TO: Chair and Members of the Planning Commission
THRU: Hayden Beckman, Planning Manager
FROM: Arlen Beck, Senior Planner
1. Subject
title
Public Hearing to consider an ordinance amending the Orange Municipal Code to update regulations for homeless shelters and establish regulations for Low Barrier Navigation Centers to ensure consistency with State law (continued from September 10, 2026).
body
2. Summary
The proposed ordinance amends the Orange Municipal Code to bring the City's regulations regarding Homeless Shelters (Emergency Shelters) and Low Barrier Navigation Centers into compliance with State law, specifically Government Code Sections 65583(a)(4) and 65660 through 65663. The amendments update definitions, revise development and operational standards for homeless shelters, establish standards for Low Barrier Navigation Centers, and amend land use and parking regulations to ensure consistency with State law.
On July 20, 2026, the Planning Commission continued this item to its regularly scheduled September 10, 2026, meeting to allow more time for staff to provide additional information requested by the Commission. At the September 10, 2026, Planning Commission meeting the Commission again continued this item to its regularly scheduled October 19, 2026, meeting to ensure compliance with all applicable public noticing requirements.
3. Recommended Action
recommendation
1. Conduct and close the Public Hearing.
2. Adopt Planning Commission Resolution No. 16-26 recommending the City Council adopt an ordinance amending Title 17 of the Orange Municipal Code to update regulations for Homeless Shelters (Emergency Shelters) in compliance with Government Code Section 65583(a)(4), add definitions and regulations for Low Barrier Navigation Centers in compliance with Government Code Sections 65660 through 65663, and amend associated definitions, land use tables, and parking standards for consistency with State law.
3. Recommend that the City Council find the ordinance exempt from the California Environmental Quality Act (CEQA) pursuant to State CEQA Guidelines Sections 15061(b)(3) and 15378.
end
4. Project background
The project background remains as presented in the July 20, 2026, Planning Commission staff report (Attachment 3). This draft Ordinance is returning to the Planning Commission to provide additional information and clarification in response to direction received, as outlined in the Project Analysis section of this report.
5. project description
The project description remains as presented in the July 20, 2026, Planning Commission staff report (Attachment 3).
6. project analysis
At the July 20, 2026, meeting the Planning Commission requested additional information and clarification for the following items:
1. Remove the sunset clause proposed as OMC § 17.13.040(MMM)(11) to reflect recent changes to state law.
2. Add a Police Department operational safety review and set objective security standards.
3. Revise the parking standard for “staff” to include more than paid employees such as volunteers and operational needs (e.g., deliveries, on-site service providers) and define “comparable use” in the second sentence of “shall not exceed the parking requirements for comparable uses”.
4. Define what “properly restrained” means in relation to pets in OMC § 17.13.040 (JJ)(4)(d).
5. Add occupancy standards for the residential/living-quarter portion of Low Barrier Navigation Centers.
Staff has made the following changes in response to the requests listed above:
1. The sunset clause originally proposed as OMC § 17.13.040(MMM)(11) has been removed. Senate Bill 1395 repealed Government Code Section 65668, which previously provided that the State's Low Barrier Navigation Center provisions would remain in effect only until January 1, 2027. Accordingly, the proposed local sunset provision is no longer necessary.
2. Proposed OMC § 17.13.040(JJ)(6) has been revised to establish additional objective operational and security standards for Homeless Shelters. The revisions require an on-site staff member responsible for facility security to be physically present whenever the shelter is in operation and clarify that security cameras, alarm systems, remote monitoring, and third-party response services may supplement, but not replace, the required on-site security presence. The written operational plan requirements have also been expanded to address hours of operation, staffing and training, safety and security, client intake, emergency procedures, a good neighbor policy, and Orange community priority. The operational plan would be reviewed and approved ministerially by the Community Development Director in consultation with the Chief of Police.
3. The parking standard for Homeless Shelters and Low Barrier Navigation Centers in Table 17.34.060(a) has been revised to clarify the persons included within the term “staff.” The revised definition includes employees, regularly scheduled volunteers assigned to perform operational or supportive-service functions, contractors, and regularly scheduled on-site service providers. This revision ensures that the parking requirement accounts for personnel regularly working at or providing services to the facility beyond paid employees. The term “comparable uses” was also removed and replaced with language specifying that, in no event, shall the required number of parking spaces exceed the parking requirement applicable to residential or commercial uses otherwise permitted in the same zoning district.
4. Proposed OMC § 17.13.040(JJ)(4)(d) has been revised to remove the term “properly restrained” and clarify the standards applicable to pets. The revised language provides that pets may be permitted consistent with applicable animal control, public health, and safety requirements and that an animal may not be required to be crated as a condition of admission unless required by law or necessary for the immediate health or safety of the animal or persons at the facility. The provision also clarifies that service animals must be accommodated as required by State and federal law. A corresponding provision has been added as OMC § 17.13.040(MMM)(8) for Low Barrier Navigation Centers.
5. Proposed OMC § 17.13.040(MMM)(7) has been added to establish objective overnight occupancy standards for Low Barrier Navigation Centers. Portions of an Low Barrier Navigation Center used for overnight sleeping or residential living would be required to comply with the objective health and safety standards applicable to sleeping areas of Homeless Shelters under OMC § 17.13.040(JJ)(4)(a) and (b), to the extent those standards are consistent with applicable State law governing Low Barrier Navigation Centers.
7. AUTHORIZING GUIDELINES
Orange Municipal Code Section 17.08.020 authorizes the Planning Commission to review and make advisory recommendations to the City Council on Zoning Ordinance Amendments.
8. Public notice
On September 24, 2026, a notice was published in the Orange City News newspaper for a public hearing before the Planning Commission on October 19, 2026.
9. ENVIRONMENTAL REVIEW
The proposed project is not subject to the provisions of the California Environmental Quality Act (CEQA) pursuant to (1) Section 15061(b)(3) of the state CEQA Guidelines (Common Sense Exemption) because it can be seen with certainty that there is no possibility that it would have a significant effect on the environment; and (2) Section 15378 because it will not have a direct or reasonably foreseeable indirect physical change on the environment and is not a "project." For this reason, no further CEQA documentation is required.
10. advisory board action
No advisory board review was required for this ordinance.
11. ATTACHMENTS
• Attachment 1 Planning Commission Resolution No. PC 16-26 with Draft City Council Ordinance XX-26 - Homeless Shelters (Emergency Shelters) and Low Barrier Navigation Centers Update Ordinance (Clean)
• Attachment 2 Draft City Council Ordinance XX-26 - Homeless Shelters (Emergency Shelters) and Low Barrier Navigation Centers Update Ordinance (Redlined)
• Attachment 3 Planning Commission Staff Report, July 20, 2026
• Attachment 4 Planning Commission Minutes, July 20, 2026