CURRENT AREA

PARKING ABANDONED DRAB
iNEss

VACANTI(UNDQWNEYESORE BLAND
ABANDONMENTINDUSTRIA�UGLYGRUNGE
WASiEfi BLIGHTED
°�°"`"T`DILAPIDATEDGRUNGY R�v�A�BORING BAND

USELESS
s�cxrCOMMERCIALUNpPPEAUNGUNDEROEVELO�DR�a+L'
COMMERCIAL��NANT

PLACES PEOPLE GO TO SHOP, HAVE DINNER, OR FOR OTHER ENTERTAINMENT Packing House Gardenwalk
Costco ORANGE HE BRUERYTarget Walmart Canes

FULLERTON B REAYORBA LINDA
Sam's CIubPLACENTIATJ Maxx Chick-fil-A
Rose BirchWalmart ANAHEIM t�rai s
sit-down DOWNTOWN Ralph's Chick-fil-A Stater Bros
Kohl's miles Spectrum 99 RANCH Disney H -Mart
theater
KEY THEMES AND IDEAS FOR THE SP -5 AREA
(DINING AND SOCIAL PLACES
Bring Restaurants, Breweries, Food Halls (Packing House style), Coffee, Bars, etc. to the area.

GATHERING
Plazas, Courtyards, Third Spaces, and Kid Friendly Gathering Places are desired.

RECREATION
Consider adding Parks, Green Space, Shaded Playgrounds, Bike Trials and a Sports Complex.

COMMERCIAL
Grocery Stores (Asian market specifically), Boutique Retail, High End Hotels.

RESIDENTIAL
Some support adding low density Mixed -Use or Condos/Townhomes but others commented that this area should not add housing.
1 1
36 PLACEWORKS

MEMORANDUM
Date: November 4, 2025
To: City of Placentia Development Services Department
Joe Lambert, Director of Development Services
Andrew Gonzales, Planning Manager
From: Steve GunnelIs, Chief Economist
Suzanne Schwab, Associate Principal
Subject: SP -5 Update Market Overview

1. BACKGROUND
The City of Placentia (city) is updating the SP -5 Specific Plan (the plan) to better capitalize on growth po- tential and to ensure that new development projects further the community's vision for the plan area. This report summarizes the analysis of retail, hotel, and residential market demand that has informed the land use plan.

This report provides a detailed analysis of market potential for retail uses that could fill ground -floor space in vertically mixed-use buildings or that could occupy stand-alone retail building space in horizontally mixed-use sites. The purpose of the analysis is to estimate the amount of new commercial building space that would be supported by consumer spending by residents in the plan area and surrounding area.

Providing too little business space would lessen the city's opportunity to capture retail spending and the corresponding retail sales tax revenue to improve the fiscal benefits of the overall development in the plan area. Providing too much businesses space could lead to excess commercial vacancies and artificially re- sult in higher rents or sales prices for new housing in the plan area.

The analysis presented below focuses on consumer goods retail stores. There is a specific methodology and specific datasets that are used for retail market demand because getting the location right is critical for retail businesses. Importantly, retail uses are a cornerstone of the mix of uses that make these places at- tractive places to live.

In addition, this report assess the demand for hotels. In addition to the value of the investment in a new hotel, visitors staying hotels often support nearby retail businesses and restaurants as well as providing transient occupancy tax (TOT) revenue for the City. Finally, the report provides an overview of the market potential for new housing development.

PlaceWorks 1 3 MacArthur Place, Santa Ana CA 92707 1 714.966.9220 1 placeworks.com 37 City of Placentia SP -5 Update
SP -5 Update Market Overview
November 4, 2025 • Page 2

2. RETAIL STORES MARKET ANALYSIS BASICS
2A. Retail Types
From a land use perspective, the retail market can be categorized into two broad groups: convenience goods and services and comparison goods. Eating and drinking places are a cross between convenience and comparison shopping. Finally, experience -oriented shopping is a hybrid type of retail. 2A(i) Convenience Goods and Services
Convenience goods and services are those that people need on a regular basis. For these regular pur- chases, most consumers have built knowledge of where to go to get what they want, whether their dis- criminator is price, convenience, or quality. Groceries, medicines, and hair care are typical convenience goods and services. Because convenience goods and services usually have low cost margins and high sales volumes, convenience retailers are located throughout an area, close to concentrations of house- holds. Convenience goods retailers typically operate in convenience -goods centers (less than 30,000 sq. ft.) and neighborhood -scale centers (less than 100,000 sq. ft.), and they typically draw customers from a 1/2- to 11/2 -mile radius.
2A(ii) Comparison Goods
Comparison goods are retail items that consumers purchase more infrequently or rarely. For these pur- chases, consumers tend to compare goods across brands and across retailers. This habit of comparing in- duces retailers to locate near each other. It also promotes larger -scale retailers who can stock many differ- ent brands of similar products. Clothing, electronics, and furniture are quintessential comparison goods.

Because comparison goods have higher cost margins and lower sales volumes and because consumers purchase these goods infrequently, comparison goods retailers tend to locate close to major transportation corridors that give access to a greater number of consumers. These businesses typically locate in commu- nity -scale centers (100,000+ sq. ft.) and regional -scale centers (300,000+ sq. ft.), and they draw cus- tomers from a 3- to 5 -mile radius up to an 8- to 12 -mile radius, depending on the center's size and re- tailer mix.
2A(iii) Eating and Drinking Places
Eating and drinking places do not fit squarely within the two previous categories. Sometimes consumers are looking for convenience when buying food away from home. Fast food and limited -service restaurants typically satisfy this convenience demand. Other times, consumers are looking for higher quality and are willing to travel longer distances and pay more for the cuisine they desire. 2A(iv) Experience -Oriented Shopping
In experience -oriented shopping, the experience of the trip is of equal if not greater importance than the material needs for a good or service. The experience's value may accrue from socialization with friends, activities and entertainment, or the quality of the place. Downtowns, new town centers, lifestyle centers, and even shopping malls all attempt to enhance the shopping experience and provide a mix of businesses and amenities to create an enjoyable shopping experience. Because most consumers infrequently invest their time in experiential shopping, most are willing to travel further and forego quick and easy access for the value of the experience. Experience -oriented shopping is a destination trip and draws from a commu- nity, regional, or even super -regional size trade area, even if it does not offer the commensurate amount of retail square footage.
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2B. Trade Area
A trade area is the geographic area from which a retail center or area will draw the majority of its custom- ers. Sophisticated market -analysis models for individual retailers often define primary, secondary, and even tertiary trade areas. Several factors affect the size and boundaries of the trade area, including the type of shopping center, location of competitive retail facilities, physical barriers, and visibility and access to major roads and highways. For planning purposes, a more general definition of the trade area is sufficient.

The analysis defines one trade area for convenience goods and a separate trade area for comparison goods because the latter tend to draw customers from a larger area. 2B(i) Convenience Goods Trade Area
Larger convenience goods retail centers are typically anchored by a supermarket or a pharmacy and draw customers from a 11/2 -mile radius area. For the purposes of this study, the analysis defines the conven- ience goods trade area as the area within a 5 -minute drive of the plan area.

However, the analysis takes into consideration the net demand of the area within a 10 -minute drive of the plan area because competition from shopping centers and districts in this larger area may limit the plan area's ability to attract investment for new commercial building space. Figure 1 shows the convenience goods trade area (defined by a 5 -minute drive time) and the 10 -minute drive -time area. 2B(i) Comparison Goods Trade Area
Comparison goods retailers often locate in community -scale or regional -scale shopping areas, which gen- erally have trade areas of 5 and 8 miles, or a 10- or 15 -minute drive time. As with the convenience goods trade area, the analysis defines the comparison goods trade area as the area within a 10 -minute drive of the plan area but also takes into consideration spending and competitive shopping centers and districts within a 15 -minute drive of the plan area. The comparison goods trade area and the 15 -minute drive -time area are shown with the convenience goods trade area in Figure 1. 2C. Consumer Spending
The household is the basic economic unit in retail analysis. The Consumer Expenditure Survey, published annually by the US Bureau of Labor Statistics, details how households spend their annual income, strati- fied by income, age, geography, household size, and other demographic characteristics. Claritas, a leading national provider of marketing data, interprets that data for individual locations based on the demographics and lifestyle characteristics of the households residing in that area. They report the data using standard retail business categories from the North American Industrial Classification System 2D. Estimated Retail Sales
The Claritas spending report also estimates the amount of retail sales at businesses operating in the trade area. When the trade area has more consumer spending for a particular store type than it has in retail sales by stores in the trade area, residents are spending money outside of the trade area. This is referred to as a retail gap or leakage. When the trade area has less consumer spending than it has retail sales for a particular store type, it is referred to as a retail surplus, which means that these retail stores have to attract consumers from outside of the trade area. It is usually easier to attract new retail stores when the retail store type has a gap than when it has a surplus because it is usually easier to persuade customers to shop closer to home than it is to get them to travel farther. The data for retail sales gap or surplus for each store type are provided in Table A -land Table A-2 at the end of this report. 39 City of Placentia 1 SP -5 Update
SP -5 Update Market Overview
November 4, 2025 • Page 4
Figure 1: Convenience Goods Trade Area (5 -Minute Drive Time), Comparison Goods Trade Area (10 -Minute Drive Time), and 15 -Minute Drive -Time Context Area er
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2E. Sales Efficiency
Sales efficiency is the average annual sales per square foot of retail businesses. Sales efficiency varies by store type, by individual business, and among different locations of an individual retail chain. This report estimates retail sales efficiency by type of store based on information from Dollars and Cents of Shopping Centers / The SCORE, published by the Urban Land Institute and the International Council of Shopping Centers; annual 10K reports filed by retail corporations with the US Securities and Exchange Commission; and the US Census Bureau's Economic Census.
40 City of Placentia 1 SP -5 Update
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3. SUPPORTABLE RETAIL BUILDING SPACE
Dividing the leaked consumer spending by the sales efficiency results in the amount of retail building space that can be supported in the trade area. Table 1 provides the supportable amount of retail building space for those types of retail stores that have a retail gap.

Table 1: Supportable Retail Building Space; Convenience Goods Trade Area and Comparison Goods Trade Area; 2025 and 2030
Supportable Sq. Supportable Sq.

Convenience Goods Spending Gap Ft. Ft.

Today 2030
- Specialty food stores 1,907,570 9,086 10,286
- Beer, wine, and liquor stores 301,249 697 790
Health and personal care stores 9,410,291 18,376 20,802 - Florists 193,975 655 741
- Drinking places (alcoholic beverages) 2,113,297 11,877 13,445 Supportable Sq. Supportable Sq.

Comparison Goods Spending Gap Ft. Ft.

Today 2030
- Furniture stores 1,946,489 18,120 20,512
- Lawn and garden equip. and supplies stores 4,622,627 14,504 16,419 - Shoe stores 2,786,087 16,377 18,539
- Jewelry, luggage, and leather goods stores 4,684,300 17,468 19,774 - -Sporting goods store 2,175,200 9,311 10,540
- Book stores and news dealers 860,785 4,347 4,920
TOTAL 120,818 136,768
Source: PlaceWorks, 2025, using data from Claritas, the International Council of Shopping Centers, Form 10Ks filed by national chain retailers with the SEC.

The analysis indicates that the trade area for the plan area could currently support up to 121,000 square feet of retail building space. With estimated residential growth in the plan area and the area around the future Metrolink Station, the trade area could support up to 137,000 square feet of retail building space.

The analysis is intended to estimate the order of magnitude of potential retail development. Even though a particular store type might have a current retail sales gap, it does not mean that the type of store will move there. Similarly, a store type that has a retail spending surplus could move to the plan area. Nevertheless, the analysis indicates that there is spending support and that the specific plan should accommodate some retail development to realize the mixed-use vision for the area. 41 City of Placentia 1 SP -5 Update
SP -5 Update Market Overview
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4. HOTEL DEMAND
The COVID-19 pandemic dealt a severe blow to the hotel industry, causing unprecedented disruptions in travel and hospitality. Even though the industry has mostly recovered, there has yet to be the kind of sus- tained growth that would drive substantial new hotel development.

The pandemic's onset in 2020 led to a dramatic decline in travel, resulting in massive revenue losses and widespread hotel closures. Recovery has been uneven, with leisure travel rebounding more quickly than business travel. This shift in traveler demographics has significantly impacted hotel strategies. In addition, many hotels have had to adapt to new safety protocols such as implementing contactless technologies.

Hotels were also impacted by labor shortages, inflation, and rising wages.

Leisure travel has been the primary driver of recovery, with increased demand for domestic and outdoor destinations. Business travel, while gradually returning, is still lagging behind pre -pandemic levels. The rise of remote work and virtual meetings has contributed to this trend. Most recently, there appears to be a slowdown in tourism and leisure stays at hotels regionally.

Even once demand growth warrants new hotel development, high construction costs and high interest rates will make it challenging to finance new hotels.
4A. Existing Hotels
The potential for new hotels in the plan area will reflect the demand within the area within three miles.

Beyond this area, the market starts to reflect demand in downtown Anaheim and then the resort area.

Within the three-mile area, there are seven relevant existing hotels.

To assess the potential demand for additional hotels, the analysis uses data from Smith Travel Research (STR). The relevant hotels reporting data to STR include:
+ Residence Inn Anaheim Placentia Fullerton*
+ Quality Inn Placentia Anaheim Fullerton*
+ Motel 6 Anaheim, CA - Fullerton East
+ Embassy Suites by Hilton Anaheim North
+ DoubleTree by Hilton Fullerton
+ Fullerton Marriott at California State University
+ Howard Johnson by Wyndham Fullerton Anaheim Conference Cntr + Holiday Inn Express Fullerton Anaheim
+ Best Western Plus Anaheim Orange County Hotel
+ SpringHill Suites Anaheim Placentia/Fullerton
*Located in the SP -5 Plan Area
4B. Market Demand
The occupancy rate is a primary measure of the performance of a hotel. Generally, an occupancy rate of 60 to 70 percent is considered healthy. When the average occupancy across a class of hotels in an area is above 70 percent, it is taken as an indicator that the market could support additional hotel rooms. That is, 42 City of Placentia 1 SP -5 Update
SP -5 Update Market Overview
November 4, 2025 • Page 7
it should be possible to put new rooms on the market without unduly pushing any existing hotel's occu- pancy below 60 percent.

Figure 4 shows the average annual occupancy rate for the hotels identified from 2017 through 2024. The average annual occupancy was climbing in the years prior to COVID, from 75.1 percent in 2017 to 77.2 percent in 2019. After the steep drop-off during COVID, the area occupancy rate has steadily increased, reaching 73.5 percent in 2024, with the year-to-date data suggesting another increase for 2025. The oc- cupancy rate has not yet reached pre-COVID levels, but there have been new hotel rooms put on the mar- ket since COVID, and this is reflected in the slightly lower annual occupancy rate. Nevertheless, the overall demand (total number of occupied rooms over the year) was 3.5 percent higher in 2024 than in 2019.

Figure 2: Average Annual Occupancy Rates; Signal Hill Area Hotels; 2017 to 2024 90%
80%
70%
60%
50%
40%
30%
20%
10%
0%
2017 2018 2019 2020 2021 2022 2023 2024 2025
Source: Costar/Smith Travel Research, 2025, Trend Report for Select Hotel Properties January 2017 to January 2025. 4C. Hotel Demand Findings
With three years (and likely a fourth) of above -70 percent occupancy and increasing occupancy among area hotels, the analysis finds that there is sufficient demand for additional hotel rooms in the area. This means that a new hotel opening would not necessarily push occupancy rates below a healthy level for an- other hotel. However, with current high construction and financing costs, it might not yet be feasible for a hotel developer to put a new facility on the market in the near term.

A new hotel with 193 rooms would reduce the area occupancy rate to 60 percent, and one with 50 rooms would reduce the occupancy rate to 70 percent. Thus, the near-term demand is between 50 and 193 rooms. While this near-term market demand could support new hotel rooms in the three-mile area ana- lyzed, the trend of an increasing occupancy rate suggests that there will be additional hotel demand over the life of the Specific Plan.
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5. RESIDENTIAL DEMAND
Change in the number of households primarily drives the demand for new housing. Thus, projecting the demand for new housing development requires a projection for the increase in the number of households, as discussed below.
5A. Forecast Data Sources
This report bases the projected market demand for new housing in the plan area on two comprehensive demographics forecasts, one prepared by the California Department of Finance (DOF) and the other pre- pared by the Southern California Association of Governments (SCAG). The DOF forecast is the official statewide population forecast, which DOF allocates to each county based on a comprehensive set of fac- tors, including capacity to accommodate additional growth. The analysis uses the most recent forecast, the 2020 to 2070 Forecast.

SCAG prepares its forecast as part of its planning process every four years to development the Regional Transportation Plan (RTP) and Sustainable Communities Strategy (SCS). In its most recent forecast in 2024, SCAG considered not just the net increase in household population but also analyzed the need for new housing to alleviate overcrowded housing throughout the region. Because SCAG considers pent-up housing demand in addition to demand from household population growth, it forecasts more demand for housing than results from the DOF forecast. This difference results in a low and a high projection for hous- ing demand.
5B. Trade Area
The analysis uses DOF and SCAG forecasts for total population in Orange County. However, demand for new housing is more local than countywide. The analysis defines the trade area for market potential for new housing as the area within a 10 -minute drive of the plan area. The 10 -minute drive -time area is shown above in Figure 1. The analysis uses 2010, 2020, and 2025 estimates for the trade area total population, household population, and household size from Esri Business Analyst to allocate the projected growth from the two forecasts to the trade area.
5C. Potential Market Demand for New Housing
Table A-3 on page 13 provides the resulting projections for total population, household population, and number of households in the 10 -drive -time trade area from 2020 to 2045. The lower set of projections is based on the DOF population forecast, and the higher set of projections is based on the SCAG population forecast. Finally, Esri Business Analyst's estimate for the trade area's 2025 vacancy rate, 5.0 percent, is used to estimate the total increase in housing expected to accommodate the projected increase in house- hold population. The results are summarized in Table 2.

The analysis projects that, from 2025 to 2045, the number of households in the 10 -minute drive -time trade area will increase between 8,490 and 13,430. It also estimates that the number of housing units in the area will increase between 8,930 and 14,140.
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Table 2: Projected Increase in Number of Households and Number of Housing Units; 10 -minute Drive -Time Trade Area for SP -5 Plan Area; 2025 to 2045 20 -Year Increase in Number of Households
20 -Year Increase in Housing Units (@5% vacancy)
Source: PlaceWorks, 2025.

Projections Based
on DOF Forecast
8,490
8,930
Projections Based
on SCAG Forecasts
13,430
14,140
It is important to note that the projected demand for new housing represents the entire area, some of which can reasonably be expected to be developed in Placentia's other specific plan areas. Where new housing gets developed will depend, in large part, on where land is available to be purchased at a price that is financially feasible for new development, especially when demolition of existing buildings and re- mediation will be necessary. Finally, the projected housing demand is inclusive of affordable housing units and market rate housing units.
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Appendix
The following tables provide the underlying data referenced in this report. 46 City of Placentia 1 SP -5 Update
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Table A-1: Convenience Goods Spending Gap/(Surplus)
Store Type 5 -Minute Area 10 -Minute Area 15 -Minute Area Food and beverage stores (215,337,347) (692,136,560) (1,286,496,743) - Grocery stores (217,546,166) (675,641,987) (1,321,733,809) - Specialty food stores 1,907,570 (14,115,305) (28,191,594) - Beer, wine, and liquor stores 301,249 (2,379,267) 63,428,661 Health and personal care stores 9,410,291 (326,740,683) (676,455,752) Gasoline stations (63,977,323) (148,692,443) 107,553,584 Miscellaneous and other retailers (51,371,329) (365,595,950) (440,143,853) - Florists 193,975 (4,615,267) (4,152,213)
- Office supplies, stationery, gift (2,606,852) (118,172,746) (181,785,560) - Used merchandise stores (3,760,301) (20,791,738) (23,242,586) - Other miscellaneous store retailers (4,654,303) (104,476,746) (108,515,505) - Auto parts, accessories, and tires (40,543,848) (117,539,453) (122,447,989) Food services and drinking places (40,550,668) (2,030,734,038) (2,908,626,478) - Drinking places (alcoholic beverages) 2,113,297 (24,891,314) (5,489,017) - Restaurants and other eating places (42,663,965) (2,005,842,724) (2,903,137,461) Source: Claritas, Inc.
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Table A-2: Comparison Goods Spending Gap/(Surplus)
Store Type
Furniture and home furnishings stores
- Furniture stores
- Home furnishings stores
Electronics and appliance stores
Building mat., garden equip.& supplies
- Building material and supplies dealers
- Lawn and garden equip. & supplies
Clothing and clothing accessories stores
- Clothing stores
- Shoe stores
- Jewelry, luggage, and leather good
Sporting goods, hobby, music, & books
- Sporting goods, hobby, & music inst.
- -Sporting goods store
- Book stores and news dealers
General merchandise stores
- Department stores
- Other general merchandise stores
Source: Claritas, Inc.
5 -Minute Area
(25,328,567)
1,946,489
(27,275,056)
(7,860,276)
(106,735,181)
(111,357,808)
4,622,627
(27,760,405)
(35,230,792)
2,786,087
4,684,300
558,439
(302,347)
2,175,200
860,785
(334,068,911)
(4,438,613)
(329,630,298)
10 -Minute Area
(144,245,628)
(12,423,337)
(131,822,291)
(63,760,736)
(622,376,568)
(668,327,088)
45,950,520
(891,475,080)
(648,544,508)
(60,715,144)
(182,215,428)
(17,115,808)
(29,091,243)
12,832,567
11,975,435
82,069,833
(70,372,417)
152,442,249
15 -Minute Area
(197,833,313)
(51,961,394)
(145,871,919)
(262,518,690)
(577,760,044)
(751,006,878)
173,246,834
(904,474,576)
(582,948,091)
(22,337,649)
(299,188,837)
(75,125,703)
(72,699,759)
(16,313,749)
(2,425,944)
337,378,586
(103,451,553)
440,830,139
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Table A-3: Projections for Total Population, Household Population, and Number of Households; 10 -Minute Drive Time for SP -5 Plan Area; 2020 to 2045
Projections Based on Projections Based on
DOF Forecast SCAG Forecasts
al Population
2020
2025
2030
2035
2040
2045
2025 to 2045
Annual Rate
262,753
282,077
286,816
291,270
294,233
295,961
13,884

0.2%
262,753
282,077
289,730
296,601
304,063
310,230
28,153

0.5%
Household Population
2020
2025
2030
2035
2040
2045
2025 to 2045
Annual Rate
257,514
276,522
280,309
284,061
286,342
287,412
10,891

0.2%
257,514
276,522
283,158
289,260
295,908
301,269
24,747

0.4%
Number of Households
2020
2025
2030
2035
2040
2045
2025 to 2045
Annual Rate
84,709
94,055
96,326
98,828
100,875
102,543
8,488

0.4%
84,709
94,055
97,305
100,637
104,245
107,486
13,431

0.7%
Source: PlaceWorks, 2025, using forecast data from CA DOF and SCAG, and estimates from Esri Business Analyst.
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