TO: Honorable Mayor and Members of the City Council
THRU: Tom Kisela, Interim City Manager
FROM: Russell Bunim, Community Development Director
1. Subject
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Agreement with Placeworks, Inc. for preparation of the Village at Orange specific plan and associated Environmental Impact Report.
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2. Summary
The Village at Orange mall site has long been seen as a key location on the North Tustin Street corridor with un-met economic and aesthetic potential. The City intends to retain consultant services from Placeworks, Inc. to prepare a specific plan for the property that re-positions the site for reinvestment in order to realize its potential as a local and regional destination and community gathering place.
3. Recommended Action
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Approve the agreement with Placeworks, Inc. in the amount of $1,191,690.16 for preparation of a specific plan for the Village at Orange property and associated Environmental Impact Report; and authorize the Mayor and City Clerk to execute on behalf of the City.
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4. Fiscal Impact
The specific plan and environmental impact report will be fully funded by the ownership group of the Village at Orange with funds held in a designated account with the Finance Department for payment of consulting services ($1,191,690.16) and staff overhead costs of 20% of the budgeted scope of work ($238,338.03). Total funding for the City and consultant work on the project is $1,430,028.19.
5. Strategic Plan Goals
Goal 2: Enhance Economic Development and Achieve Fiscal Sustainability
6. Discussion and Background
The Village at Orange Mall property has experienced a decline in retail vitality over the past decade, with the major anchor stores of Sears and JC Penny closing and the interior mall tenants vacating the property in 2024. The mall’s interior space was demolished in early 2025, followed by the demolition of the JC Penny building. The deterioration of the property over time has detracted from the economic vitality and visual quality of the North Tustin Street corridor, and property’s interface with the surrounding neighborhood.
Preparation of a specific plan is needed to establish a new vision for the site supported by a zoning, circulation, and infrastructure standards crafted to support the realization of this vision. It is anticipated that the specific plan will address:
• Allowable land uses
• Development standards
• Community gathering spaces
• Circulation for vehicles and pedestrians
• Linkage and interface with surrounding development
• Streetscape enhancement
• Infrastructure improvements.
Given the high level of public interest in the mall property, the scope of work for the project includes extensive community outreach to inform the land use program and community improvements that are ultimately included in the specific plan. Also included in the work effort is a fiscal and market analysis to inform the land use plan in order to set the site up for a successful and sustainable future. Development and adoption of the specific plan and environmental impact report (EIR) is anticipated to be accomplished within an 18-month timeframe. The detailed scope of work and budget are included in Attachment 1.
Although funding for the work effort will be provided by the mall ownership group, preparation of the specific plan and EIR will be under sole consultant direction from City staff.
Consultant Selection Process
The City issued a Request for Proposals on April 2, 2025 to four qualified consulting firms including:
• AECOM
• CityThinkers
• JZMK
• Placeworks, Inc.
Placeworks, Inc. was selected based on the firm’s extensive specific plan experience, robust in-house capabilities, clear understanding of the complexity of the site and community dynamics, approach to community engagement, and efficient project schedule.
7. ATTACHMENTS
• Agreement with Placeworks, Inc.