The Orange City Council has recently directed staff to explore the annexation of four unincorporated communities: El Modena, North El Modena, Olive Heights, and Santiago Creek. This action, approved by a 5-2 vote last Tuesday, with Councilmembers Arianna Barrios and Jon Dumitru dissenting, seeks to bring approximately 353 acres and nearly 4,000 residents under city jurisdiction.
According to a staff report, the primary reasons for pursuing these annexations are to "create a more unified community" and to "improve service consistency," particularly for police services. Mayor Dan Slater remarked at the meeting that county islands represent "the most government inefficiency that exists in the county," comparing them to "really bad Swiss cheese."
Initially, city staff considered six unincorporated pockets, but two – Orange Park Acres and Lincoln/Glassell – were removed from consideration after residents and council members expressed dissatisfaction. Residents of Orange Park Acres voiced concerns about losing their rural community atmosphere. Laurel Maldonado, a resident, stated, "The fear is that annexing into the city is gonna be the first step. That we’re going to lose our rural character, and we’re going to lose our ability to keep our equine and our livestock and our chickens." Mayor Slater, while addressing Orange Park Acres, assured residents that animal ownership laws would not change and that the city would seek to preserve their lifestyle. Councilmember Kathy Tavoularis requested the removal of Lincoln/Glassell due to its single business occupant, a sentiment echoed by Councilmember Denis Bilodeau, who noted the family's disinterest in annexation.
Councilmember Ana Gutierrez supported the inclusion of El Modena communities to promote continuity. Unincorporated areas currently rely on county law enforcement, which operates with a more limited presence. Annexation would bring these areas under the Orange Police Department's service. Mayor Slater ultimately motioned to direct staff to identify necessary services like ambulance, trash, and sewer, gauge community interest, and determine associated costs.
The annexation process varies by land area. For pockets under 150 acres, which includes three of the four areas, the city must consult with groups including the Orange County Local Agency Formation Commission (OC LAFCO) and residents, followed by agreement from the OC Board of Supervisors and a public hearing. This process could take 6 to 12 months. For Santiago Creek, which exceeds 150 acres, more extensive resident outreach is required. OC LAFCO must hold a protest hearing, and if more than 50% of registered voters protest, the annexation is cancelled. This larger process could take 12 to 18 months or longer if an election is mandated.
Financially, the county currently spends $2,099,692 to maintain the islands. While the city aims to use property tax revenue to offset costs, existing agreements mean the city would receive only 51% of property tax, potentially bringing in an estimated $14,222 from the four proposed districts. This comes as Orange addresses a $4.4 million budget shortfall and recently placed a one-cent sales tax measure on the November ballot. Annexing these areas would also obligate the city to incorporate their allocated state housing requirements, which for Orange includes 3,936 units across various income levels.
