Planning and Building Agency
www.santa-ana.org/pb
Item # 28
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
September 16, 2025
TOPIC: The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W. Sunflower Avenue)
AGENDA TITLE
Public Hearing - Amendment Application (Zone Change) No. 2025-01, Vesting Tentative Tract Map No. 2025-06, Development Agreement No. 2025-01, and Overrule of the Orange County Airport Land Use Commission’s Determination of Inconsistency for The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
Sunflower Avenue)
Legal notice published in the OC Reporter on September 5, 2025 and notices mailed on same date.
RECOMMENDED ACTIONS
1. Adopt a resolution: (1) certifying the Final Supplemental Environmental Impact Report No. 2025-01 (SCH No. 2020029087) for the Project; (2) adopting Environmental Findings of Fact and a Statement of Overriding Considerations for the Project; (3) adopting a Mitigation Monitoring and Reporting Program for the Project; and (4) approving the Project;
RESOLUTION NO. 2025-XXX entitled A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SANTA ANA: (1) CERTIFYING THE FINAL SUPPLEMENTAL
ENVIRONMENTAL IMPACT REPORT FOR THE VILLAGE SANTA ANA
SPECIFIC PLAN PROJECT (SCH NO. 2020029087); (2) ADOPTING
ENVIRONMENTAL FINDINGS OF FACT AND A STATEMENT OF OVERRIDING
CONSIDERATIONS FOR THE PROJECT PURSUANT TO THE CALIFORNIA ENVIRONMENTAL QUALITY ACT; AND (3) ADOPTING THE MITIGATION
MONITORING AND REPORTING PROGRAM
2. Adopt a resolution approving Vesting Tentative Tract Map No. 2025-06 (County Map No. 2023-159), as conditioned;
RESOLUTION NO. 2025-XXX entitled A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF SANTA ANA APPROVING VESTING TENTATIVE TRACT MAP NO. 2025-06 (COUNTY MAP NO. 2023-159), AS CONDITIONED, FOR THE
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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VILLAGE SANTA ANA SPECIFIC PLAN PROJECT GENERALLY LOCATED AT 1561 W. SUNFLOWER AVENUE
3. Adopt a resolution overruling the Orange County Airport Land Use Commission’s determination that The Village Santa Ana Specific Plan is inconsistent with the Airport Environs Land Use Plan of John Wayne Airport, including supportive findings (requires two-thirds vote);
RESOLUTION NO. 2025-XXX entitled A RESOLUTION OF THE CITY COUNCIL
OF THE CITY OF SANTA ANA OVERRULING THE ORANGE COUNTY
AIRPORT LAND USE COMMISSION’S DETERMINATION THAT THE VILLAGE SANTA ANA SPECIFIC PLAN PROJECT GENERALLY LOCATED AT 1561 W.
SUNFLOWER AVENUE, IS INCONSISTENT WITH THE AIRPORT ENVIRONS
LAND USE PLAN FOR JOHN WAYNE AIRPORT, INCLUDING SUPPORTIVE
FINDINGS
4. Conduct a first reading and adopt an ordinance approving Amendment Application No. 2025-01 establishing The Village Santa Ana Specific Plan (Specific Plan No. 6) and approving a zone change for the Project Site at 1561 W. Sunflower Avenue from Specific Development No. 48 to Specific Plan No. 6; and ORDINANCE NO. NS-XXXX entitled AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF SANTA ANA APPROVING AMENDMENT APPLICATION NO. 2025-01 TO ESTABLISH THE VILLAGE SANTA ANA SPECIFIC PLAN AND TO
APPROVE A ZONE CHANGE FOR THE PROJECT SITE GENERALLY
LOCATED AT 1561 W. SUNFLOWER AVENUE, FROM SPECIFIC
DEVELOPMENT NO. 48 TO THE VILLAGE SANTA ANA SPECIFIC PLAN (SP-6)
5. Conduct a first reading and adopt an uncodified ordinance approving Development Agreement No. 2025-01.
ORDINANCE NO. NS-XXXX entitled AN ORDINANCE OF THE CITY COUNCIL OF THE CITY OF SANTA ANA APPROVING DEVELOPMENT AGREEMENT NO. 2025-01 FOR THE VILLAGE SANTA ANA SPECIFIC PLAN PROJECT GENERALLY LOCATED AT 1561 W. SUNFLOWER AVENUE, BETWEEN THE
CITY OF SANTA ANA AND SOUTH COAST PLAZA, A CALIFORNIA GENERAL
PARTNERSHIP
GOVERNMENT CODE §84308 APPLIES: Yes
Executive Summary
Justin McCusker, on behalf of South Coast Plaza, a California general partnership (“Applicant” and “Property Owner”), is seeking approval of various entitlements to facilitate the redevelopment of a 17.2-acre site into a mixed-use urban village (“Project”).
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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The project site is located along the southern edge of the City of Santa Ana (“City”), on the northeast corner of West Sunflower Avenue and South Bear Street, transected by South Plaza Drive. The project site includes 11 addresses (1561, 1611, 1621, 1631, 1641, and 1661 W. Sunflower Avenue; 3820, 3840, and 3951 S. Plaza Drive; and 3811 and 3851 S. Bear Street) and seven parcels (412-131-10, 412-131-20, 412-131-21, 412-451- 01, 412-451-02, 412-451-03, and 412-451-04), collectively referred to as 1561 W.
Sunflower Avenue (“Project Site”).
Project entitlements include Amendment Application (AA) No. 2025-01 to establish the Village Santa Ana Specific Plan (SP-6) and to change the zoning district of the Project Site from Specific Development No. 48 (SD-48) to SP-6; Vesting Tentative Tract Map (VTTM) No. 2025-06 (County Map No. 2023-159) to subdivide the Project Site into six buildable lots; and Development Agreement (DA) No. 2025-01 outlining terms and conditions for the Project. In addition, in accordance with the California Environmental Quality Act (CEQA) the Project requires: (1) certification of a Final Supplemental Environmental Impact Report (SEIR) No. 2025-01 (SCH No. 2020029087); (2) adoption of Environmental Findings of Fact and a Statement of Overriding Consideration; and (3) adoption of a Mitigation Monitoring and Reporting Program (MMRP). Lastly, the Project requires overruling the Orange County Airport Land Use Commission’s (ALUC) determination that the Project is inconsistent with the Airport Environs Land Use Plan (AELUP) of John Wayne Airport (JWA), including supportive findings.
Pursuant to sections 41-592 and 41-667 of the Santa Ana Municipal Code (SAMC), approval of a specific plan and a zone change is required by the City Council by ordinance. In accordance with Section 65864 et seq. of the California Government Code (Gov. Code), the City Council is authorized to enter into binding development agreements with persons having legal or equitable interests in real property for the development of such property. In accordance with Section 21676 of the Public Utilities Code (PUC), the City Council may overrule ALUC’s determination by a two-thirds vote if it makes specific findings that the Project is consistent with the purposes of the State Aeronautics Act.
Lastly, pursuant to Section 34-127 of the SAMC, the Planning Commission is authorized to review and approve tentative tract maps; however, since the Project requires review of other entitlements by the City Council, the City Council is required to act on this matter as well.
Staff is recommending approval of the Applicant’s request because the Project is consistent with the General Plan land use designation for the Project Site, implements the goals and vision of the South Bristol Street Focus Area (SBSFA) of the General Plan, and provides for a high-quality mixed-use urban village that will contribute community benefits and new economic development opportunities for the City.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Planning Commission Recommendation
The Planning Commission held a public hearing for the Project on August 11, 2025. As part of its deliberation, the Planning Commission deliberated the topics summarized in Table 1 for the applicant to address but ultimately voted unanimously (7-0) to recommend that the City Council approve the requested entitlements and development agreement as drafted. Where provided, the Applicant’s responses are summarized in the table below.
Table 1: Planning Commission Topics for Applicant Consideration Topic Summary Applicant Response
Native Lands
Acknowledgement
Formally recognize the Indigenous
peoples of the site’s history through an
onsite marker or designated space.
As applications for specific projects are
submitted for review, opportunities to
honor the Indigenous peoples with
ancestral ties will be explored.
Project Interface
with Bear Street
Frontages facing Bear Street should
include enhanced architecture and
pedestrian-oriented elements to create
an active and functional building and
public realm interface.
The proposed specific plan is a higher-
level planning document with design
concepts, including architectural and
landscape elements, that will be
implemented through individual projects
submitted to the City.
Hotel Use
Permissibility
Consider requiring a conditional use
permit (CUP) for hotels in the specific
plan area.
The Public Hearing portion of the
meeting had closed when this topic was
discussed; the Planning Commission
did not vote to reopen the Public Hearing
to provide an opportunity for response.
The City received 17 public comments on the Project that were submitted online. The majority of the comments were in support of the Project. The City prepared written responses for each comment received prior to the 3:30 p.m. deadline; the responses were uploaded to the record and printed for the public hearing prior to the 5:30 p.m. meeting.
Those responses are attached to this report as Exhibit 11. During the public hearing, a total of six individuals provided comments on the Project; four were in support and two were in opposition of the Project.
DISCUSSION
The Project proposes to redevelop the Project Site with a mixed-use urban village on six parcels. The Project would permit up to 1,583 residential units (encompassing approximately 1,850,000 square feet of building space) with a projected population of 3,659 individuals (at a 95.9 percent occupancy rate), 80,000 square feet of commercial space, 300,000 square feet of office space, and 13.8 acres of public and private outdoor and recreation space (of which 7.5 acres will be publicly accessible open space). These uses would occupy mixed-use, residential, and commercial buildings varying in height from one to 25 stories. The Project’s focal point is a central commercial area that would The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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include a variety of commercial uses, such as restaurants, a market, and retail uses, with additional commercial uses extending through the ground floor of adjacent residential buildings creating an urban village design.
Table 2: Project Location Information and Applicable Code Sections Item Information
Project Address and Council Ward 1561 W. Sunflower Avenue – Ward 4 Nearest Intersections West Sunflower Avenue and South Bear Street, transected by South Plaza Drive
Existing General Plan District Center – High (DC-5)
Existing Zoning Designation Specific Development No. 48 (SD-48) Proposed Zoning Designation Specific Plan No. 6 (SP-6)
North Multi-family communities of Versailles on
the Lake and Saint Albans
East Commercial Center / Related Bristol
Specific Plan (SP-5)
West Village Creek condominium community in
the City of Costa Mesa
Surrounding Land Use
South South Coast Plaza in the City of Costa
Mesa
Property Size 17.2 acres
Existing Site Development
The Project Site is currently developed with the South Coast Plaza Village commercial center, which consists of
approximately 164,049 square feet of retail shops,
restaurants, offices, and a cinema building. Other
improvements include surface parking and landscaping.
Use Permissions Mixed-use urban villages permissible by the DC-5 General Plan land use designation.
Development
Standards
Appendix A, Table LU-A-1 (Interim
Development Standards) of the General
Plan Land Use Element. Municipal Code Section Sections
Affected
Entitlements Sections 34-12, 41-592, and 41-667 of
the SAMC.
Should the Project be approved, construction of the Project would be implemented in five phases to account for market conditions and to ensure that access, public facilities, and infrastructure connections are appropriately installed to serve the Project. These phases may overlap and completion of the Project may take up to 20 years, depending on market factors. As the requested entitlements would establish a specific plan, individual Project phases would be reviewed through the administrative Development Project Review process, similar to what takes place in other master-planned areas of the City, such as the MainPlace Mall and Harbor Mixed Use Transit Corridor specific plans, and as approved for the Related Bristol Specific Plan (SP-5). If individual phases do not satisfy the development standards and design review requirements of the City, they would be remanded to the Planning Commission for review.
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Table 3: Project Breakdown and Phasing Plan
Phase Phase 1 Phase 2 Phase 3 Phase 4 Phase 5 Total
Residential
(Units) 360 513 177 264 269 1,583
Commercial
(Square feet) 73,175 --- --- 6,825 --- 80,000
Office
(Square feet) --- --- --- 300,000 --- 300,000
Parking
(Number of Stalls) 797 719 248 1,298 377 3,439
Publicly
Accessible Open
Space
(Acres)
3.1 2.3 0.4 1.2 0.5 7.5
Proposed Circulation and Mobility
The Project would provide a pedestrian network allowing residents, visitors, and other users to circulate from one space to another throughout the Project Site, with connections to the SP-5 area as well. The Project would be designed with three tiers of pathways: (1) sidewalks, (2) pedestrian paths, and (3) a fitness loop. Sidewalks would provide access to and from the Project Site, and would allow residents and visitors to walk to nearby destinations, such as South Coast Plaza. Sidewalks would be parallel to the existing public roadways and will range in width from five to eight feet. Pedestrian paths would form the core of the pedestrian network for the Project. All pedestrian paths would lead to the central commercial area. The proposed fitness loop would be a unique Project feature providing both a recreational amenity to residents and a functional component of the pedestrian network. The fitness loop would consist of an outer loop around the perimeter of the Project Site and an inner loop connecting to proposed gardens, open space, and retail areas within the Project Site, enabling runners, pedestrians, and other users to reach every corner of the Project Site.
The Project also proposes a network of bikeways that would enable residents and other users to travel to and from the Project Site via bicycle. The bicycle network has been designed in accordance with the planned bikeways identified in the Mobility Element (ME) of the General Plan, and would include a new Class IV cycle track along West Sunflower Avenue and a new Class I bike path along South Bear Street. The Project would also include amenities throughout the Project Site for users to park their bicycles.
The proposed circulation network would consist of existing public roadways and a new internal network of private streets and drives that would offer access throughout the Project Site. Vehicular access to the Project Site would continue to be provided from three existing public roadways: (1) Sunflower Avenue, (2) Plaza Drive, and (3) Bear Street. The The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Project would improve Sunflower Avenue with a new Class IV cycle track, landscape buffers, and enhanced sidewalks. Improvements to Plaza Drive would include a road expansion from 64 to 80 feet to accommodate proposed loading zones, center medians, sidewalks, and landscape buffers. In addition, two new traffic signals would be installed along Plaza Drive. Improvements to Bear Street would include upgraded bicycle facilities and a new traffic signal. To address community input during the outreach process, the Project would also include a new traffic signal at the intersection of Bear Street and Wakeham Place.
The Project would include a new internal network of private roadways to support mobility throughout the Project Site. Private roadways fall under three roadway categories: (1) private drives, (2) private streets, and (3) driveways. Private drives would support the internal circulation of people and goods for the Project Site. Private streets would provide the same functions as the proposed private drives but would also provide public entitles, such as the City and utilities companies, access to the Project Site for utility purposes.
Proposed driveways would provide residents and businesses access to specific building areas. Private drives and streets would be designed with one travel lane in each direction, with planting and pedestrian paths on both sides. The private drives and streets would also provide access to emergency vehicles for fire, ambulance, and police services.
Multiple loading zones are proposed to accommodate passengers and goods. These include designated passenger loading zones that would create safe and comfortable entries for passengers that are dropped off or picked up via ridesharing or other modes.
The designated passenger loading zones would be designed to prevent queuing in vehicular travel lanes. The Project would also include commercial loading zones to separate the movement of goods from the movement of people and to support businesses throughout the Project Site.
The Project would provide parking to accommodate residents and visitors that drive to and from the Project by a combination of underground parking, above-ground structure parking, and on-street parking. Above- or below-ground structured parking would be provided for each residential, mixed-use, or office building. Underground and on-street parking would be provided adjacent to the proposed Village Plaza area, which would include retail, food and beverage, among other uses. A portion of these parking spaces would be designated and equipped with charging receptacles for electric vehicles for residential and nonresidential uses in accordance with the California Green Building Standards Code (CALGreen). Table 4 provides a breakdown of the proposed vehicular and bicycle parking ratios being proposed by the Project.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Table 4: Proposed Vehicular and Bicycle Parking Ratios
Use Ratio
Vehicular Parking
Office 3 parking spaces per 1,000 square feet
Residential 1.4 parking spaces per unit (1)
Commercial 4 parking spaces per 1,000 square feet
Bicycle Parking
Residential Minimum of 10 bicycle parking spaces per multi-family building Commercial 5 percent of the required vehicular parking
Notes:
(1)With Parking Management Plan strategies such as valet services, the Project can accommodate, if needed, a parking ratio of 2 parking spaces per unit.
Proposed Open Space and Landscape Concept
The Project proposes open space and an immersive landscaping concept as essential components of placemaking for the Project. At full buildout, the Project would provide a combined 13.8 acres of public and private outdoor and recreation space. Approximately
7.5 acres would be publicly accessible open space and 6.3 acres would be private outdoor and amenity spaces for the residents.
Public open spaces would consist of active spaces, outdoor seating areas, garden paseos, recreational lawns, and the fitness loop. Private open space amenities would include outdoor balconies and patios, pools and spas, outdoor kitchens, and communal gathering spaces. The Project would provide unique areas of active and passive open space. Active areas would include walkways, programmable roadways, a promenade, garden paseos, and the fitness loop, which would provide pedestrian and exercise opportunities and connections to the proposed amenities and retail areas in the Project.
Passive open spaces would include recreation-ready spaces such as pocket parks, a dog park, and gathering areas including a promenade suitable for outdoor programming, such as outdoor yoga, fitness classes, outdoor movie nights, and other gathering activities. In addition, the Project would be designed with private open space amenities throughout the buildings. These spaces would provide residents with communal gathering spaces and intimate gardens; opportunities for recreation; and amenity facilities including pools and spas, outdoor kitchens, and socializing areas. Additionally, the residential areas would include other private open space areas such as private balconies and patios. The Project would also include a number of planting zones with a variety of native and drought-tolerant trees, plants, shrubs, and ground covers to create an immersive garden experience. The planting zones would complement the architecture of the Project to create a unique sense of place and foster community gathering.
Infrastructure, Utility, and Other Improvements
The Project would construct new private water mains and private fire hydrants within the Project Site to service each proposed structure for domestic and fire water purposes. The The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Project would include the construction of an onsite private sewer network that would convey all sewer flows generated west of Plaza Drive to discharge to an existing Orange County Sanitation District (OC San) trunk sewer main located along Sunflower Avenue.
Sewer flows generated east of Plaza Drive would connect to an existing OC San sewer main along Plaza Drive as well as an existing City owned sewer main along Sunflower Avenue to utilize available existing capacities in the system. The proposed Project grading and storm drain network would be designed to match existing drainage and flow patterns to best utilize the capacities available in the existing public storm drain system.
Development of the Project would include the construction of new public water mains, fire hydrants, and meters. New domestic, irrigation, and fire water service connections for each proposed structure would be made directly to the existing and proposed public water mains.
While the Project Site has been fully developed with the current uses, the proposed Project entails a greater intensity of uses compared with existing operations, and would therefore require a greater demand on utility systems and public services. Utility connections and extensions, distribution lines, and collection lines would be extended and/or upgraded, as needed, from existing infrastructure locations and would be analyzed during each phase of the Project.
Site and Project Background
Site History
Through the 1960s, uses in the Project vicinity remained mostly for agricultural uses. The first major retail development in this rural setting occurred in 1967, when former lima bean producers C.J. Segerstrom and Sons (“Segerstrom Family”) constructed the South Coast Plaza mall on land just south of the Project Site. In 1973, the Segerstrom Family built the South Coast Village, current Project Site development, providing an open-air pedestrian center in the area. The Segerstrom Family still owns the Project Site and has maintained a long-standing presence in the City and County of Orange since the 1890s.
General Plan Update (2022)
In April 2022, the City Council adopted the General Plan Update (GPU) that established a long-term vision for the City. The GPU Land Use Element (LU) designates the Project Site as DC-5 within the SBSFA. Development in the DC-5 designation is intended to provide urban retail, residential, mixed-use, and employment centers with an intensity of up to 5.0 floor area ratio (FAR) and 125 dwelling units per acre (du/acre). Mixed-use projects may be vertical or horizontal with a maximum height of 25 stories.
The SBSFA serves as a prominent southern gateway to Santa Ana. The DC-5 designation envisions transforming traditional auto-oriented shopping plazas into vibrant, The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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urban villages that prioritize pedestrian, bike, and transit mobility. The SBSFA envisions a built environment that includes:
1) New development that establishes vibrant public outdoor space appropriately scaled to the size and type of project;
2) Building designs that are dynamic and strong, creating a distinct impression; and 3) Office and mixed-use spaces of similar scale to those south of Sunflower Avenue.
Project Background
On August 7, 2023, the Applicant submitted the Project to the City for review by the Development Review Committee (DRC). Since the initial submittal, the Applicant has held numerous community meetings and has revised the Project to incorporate feedback received from the community and comments provided by the DRC. Over the last year, the Applicant worked with staff to finalize technical reports, including the final SEIR.
PROJECT ANALYSIS
Specific Plan No. 6
Pursuant to Section 41-592 of the SAMC, the approval and establishment of a specific plan requires approval of an ordinance by the City Council, with the Planning Commission serving as an advisory body. Furthermore, Government Code Section 65451 requires that a specific plan include text and diagrams that specify:
1) The distribution, location, and extent of the uses of land, including open space, in the area covered by the specific plan;
2) The proposed distribution, location, and extent and intensity of major components of public and private transportation, sewage, water, drainage, solid waste disposal, energy, and other essential facilities proposed within the area covered by the specific plan and needed to support land uses described in the specific plan; 3) Standards and criteria by which development will proceed, and standards for the conservation, development, and utilization of natural resources, where applicable; and
4) A program of implementation measures, including regulations, programs, infrastructure projects, and financing measures necessary to execute the specific plan.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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The specific plan tool has been identified as the appropriate zoning tool for the Project in order to implement the vision of the SBSFA of the GPU. The proposed SP-6 for the Project contains the required components listed above (attached hereto as Exhibit 7). SP- 6 includes the following six chapters:
1) Introduction. Provides an overview of SP-6, including the Project setting and background; purpose; authority; and relationship to other relevant plans, programs, and regulations;
2) Vision and Guiding Principles. Describes the vision and guiding principles for the Project, along with key features of the urban design and placement elements of the Project;
3) Development Plan. Establishes the land use plan, buildout summary, and permitted uses for the Project Site. It also describes the open space and landscape concepts; pedestrian, bike, and vehicular circulation; and infrastructure such as water, sewer, and storm drain;
4) Development Regulation. Provides permitted uses and development standards.
Standards include building form, setbacks, building orientation, and open space requirements. It also includes maximum density and intensity for development, parking standards, and signage regulations;
5) Design Guidelines. Complementary to Chapter 4, Chapter 5 contains guidelines related to the design of the Project Site and buildings and information about architectural materials and landscape inspiration, including a list of recommended trees, plants, shrubs, and ground cover; and
6) Administration and Implementation. Establishes the responsibility, enforcement, and interpretation of the plan. It also includes processes for the review of phase developments and modifications and amendments to the plan. This chapter also covers financing for the Project.
In addition to these chapters, SP-6 also contains supporting appendices that include governing definitions, summary of general plan consistency, economic and fiscal impact analysis, traffic circulation analysis, parking management plan, and regulations pertaining to alcohol sales.
SP-6 is consistent with and was guided by the goals and policies of the GPU.
Furthermore, the applicant is proposing a site plan, mix of uses, architectural design and landscape concepts, and development regulations in the SP-6 that were informed and guided by the following seven principles:
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1) A Village Community. The Village Santa Ana will offer a unique setting for shopping, dining, and accessing daily services. Unlike traditional commercial centers dominated by surface parking, this neighborhood village will be the hub of activity, designed within a parklike setting that creates an intimate and relaxing environment.
2) Warm, Timeless, and Iconic Architectural Design. Through high-quality human- scale design elements, selection of warm materials, four-sided architecture, and places for terrace gardens and green walls, the design of the buildings will work holistically with the landscaping and parklike village atmosphere. 3) Diversity of Outdoor Spaces and Activities at Multiple Levels. People who visit or live at The Village will find a multitude of unique outdoor spaces for strolling, reading, dining, meeting friends, exercising, and playing. The retail village common areas may be programmed for recurring activities such as movie nights, seasonal events, exercise options such as outdoor yoga, family nights, and other opportunities for nearby residents. Ground level residential amenities in the buildings surrounding the retail village will open to the village square and have amenitized open space as their front yard. Rooftops, terraces, and balconies will overlook the activities at the ground level and offer an array of amenities for residents.
4) An Extension of the Arts. There is an array of indoor and outdoor art installations on Segerstrom properties and others in the area that can virtually or physically become part of an art walk (such as Noguchi’s California Scenario, Serra’s Connector, and Perry’s The Ram). The Village Santa Ana will be an extension of the art walk, showcasing art works in the form of landscaping, stand-alone art pieces, and local artisan retail. Distinctive architecture and high-quality materials will contribute to the character of The Village Santa Ana. 5) Activated Streets. Contrasted with the existing site layout, new residential and commercial buildings will orient toward the streets and retail village and provide easy access for pedestrians. The streetscape and building setbacks along Sunflower Avenue, Plaza Drive, and Bear Street, and internal Project roads will be designed with a cohesive palette of drought-tolerant plants with unique characteristics, brightly colored flowers, and a mix of succulents and trees. 6) Sustainable Foundation. Planning, design, and development of The Village Santa Ana is rooted in sustainability. Like prior generations, this new development will aim to protect and care for the land. Best practices for reduced energy and water consumption, sustainably sourced materials, and integration of pervious surfaces along with thoughtful plant selection will support on-site water retention for this green village community. All of these features and more will ensure a lasting, sustainable development for generations to come.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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7) Balance of Land Uses. The Village Santa Ana will contain a broad mix of land uses serving regional, community, and local needs. This includes a mix of retail, restaurant, and entertainment uses that complement South Coast Plaza and contribute to the local Santa Ana economy. The Village Santa Ana will also help meet the significant demand for additional housing in the community.
Table 5 provides an analysis of SP-6 that warrants staff’s recommendation of approval of the requested action.
Table 5: Key Issues Analysis
Key Issue Analysis
Scale and Compatibility SP-6 is intended to produce a dynamic, mixed-use village that is integrated into and respects the surrounding community. The GPU land use designation of DC-5 for the Project Site allows developments up to 25 stories tall. SP-6 limits building heights to 25 stories and buildings adjacent to the northern property line will be limited to 8 stories, which is consistent with the GPU. Furthermore, through the City’s DRC process for each phase and design guidelines contained in SP-6, new buildings will be reviewed and designed to be compatible with the existing surrounding uses by including upper story step-backs and other features to reduce upper story massing.
Density and Intensity The DC-5 designation of the GPU allows a density of up to 125 du/acre and a maximum FAR of 5.0. SP-6 is consistent with the density and intensity of the GPU. The Project, as designed, is proposing a density of 93 du/acre and a FAR of 3.0, below what is permissible by the GPU. Typical residential densities of existing multiple-family communities in the area range from 16 to 25 du/acre; however, SP-6 includes a variety of development standards, design guidelines, and amenities designed not only to reduce the impact of higher-density residential development, but to also enhance existing community-wide amenities for existing residences surrounding the Project Site. The Project’s density and FAR is comparable with the density of 91 du/acre and FAR of 2.7 approved for SP-5.
The Project will feature 7.5 acres of publicly accessible open space, which will be accessible to all Santa Ana residents and programmed with functions to provide active and passive recreation. The Project also includes private residential open space and amenity space that will ensure a livable environment for residents.
Onsite Parking The Project will provide approximately 3,439 parking stalls and the parking ratios are consistent with newer developments recently constructed and with the parking ratios approved for the adjacent SP-5. Parking would be provided through a combination of underground parking, above-ground structure parking, and on-street parking. Above- or below-ground structured parking would be provided for each residential, mixed-use, or office building.
Underground and on-street parking would be provided adjacent to the proposed village plaza area, which would include retail, food and beverage, among other uses. A portion of these parking spaces would be designated and equipped with charging receptacles for electric vehicles for residential and nonresidential uses in accordance with CALGreen.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Key Issue Analysis
A Parking Management Plan (PMP), attached hereto as Appendix E of Exhibit 7, was prepared for the Project to ensure adequate parking is being provided and managed properly for all residents, tenants, employees, and guests. The PMP identifies how parking stalls will be assigned, how gates will be managed, and how access (keycard, access codes) for residents, guests, employees, and the public will be provided. Based on the provided PMP, sufficient parking will be provided to satisfy the parking demand for residents, guests, patrons, and employees of the Project. Nevertheless, a condition of approval requiring the Applicant to implement and enforce the appropriate parking management strategies recommended in the PMP has been included.
Affordable Housing and
Opportunity Creation
Ordinance (AHOCO)
The City’s inclusionary housing ordinance, known as AHOCO, generally applies to housing projects proposing five or more units that are also requesting an increase in allowable density or are located in certain sections of the City that were “up-zoned,” such as through zone change or general plan amendment to allow additional residential development after November 28, 2011. As the Project is located in a section of the City that meets this threshold (SBSFA), the Applicant’s request is subject to the AHOCO requirements of production of affordable housing or payment of in- lieu fees. Pursuant to Sections 41-1903 (Exempt Projects) and 41-1904 (Options to Satisfy Inclusionary Requirements) of the SAMC, the Applicant has indicated intent to select the option to pay in-lieu fees at a rate of $5 per square foot of habitable residential area through the requested development agreement. Based on available figures for the Project and under the current ordinance, staff’s analysis of the Project indicates the Project could generate approximately $7,100,000 in in-lieu fees, based on 1,583 units proposed, unit types/mix, and square footages. Any in-lieu fees generated by the Project must be spent on production of affordable housing in the City of Santa Ana.
Regional Housing Needs
Allocation (RHNA)
The State has placed an urgent emphasis on housing of all types. Santa Ana’s RHNA for the current General Plan Housing Element cycle (6th Cycle), which extends from 2021-2029, includes 3,137 housing units. This allocation is for housing units to be constructed to support the anticipated growth in the City over this period.
The City has a proven track record of not only planning for housing but issuing building permits for the construction of housing at all affordability categories as demonstrated by exceeding its 5th Cycle (2014-2021) RHNA by over 2,300 percent. The City is also on pace to meet or well exceed its affordable housing and other residential development requirements for the 6th Cycle, far outpacing any city in Orange County, as evidenced by issuing 4,441 permits for housing units across all affordability categories, as detailed in the latest (2024) Housing Element Annual Progress Report, fulfilling 100 percent of its RHNA for above moderate housing. However, very-low, low, and moderate housing numbers have not been met and the Project would assist with AHOCO in-lieu fees that can be utilized to target the remaining housing categories. SP-6 would assist the City in achieving its housing goals in a location where high intensity urban development is The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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Key Issue Analysis
both achievable and consistent with the current and envisioned surrounding urban form.
Amendment Application No. 2025-01
Pursuant to Sections 41-659 through 41-667 of the SAMC, the approval of an amendment application (zone change) requires approval of an ordinance by the City Council.
Amendment applications may be granted when it can be shown that the request is consistent with the intent and purpose of Chapter 41 (Zoning) of the SAMC, with previous amendments, and it is in substantial conformance with the General Plan. The Applicant is requesting approval of AA No. 2025-01 in order to change the zoning designation of the Project Site from SD-48 to SP-6 in order to guide future development of the Project Site consistent with the GPU and SBSFA.
Existing Zoning District Designation Proposed Zoning District Designation The SD-48 zoning district for the Project Site was established in 1989 for the purposes of facilitating the development of the South Coast Plaza Village. The SD-48 zoning district does not allow for residential uses and does not provide the means to achieve the goals and objectives of the Project or the General Plan land designation of DC-5 to produce a dynamic mixed-use village with residential, commercial, and open space land uses.
Therefore, approval of the requested amendment application to establish SP-6 is required to implement the vision of the Project and to establish consistency with the General Plan.
Vesting Tentative Tract Map No. 2025-06
Subdivision requests are governed by Chapter 34 (Subdivisions) of the SAMC. Pursuant to sections 66473.5 and 66474 of the California Subdivision Map Act (SMA), applications for vesting tentative tract maps are approved when it can be shown that findings can be made in support of the request. Specifically, findings related to the proposal need to be made that find the project is consistent with the General Plan, the site is physically suitable SP6
SP6
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for the type and density of the proposed project, the proposed project will not cause substantial environmental damage or substantially and avoidably injure fish and wildlife or their habitat, the proposed project will not cause serious public health problems, or the proposed project will not conflict with easements necessary for public access through or use of the property. Using this information, staff has prepared the following analysis, which, in turn, forms the basis for the recommendation contained in this report. In analyzing the Applicant’s request, staff believes that the following analysis warrants approval of VTTM No. 2025-06.
The Applicant is seeking approval of VTTM No. 2025-06 (County Map No. 2023-159) to subdivide the Project Site into six lots, attached hereto as Exhibit 9. The subdivision will allow the financing of individual components of the Project Site due to differences in phasing and funding mechanisms for commercial, residential, mixed-use, service- oriented, parking, and open space components of the Project. The map also details roadway and utility improvements, as well as creation of new private roadways on the Project Site, in order to develop the Project Site as a pedestrian-oriented, mixed-use urban village. Covenants, Conditions, and Restrictions (CC&Rs) will be adopted to define the operating and maintenance requirements. They will also maintain a property owner’s association responsible for maintenance and enforcement of the CC&Rs and will ensure that parking and access can be shared throughout the entire Project Site.
In reviewing the Project, staff determined that the proposal, as conditioned, is consistent with the various provisions of the GPU, SAMC, and SMA. The Project Site is physically suitable for the type and density of the proposed Project, and the design and improvements of the proposed Project will not cause substantial environmental damage or substantially and avoidably injure fish and wildlife or their habitat. Lastly, the design and improvements of the proposed Project will not cause serious public health problems, and will not conflict with any easements necessary for public access through or use of the property within the proposed Project. The Project is located in an urbanized area that is proposed for redevelopment with additional urbanization in the form of commercial, service, residential, and open space land uses, and the Project Site is already served by infrastructure necessary and will be enhanced to support the proposed development.
General Plan Consistency
The Project implements the vision and objectives of the SBSFA by transforming an auto- oriented shopping center to a walkable, bike-friendly, and transit-friendly urban village that incorporates a mix of high-intensity office and residential living with experiential commercial uses. The Project is consistent with the allowed intensity and density of the DC-5 land use designation of the GPU. The Project also supports several goals and policies of the GPU. Specifically, the Project is consistent with the following goals and policies:
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•Policy CM-1.6 (Recreation on Private Property) of the Community Element, of promoting development and use of privately-owned recreation and entertainment facilities that help meet the needs of Santa Ana residents as the Project would include publicly accessible open space that would be made available to the general public through a public access easement with the City and would remain in effect through the life of the Project. Additional information regarding the required public access easement is discussed further in the Development Agreement Section of this report.
•Policy CN-1.6 (New and Infill Residential Development) of the Conservation Element encourages development that is mixed use, pedestrian friendly, transit oriented, and clustered around centers. The Project would introduce a mixed-use urban village and encourage experiential commercial uses that are more walkable, bike-friendly, and transit-oriented. The Project would create a commercial core providing for sufficient local serving and destination retail uses, residential opportunities, workplaces, and entertainment amenities to enable residents and shoppers to reduce reliance on the automobile.
•Policy EP-3.4 (Complete Communities) of the Economic Prosperity Element encourages the development of “complete communities” that provide a range of housing, services, amenities, and transportation options that support the retention and attraction of skilled workforce and employment. The Project would implement the vision of the SBSFA of creating an urban village that includes a range of uses.
The Project would promote a business-friendly environment where businesses thrive and would facilitate a “complete community” with a range of housing, services, and amenities and transportation options to support the retention and attraction of a skilled workforce and employment base.
•Policy HE-1.5 (Infrastructure and Public Services) of the Housing Element (HE) encourages the development of quality community facilities, physical infrastructure, traffic management and parking control, and other public services to promote the livability, safety, and vitality of neighborhoods. The Project would provide safe access points for pedestrians and bicyclists and would include new traffic signals along Bear Street and Plaza Drive to improve traffic management.
The PMP would also assist in controlling parking impacts. •Policy HE-2.6 (Housing Design) of the HE requires excellence in architectural design through the use of materials and colors, building treatments, landscaping, open space, parking, and environmentally sensitive (“green”) building and design practices. One primary objective of SP-6 is to bring high quality design to the Project Site, focusing on green standards, durable materials, visual integrity, and timeless architecture. The Project would incorporate quality design, from the larger design of the commercial and residential structures to the small details of materials, landscaping, pedestrian network, and communal gathering spaces.
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•Policy LU-2.1 (Employment Opportunities) of the Land Use Element (LU) encourages a broad spectrum of land uses and development that offer employment opportunities for current and future Santa Ana residents. The Project would include a mix of land uses that will serve as a catalyst for reinvestment, stimulate economic activity, commerce, and new development opportunities in and around the SBSFA. The Project would also have a positive contribution to the local economy through new capital investment, the creation of jobs, and the expansion of the tax base through the Project’s long-term investment and commitment to the City of Santa Ana.
•Policy LU-2.3 (Supportive Spaces) of the LU element encourages providing a diversity of land uses that support residents, visitors, and businesses, such as open space, areas for community gatherings, and outdoor entertainment venues.
One of the primary goals of the Project is to foster a neighborly environment where residents can live, work, and recreate in a vibrant village community. The Project would encourage walkability, safety, shopping, and dining, and would create community centric spaces for residents of all ages and abilities. •Policy LU-2.10 (Smart Growth) of the LU element emphasizes focusing high density residential in mixed-use villages, designated planning focus areas, downtown Santa Ana, and along major travel corridors. The Project is located with the SBSFA, a planned focus area. The Project would achieve the vision of the SBSFA of creating high density housing within and along a mixed-use village that would be the hub of activity, designed as a park-like setting that would create an intimate and relaxing environment.
•Policy M-1.2 (Balanced Multimodal Network) of the Mobility Element (M) encourages providing a balanced and equitable multimodal circulation network that reflects current and changing needs. The Project would accommodate a variety of transportation within and to/from the Project Site, including automobiles, walking, bikes, and rideshare. The Project would include an internal pedestrian network providing multiple access points along Bear Street, Sunflower Avenue, and Plaza Drive. Additionally, the Project would include for new bike lanes through and around the Project Site and bicycle parking stations. •Policy OS-1.9 (New Development) of the Open Space (OS) Element requires all new development to provide adequate parks and open space, including via parkland dedication or development fees, in order to meet the City’s Park standard.
Ensure that new development includes pedestrian and multi-modal travel ways to promote a quality living environment. For new development within park deficient and environmental justice areas, prioritize the creation and dedication of new public parkland over the collection of impact fees. The Project would provide approximately 7.5 acres of publicly accessible open space, consisting of both active and passive open space that would be open to the general public through a The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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public access easement with the City and would remain in effect through the life of the Project. Additionally, the Project would require 90 square feet of private open space and 100 square feet of active or passive open space per unit. The Project also prioritizes open space as a key placemaking feature of the development. •Policy OS-2.1 (Recreation Variety) of the OS element encourages a variety of recreation facilities and activities to meet the diverse needs of the community. It also encourages the need for indoor and outdoor recreation opportunities, as well as traditional and trending activities. The Project would feature key open space areas. The Promenade has been designed to draw pedestrians from the residential area west of Bear Street, South Plaza Drive, and beyond to create a distinct destination along Sunflower Avenue. The Square is intended to be an intimate hub for public gathering, events, and relaxation from day to night. Various seating areas, water features, and experiential lighting and art are envisioned to activate the Square. A Fitness Loop would encircle and thread through the Project Site and include special markers to provide a continuous fitness path for residents and neighbors. The Recreation Lawn has been designed as an area where the community and their pets can gather and relax in a low-water-grass space.
Moreover, the Project is consistent with and supports Implementation Action No. LU-2.12 (Distinctive Districts) of the LU that requires the development and adoption of specific plans or corridor plans for each of the five focus areas that establish regulations and design standards. A full list of all applicable General Plan goals and policies that support the Project are attached hereto as Appendix B of Exhibit 7.
Development Agreement No. 2025-01
The Applicant has requested approval of a development agreement, DA No. 2025-01.
Development agreements are contracts negotiated between project proponents and public agencies, such as the City of Santa Ana, that govern the land uses that may be allowed in a particular project (Gov. Code Section 65864 et seq.). Although a development agreement is subject to negotiation, allowable land uses must be consistent with the local planning policies formulated by the legislative body through its general plan and consistent with any applicable specific plan, such as the proposed SP-6 (Gov. Code Section 65867.5). In addition, approval of a development agreement, requires adoption of an ordinance by the City Council.
To evaluate DA No. 2025-01 and identify priorities for agreement terms, the City Council formed an Ad Hoc committee in March 2025 comprised of three City Council members.
The Ad Hoc committee met to review the Applicant’s proposed terms, identify community priorities, and ensure that the final agreement addressed the Ad Hoc committee’s priorities. While review of a development agreement is a private contractual process, the extensive community engagement process and routine staff meetings with City Council The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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members ensured that community priorities were effectively communicated to the Ad Hoc committee and informed the negotiation process.
DA No. 2025-01 contains an initial term (duration), extension process, community benefits, indemnification, monitoring and reporting, inclusionary housing, open space, infrastructure, modifications, and other relevant items, attached hereto for reference as Exhibit 8. These terms have been crafted to ensure the Project is of high-quality with positive financial impacts to the City. Table 6 provides a summary of major deal points in DA No. 2025-01.
Table 6: DA Major Deal Points
Deal Point Ad Hoc Committee
Recommendation
Proposed by DA
Term (Duration) and
Extension
One 20-year term, and one five-
year automatic extension.
Extension subject to
construction commencement of
no less than 50,000 square feet
of commercial area and 360
residential dwelling units.
Applicant has agreed to this term and
proposed agreement was modified to
capture this change.
Timing of
Development
No building permits for
residential units shall be issued
in excess of 360 residential units
until building permits are
obtained for at least 50,000
square feet of commercial
space.
Applicant has agreed to this term and
proposed agreement was modified to
capture this change.
Community Benefit
Payments
Accept Community Benefit
Payment of $9,300,000 but
provide a larger upfront payment
and provide payments in less
intervals.
Applicant has revised the proposed
agreement to provide the Community
Benefit Payment in four payments instead
of five and increased Payment No. 1 by
$500,000. Payments will be provided as
follows:
•Payment No. 1 of $2,500,000 prior to
demolition permits being issued;
•Payment No. 2 of $3,600,000 prior to
permit issuance of Phase 2
•Payment No. 3 of $1,300,000 prior to
permit issuance of Phase 3
•Payment No. 4 of $1,900,000 prior to
permit issuance of Phase 4
Open Space Accept the construction of 7.5
acres of publicly accessible
open space to satisfy the City’s
park provision and fee
requirements. The developer
Applicant has agreed to these terms.
The SEIR prepared for the Project
identifies that the Project will result in a
demand for 11.4 acres of parkland, which
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Deal Point Ad Hoc Committee
Recommendation
Proposed by DA
must enter into a public access
easement for the publicly
accessible open space, which
must be recorded against the
Property Site for the life of the
Project.
is 3.9 acres more than the 7.5 acres being
proposed. However, the Project will remain
consistent with the General Plan pursuant
to Table OS-3 (Open Space Element
Implementation) of the General Plan,
Action Nos. 1.7 and 1.10. Action No. 1.7,
which recognizes the challenges and
difficulty in creating new open space and
parklands in a built-out environment and
provides for a reduction in on-site open
space by giving credits for park land for
public use as an incentive toward
developer creation of open space areas
that are accessible to the public. Action
No. 1.10 encourages collaboration with
property owners to provide public access
and programming on private open space.
Inclusionary Housing
Fee
Accept payment of $5 per
square feet of habitable space
Applicant has agreed to these terms.
Pursuant to SAMC Section 41-1903(a), the
Applicant has proposed a development
agreement to comply with Section 41-1904
of the SAMC, allowing payment of in-lieu
fees. SAMC Section 41-1904 provides
options to satisfy the AHOCO, including
on-site units, off-site units, and payment of
in-lieu fees. For projects containing 20 or
more units, the in-lieu fee is as high as $15
per square feet, but may be as low as $5
per square feet if determined by a
development agreement or if using skilled
and trained workforce. The in-lieu fees for
the Project are estimated to be
$7,100,000.
Overrule of Airport Land Use Commission’s Inconsistency Determination Pursuant to Section 21676(b) of the PUC, on June 19, 2025, the ALUC for Orange County held a public hearing on the Project and found the Project to be inconsistent with the AELUP for JWA per:
•Section 2.1.3 of the AELUP for JWA which states that a Determination of No Hazard to Air Navigation does not automatically equate to a Consistency determination by the ALUC and that the Commission may find a project Inconsistent based on an Obstruction determination; and The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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•Section 3.2.1 of the AELUP for JWA which states that “within the boundaries of the AELUP, any land use may be found to be inconsistent with the AELUP which … permits structures of excessive height in areas which would affect adversely the continued operation of the airport; or permits activities or facilities that would affect adversely aeronautical operations.”
As a final review authority on legislative acts, the City Council may, after a public hearing, choose to overrule the ALUC's determination of inconsistency by following the procedure established in PUC sections 21676 and 21676.5. As part of the GPU, the City Council adopted a resolution on April 19, 2022, in accordance with the procedure established in PUC sections 21676 and 21676.5 to overrule the ALUC’s finding that the GPU was inconsistent with the AELUP for JWA. The action to overrule the ALUC’s decision on the GPU was based on the desire to advance the vision for the South Bristol Street and 55 Freeway/Dyer Road focus areas, which envision a dynamic, mixed-use environment with building heights and massing ranging from six to 25 stories.
At their July 15, 2025, meeting, City Council authorized staff to initiate the process for the City Council to consider the Project and to propose overriding the determination made by the ALUC by (1) issuing a Notice of Intent to Overrule and (2) giving notice to the ALUC of its decision to overrule as required by PUC Section 21676(b). On July 16, 2025, the Planning Division provided a Notice of Intent to Overrule the Commission’s determination with findings to the ALUC and Caltrans Division of Aeronautics. On August 12, 2025, Caltrans Division of Aeronautics responded to the City’s Notice of Intent, attached hereto as Exhibit 13 for City Council’s review and consideration, and on August 15, 2025, ALUC responded to the City’s Notice of Intent, attached hereto as Exhibit 14 for City Council’s review and consideration.
PUC Section 21676 permits the City Council, by a two-thirds vote of the members constituting a quorum, to overrule the ALUC’s determination if it finds that the proposed project is consistent with the purposes of the State Aeronautics Act. The Act states: “It is the public interest to provide for the orderly development of each public use airport in this State and the area surrounding these airports so as to promote the overall goals and objectives of the California noise standards…and to prevent the creation of new noise and safety problems.”
Based on staff’s review of the Project, the Project will not adversely impact the operations of the airport, the future development plans that exists for the airport, the approaches to the airport runways, create noise concerns, or create public health, safety, or welfare concerns. Additionally, the Project falls within a level of acceptable risk considered to be a community norm. Multiple taller structures than those proposed in the Project Site exist closer to the airport and its runways, notably in the cities of Costa Mesa, Irvine, and Newport Beach. Out of an abundance of caution and consistent with past practice, the Applicant will be required to record an avigation/aviation easement with both the County The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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and the City to prevent claims, actions, or lawsuits for nuisance or interference with the use of the property against the City and JWA.
Community Engagement and Public Notification
Due to the complexity and scale of the Project, public outreach and notification were conducted using a variety of manners to engage broad segments of the community.
Community engagement and public notification processes for the Project exceeded the minimum requirements of the City. Upon submittal of the proposed Project to the City, staff met with the Applicant to provide information about the various neighborhood associations, business groups, and other communities surrounding the Project Site. Staff and the Applicant routinely attended community meetings in the vicinity of the Project Site to provide updates, receive feedback, and answer questions. Details of the public engagement component of the Project is also documented within SP-6, attached hereto as Exhibit 7.
Sunshine Ordinance Community Meetings and Additional Community Meetings In accordance with Article II.II (Public Meetings for Certain Development Projects) of Chapter 2 (Administration) of the SAMC, the Project hosted its first Sunshine Ordinance community meeting on August 23, 2023. Approximately 150 people attended the meeting, which was held at the Westin South Coast Plaza. The meeting was led by the Applicant’s community liaison whom gave a presentation on the Project before opening the floor to questions. The majority of the questions from attendees focused on traffic and parking.
There were also questions about rent versus for sale housing, how the Project would address affordable housing, and the viability of office space. Questions were addressed by the Applicant’s team. Meeting materials providing additional information on the Project including location and history, circulation and parking, architecture and design, infrastructure systems, land use, and vision and guiding principles were available throughout the room. Participants were also able to provide comments and questions via comment cards and sign up for email updates. Following the meeting, the meeting materials were made available on the City’s Project webpage.
The second required Sunshine Ordinance meeting was held on November 8, 2023.
Approximately 80 people attended the second meeting, which was held at the Westin South Coast Plaza. The Applicant’s community liaison led the meeting and gave a presentation on the Project before opening the floor for questions. The questions covered topics regarding traffic and parking, project schedule and construction, affordable housing and rents, and access to future amenities. Similar to the first meeting, participants were able to provide comments and questions via comment cards and sign up for email updates. The Project email and website were also promoted. Following the meeting, the meeting materials were made available on the City’s Project webpage.
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In addition to the required Sunshine Ordinance meetings, the Applicant has held and attended over 100 community meetings, including attending and presenting at large and small group meetings and individual one-on-one meetings. The Applicant has made themselves available for feedback from the general public and has returned countless phone calls, messages, and other correspondences. The Project has a dedicated community liaison with relationships in the community who has provided and continues to ensure up-to-date information is available to all members of the community. Lastly, City staff have made themselves available on a regular basis to answer the community’s questions about the Project through in-person and virtual meetings.
Online Content
As required by the Sunshine Ordinance, the City also established a Project webpage. The webpage has been routinely updated with Sunshine Ordinance meeting materials, Project information, key meeting dates, draft environmental documents, and the draft specific plan. The webpage also contains the City’s contact information with a direct phone number and email address to the Case Planner. In addition, the Applicant created a Project website and email to provide a broad overview of the Project and gather input from those who could not attend in-person meetings.
Planning Commission Work-Study Session
A Planning Commission work-study session was held on June 23, 2025, during which members of the Planning Commission were provided a presentation on the Project, its status at the time of the work-study session, and an opportunity to provide general comments and pose questions. The public comment portion of the meeting was opened to allow for any Project-related public comment on the Project.
Mandatory Public Hearing Notification Measures
Project notifications were posted, published, and mailed in accordance with City and State regulations. Copies of the public notice, including a 2,000-foot notification radius map, and the site posting are provided in Exhibit 11. In addition, even though the Project Site is not located within the boundaries of any neighborhood association, staff contacted the provided contacts for the Sandpointe, South Coast, Republic Homes, Metro Classic, Morning Sunwood, Thornton Park, Sunwood Central, and the Rosewood Baker neighborhood associations to ensure they were aware of the Project and public hearings.
ENVIRONMENTAL IMPACT
GPU Final Program Environmental Impact Report (“Final PEIR”) In April 2022, the City certified the GPU Final PEIR (SCH No. 2020029087) and adopted the GPU. The GPU Final PEIR is a program environmental impact report that examines The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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the existing environment and the total scope of environmental effects that would occur as a result of buildout of the GPU land uses. The GPU Final PEIR comprehensively evaluated the potential environmental impacts stemming from adoption of the GPU and subsequent implementing projects. Moreover, this type of environmental document allows subsequent implementing activities, such as the proposed Project, to be evaluated through “tiering.” Tiering refers to the coverage of general matters in broader EIRs, such as the GPU Final PEIR, with subsequent narrower EIRs or ultimately site-specific EIRs incorporating by reference the general discussions and concentrating solely on the issues specific to the EIR subsequently prepared, such as in the case of the Project’s Supplemental EIR. Tiering is appropriate when the sequence of EIRs is (1) from a general plan, policy, or program EIR to a program, plan, or policy EIR of lesser scope or to a site- specific EIR, (2) from an EIR on a specific action at an early stage to a subsequent EIR or a supplement to an EIR at a later stage.
The Project Site is located within the SBSFA and has a land use designation of DC-5, which has a maximum FAR of 5.0, a maximum of 125 dwelling du/ac, and a maximum height of 25 stories. This level of redevelopment was included in the GPU Final PEIR buildout, and applicable mitigation measures were identified, as necessary, to reduce impacts. A project is consistent with the GPU if the development density and intensity does not exceed what was contemplated and analyzed in the certified GPU EIR and complies with the associated standards applicable to that development density (State CEQA Guidelines Section 15183(i)(2)).
Supplemental Environmental Impact Report (SEIR)
In compliance with CEQA, and as required by Public Resources Code (PRC) Section 21166 and CEQA Guidelines Section 15162, the City of Santa Ana has prepared a SEIR that evaluates the potential of the proposed Project to result in new or substantially greater environmental impacts than previously identified in the GPU Final PEIR. The City’s certified PEIR examines the impacts associated with buildout of the Santa Ana General Plan. Once a Program EIR is prepared, subsequent activities within the program or changes to the program must be evaluated to determine whether additional CEQA documentation needs to be prepared.
The Project Site is within the SBSFA and development of the site was analyzed in the GPU Final PEIR at a programmatic level at 5.0 FAR and 125 du/ac assumption per the GPU DC-5 land use designation. The Project proposes a phased redevelopment of the Project Site, consistent with the DC-5 land use designation, and the City conducted project-level analysis to determine if the development of the Project would involve new significant environmental effects or a substantial increase in the impacts that were previously identified in the GPU Final PEIR. Following this project-level analysis, the City of Santa Ana prepared an SEIR that evaluated the potential of the proposed Project to result in new or substantially greater impacts than previously identified; applied the mitigation measures prescribed in the GPU FEIR; and where new or more significant The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
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impacts were identified, included Project specific mitigation measures. In addition, where impacts could not be mitigated to below a less than significant level, the SEIR made new significant and unavoidable findings. The Project’s SEIR also provides information regarding short-term, long-term, direct, indirect, and cumulative environmental effects of the Project. It identifies feasible mitigation measures and alternatives that would minimize or eliminate the potentially significant impacts associated with implementation of the Project.
SEIR’s Notice of Preparation
On November 3, 2023, the City sent to the Office of Land Use and Climate Innovation (LCI) and each responsible trustee agency a Notice of Preparation (NOP), stating that a SEIR would be prepared for the Project. A total of nine comments were received during the 30-day NOP review period which began on November 3, 2023, and ended on December 3, 2023.
SEIR Scoping Meeting
Pursuant to PRC Section 21083.9 and CEQA Guidelines sections 15082(c)(1) and 15083, the City hosted a public scoping meeting on November 15, 2023, to solicit comments on the scope of the environmental review of the proposed Project. Approximately 15 residents attended the meeting and raised concerns about traffic, pedestrian safety, and construction noise and debris. These issues were addressed in the Draft SEIR. In addition, participants were encouraged to submit comments on paper or via email to ensure inclusion in the draft SEIR and environmental analyses.
Draft and Final SEIR Public Review and Availability
The City determined at the onset of review and preparation based on analyses, the GPU Final PEIR, existing site conditions, setting, and responses to the NOP, that the Project would have no impact or a less than significant impact on the following environmental topic areas and that no further, detailed analysis of these topics was required in the SEIR:
Aesthetics, Agriculture and Forestry Resources, Biological Resources, Mineral Resources, and Wildfire. In particular, with respect to aesthetics, PRC Section 21099 provides that “aesthetic and parking impacts of a residential, mixed-use residential, or employment center project on an infill site within a transit priority area shall not be considered significant impacts on the environment.” Here, the proposed Project is located in a Transit Priority Area and therefore the SEIR did not include a detailed analysis of aesthetics. However, a discussion on the topic is included in the Land Use and Planning section of the SEIR.
For each topical area of potential significance, the SEIR evaluates impacts of the Project, what was evaluated by the GPU Final PEIR, mitigation measures already in place and adopted by the GPU Final PEIR’s MMRP, and project-specific mitigation measures.
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Section 15126.2(b) of the CEQA Guidelines requires an EIR to describe “any significant impacts, including those which can be mitigated but not reduced to a level of insignificance.” Potential environmental effects of the proposed Project and mitigation measures are discussed in detail throughout Chapter 4 of the Draft SEIR. The Draft SEIR determined that mitigation measures were required to mitigate impacts to a less than significant level for the following resource areas: air quality, cultural resources, geology and soils, noise, and tribal cultural resources.
However, the Draft SEIR concluded that despite the incorporation of all feasible mitigation measures, the proposed Project would nonetheless result in significant and unavoidable impacts to recreation. The impacts do not increase the severity of the impacts identified in the GPU Final PEIR. As detailed in Section 4.12 of the SEIR (Recreation), the City currently has approximately 1.2 acres of public park and/or recreational space per every 1,000 residents, which is below the City’s parkland aspirational standard of three acres of parkland per 1,000 residents. Based on the City’s parkland aspirational standard of three acres of public park and/or recreational space per 1,000 residents, buildout of the Project results in a need for approximately 11.4 additional acres of parkland to serve the estimated 3,815 new residents of the Project Site. The 7.5 acres of publicly accessible open space by the Project would be approximately 3.9 acres less than the City’s parkland aspirational standard. Although the proposed Project and cumulative projects would be required to provide park and recreational facilities, private open space, and/or pay in-lieu fees as required by the SAMC, the impacts related to the amount of parkland within the City would be cumulatively considerable and cumulative impacts related to parks and recreational facilities would be significant.
The SEIR also evaluated the following alternatives to the proposed Project that would feasibly avoid or lessen the proposed Project’s significant environmental impacts while attaining most of the proposed Project’s objectives: Alternative 1 (No project/No build), Alternative 2 (Reduced project alternative that reduces the commercial component to 50,000 square feet and eliminates the 300,000-square-foot office), and Alternative 3 (Reduced project alternative with no subterranean parking that would reduce the proposed residential units to 1,000 units, reduce the commercial component to 25,000 square feet, and eliminate subterranean parking). A detailed analysis of environmental impacts and feasibility of each alternative is included in the Final SEIR.
A MMRP has been prepared for the Project and is attached to the resolution certifying the Final SEIR No. 2025-01. A Statement of Overriding Considerations will be necessary should the City Council decide to approve the Project because of the significant and unavoidable impacts to recreation. The Statement of Overriding Considerations and Findings for the Project is attached hereto as Exhibit A to Exhibit 1.
As required by CEQA Guidelines Section 15087(a), the City filed a Notice of Completion with LCI, State Clearinghouse, indicating that the Draft SEIR had been completed and was available for public review. On April 17, 2025, a Notice of Availability (NOA) of the The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
Sunflower Avenue)
September 16, 2025
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Draft SEIR was published and the Draft SEIR was circulated for a 52-day public review and comment period from April 17, 2025, through June 29, 2025. During the public comment period, copies of the Draft SEIR and technical appendices were available for review and inspection at City Hall, on the City’s project webpage, and at the Southwest Senior Center. The City received a total of eight comments from various individuals, organizations, or government agencies during this period.
On August 8, 2025, the City released the Final SEIR, which contains the Draft SEIR, all technical appendices prepared in support of the Draft SEIR, all written comment letters received on the Draft SEIR, written responses to all written comment letters received on the Draft SEIR, and errata to the Draft SEIR and technical appendices. In accordance with PRC Section 21092.5, copies of the written responses to public agencies that submitted comments during the 45-day review period will be forwarded to those agencies at least 10 days prior to certification of the Final SEIR by the City Council, with copies of the Final SEIR document. Pursuant to CEQA Guidelines Section 15089(b), lead agencies may provide an opportunity for review of the Final SEIR by the public or by commenting agencies before a project is approved, but is not required to do so; the Final SEIR is available for review on the City’s website at https://www.santa-ana.org/supplemental- environmental-impact-report-the-village-santa-ana-specific-plan/, at the Southwest Senior Center, and at City Hall.
Staff recommends that the City Council certify the Final SEIR and adopt the MMRP for the Project, and adopt CEQA Findings of Fact and Statement of Overriding Considerations. The entire Final SEIR and all required components, including comments, responses, detailed analyses, and the MMRP, are contained within Exhibit 6 of this report.
FISCAL IMPACT
The GPU Land Use Element requires projects proposing a zone change, such as the proposed project, to evaluate economic, fiscal, and community benefits impacts through various analyses (Policy Nos. LU-2.4, LU-3.1, and Implementation Action No. LU-1.2). In accordance with the GPU, the Applicant prepared a market, fiscal, and economic analysis, attached hereto as Appendix C of Exhibit 7, that was peer-reviewed by a City consultant. The analysis concludes that given the amenity-rich environment of the Project Site, its location in a market area with higher than average rents, and the relatively low vacancy rates of nearby mixed-use and multiple-family residential communities, the Project’s residential, commercial, and office components could be absorbed by the market area. The other reports’ conclusions about the proposed Project and its impacts are outlined in Table 7 below.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
Sunflower Avenue)
September 16, 2025
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Table 7: Key Economic, Fiscal, and Community Benefits Findings
Topic Existing Site Proposed Project Net Change
Key Economic Benefit Findings
One-Time Impacts Not applicable 8,658 city-captured
jobs, including direct,
indirect, and induced
full- and part-time jobs;
$700 million city-
captured labor income;
and $1.1 billion city-
captured economic
output
Not
applicable
Recurring (Ongoing)
Impacts
Estimated 280 jobs 1,167 city-captured
jobs, including direct,
indirect, and induced
full- and part-time jobs;
$133 million city-
captured labor income;
and $119 million city-
captured economic
output
Increase of 887 jobs.
Jobs-Housing Balance 156,000 jobs city-wide;
83,005 housing units
city-wide; and 1.88
jobs-housing balance
157,167 jobs city-wide;
84,588 housing units
city-wide; and 1.86
jobs-housing balance
1,167 jobs resulting
from the project; 1,583
new housing units; 0.02
decline jobs-housing
balance, resulting in a
positive shift toward the
direction of a 1:1 job-
housing balance
Key Fiscal Impacts Findings
Total Annual Site
Revenues to the City’s
General Fund
$525,000 $5,493,100 $4,968,100
Total Annual Site
Expenditures from the
City’s General Fund
(Cost of Services)
$190,000 $2,824,500 $2,634,500
Net Annual Site
General Fund Fiscal
Impact to the City
$335,000 $2,668,600 $2,333,600
Land Residual Value Findings
Total Net Assessed
Value (NAV) Not applicable $1,265,000,000 Not applicable Total Costs Not applicable $1,100,000,000 Not applicable Excess of NAV over
Costs Not applicable $165,000,000 Not applicable
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
Sunflower Avenue)
September 16, 2025
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Topic Existing Site Proposed Project Net Change
Community Benefits Impacts Findings
Housing Construction None 1,583 units 1,583 units, assisting the City with meeting its
RHNA allocations
Community Benefit
Payment
None $9.3 million $9.3 million for
community benefits that
the City Council can
determine how to utilize
Affordable Housing In-
Lieu Funds
None $7.1 million in in-lieu
fees
$7.1 million in in-lieu
fees that can be used
for the construction of
affordable housing in
the City
Publicly Accessible
Open Space
None 7.5 acres 7.5 acres of publicly
accessible open space
that will be made
available to the general
public through an
easement
Urban Design and
Image of the City
Traditional, suburban
shopping center with
surface parking
Contemporary, iconic
mixed-use urban village
with mid- and high-rise
structures, urban
village street network,
bicycle lanes, on-street
parking, outdoor dining
areas, and high-quality
furnishings
Enhancement of the
City at a key gateway
intersection (Bristol
Street and Sunflower
Avenue), capitalizing
on the success of
South Coast Plaza and
adjacency to the I-405
freeway
EXHIBITS
1. Resolution (1) certifying the Final SEIR No. 2025-01 (SCH No. 2020029087) for the Project, (2) adopting Environmental Findings of Fact and a Statement of Overriding Considerations for the Project, (3) adopting a MMRP for the Project, and (4) approving the Project.
2. Ordinance approving Amendment Application No. 2025-01 establishing The Village Santa Ana Specific Plan (Specific Plan No. 6) and approving a zone change for the Property Site from Specific Development No. 48 (SD-48) to Specific Plan No. 6.
3. Ordinance approving Development Agreement No. 2025-01.
4. Resolution approving Vesting Tentative Tract Map No. 2025-06 (County Map No. 2023-159), as conditioned.
The Village Santa Ana Specific Plan Entitlements and Development Agreement (1561 W.
Sunflower Avenue)
September 16, 2025
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5. Resolution overruling the Orange County Airport Land Use Commission’s determination that the Project is inconsistent with the AELUP of JWA, including supportive findings.
6. Link to Final Supplemental Environmental Impact Report
7. Link to The Village Santa Ana Specific Plan and Appendices
8. Development Agreement
9. Vesting Tentative Tract Map No. 2025-06
10.Link to Sunshine Ordinance Meeting Materials
11.Responses to Planning Commission Comments Received Prior to the 3:30 p.m. deadline on August 11, 2025
12.Link to Planning Commission Agenda Packet
13.Caltrans Division of Aeronautics Response to City’s Notice of Intent
14.ALUC Response to City’s Notice of Intent
15.Copy of Public Notice
Submitted By: Ali Pezeshkpour, AICP, Executive Director of Planning and Building Agency
Approved By: Alvaro Nuñez, City Manager