Public Works Agency
www.santa-ana.org/pw
Item # 19
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
February 17, 2026
TOPIC: City Council Work Study Session Regarding the First Street Multimodal Boulevard Study
AGENDA TITLE
City Council Work Study Session Regarding the First Street Multimodal Boulevard Study
RECOMMENDED ACTION
Discuss and provide direction to staff.
GOVERNMENT CODE §84308 APPLIES: No
DISCUSSION
Per the approved General Plan Update, First Street between Bristol Street and Tustin Avenue is envisioned as a multimodal corridor through a series of safety and infrastructure improvements and enhancements. The goal of these improvements is to benefit all users of First Street, including pedestrians, cyclists, and public transportation users who utilize Orange County Transportation Authority’s (OCTA) Route 64, identified as one of the highest ridership bus routes in Orange County.
BACKGROUND
On April 12, 2023, OCTA submitted an application to the Southern California Association of Governments (SCAG) for Regional Early Action Planning (REAP 2.0) grant funding on behalf of the City. REAP 2.0 seeks to reduce vehicle miles traveled and facilitate the implementation of adopted regional and local plans to achieve these goals.
On July 6, 2023, SCAG awarded OCTA REAP 2.0 grant funds for planning, outreach, transit, active transportation, and transit signal priority projects, which included funding for the First Street Boulevard Multimodal Study. The study examines options to enhance transportation along First Street by evaluating the feasibility of various infrastructure improvements through extensive community outreach, field data analyses, modeling, design, and environmental clearance with the intent of identifying and designing a Locally Preferred Alternative (LPA). The study evaluates multimodal improvements that promote the safety and transportation goals included in the City’s recently adopted General Plan Mobility Element Update.
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A Request for Proposals (RFP) was issued on February 25, 2025 seeking qualified firms to provide traffic engineering and transportation planning services for the First Street Multimodal Boulevard Study. On May 20, 2025, HDR Engineering, Inc. (HDR) was subsequently awarded an agreement to conduct the study. The Study commenced June 4, 2025 with a grant deadline of December 2026. Due to the compressed schedule, selection of an LPA in early 2026 will allow adequate time to develop 100% final engineering and design. OCTA has been awarded grant funding of up to $2 million for the construction of the LPA but this falls significantly short of the amount that will be needed for construction. Both the City and OCTA are concurrently identifying additional funding needed for the construction of this project.
THE STUDY
The First Street Multimodal Boulevard Study is a comprehensive effort to re-envision approximately three miles of First Street from Bristol Street to Tustin Avenue as a safer, more accessible, and more equitable corridor for all users, including people walking, bicycling, riding transit, and driving. Initiated in May 2025, the Study responds to the City’s General Plan Mobility Element and community-identified needs to improve safety, reduce speed-related collisions, enhance access to transit, and better serve the corridor’s diverse and often vulnerable populations. The presentation is included as Exhibit 1.
The analysis, findings, and detailed technical documentation is summarized in a technical memorandum. The Technical Memorandum (Exhibit 2) documents existing conditions, traffic and safety analysis, equity assessment, community outreach, alternatives development, and evaluation of design concepts.
The Study corridor extends approximately three miles from Bristol Street to Tustin Avenue, crossing downtown Santa Ana, the railroad underpass, and the I-5 freeway interchange.
Figure 1: First Street Corridor
The Study evaluated existing conditions, conducted extensive technical analysis, and implemented a robust, multilingual community engagement process that reached more than 1,100 participants. Eight (8) initial multimodal options were developed and
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evaluated. Based on performance metrics, policy alignment, and community and stakeholder input, three concepts emerged as the most viable alternatives.
PROJECT BACKGROUND
The City of Santa Ana's First Street Multimodal Boulevard Study aims to transform and improve the First Street corridor between Bristol Street and Tustin Avenue for all modes of transportation. A multimodal street is one that balances the needs of all users, including people walking, biking, riding transit, and driving–while also functioning as a community space that supports social, economic, and environmental vitality. Boulevards and major streets like First Street play a vital role in cities, not only as conduits for mobility, but as central public spaces shared by residents, visitors, and people of all ages and abilities.
In 2022, the City adopted its updated General Plan Mobility Element, identifying First Street as a Pedestrian Opportunity Zone. This designation reflects the corridor’s importance as a place, not just a roadway, and its potential to support walking, bicycling, transit use, economic activity, and community life.
The First Street Multimodal Boulevard Study was initiated to:
Improve safety for vulnerable roadway users;
Reduce vehicle speeds and severe collisions;
Enhance pedestrian comfort, shade, and amenities;
Provide safe, connected bicycle facilities;
Improve transit performance and rider experience; and
Reconnect neighborhoods divided by wide roadway crossings.
Pedestrian Opportunity Zones are defined as an area that supports or should support high levels of pedestrian activity due to its proximity to activity centers, mixed-use development, and transit stops. These zones are intended to foster a walkable and vibrant public realm through improvements such as wider sidewalks, safer crossings, and an enhanced streetscape. Figure 2 shows examples of best street practices for pedestrian facilities. Vibrant urban boulevards with amenities and storefronts should have a minimum width of 15 feet. Urban streets with trees should have a minimum of 12 feet to still allow for comfortable pedestrian space. Streets with small trees and walk zones should have a minimum of 9 feet.
Figure 2: Best Street Practices
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EXISTING CONDITIONS AND KEY FINDINGS
A walk audit was conducted, along with traffic modeling, origin-destination travel pattern analysis, safety analysis, and an in-depth assessment of existing pedestrian, bicycle, and transit conditions to establish the existing conditions of the First Street corridor.
An equity assessment was also completed as part of this analysis. The following presents a high-level overview of the existing conditions analysis. Additional information, including methodology, data, and other detail can be found in the Technical Memorandum (Exhibit 2).
Key multimodal findings include:
Continuous sidewalks exist, but widths are often constrained and crossings are infrequent;
No continuous, protected bicycle facilities currently exist, resulting in widespread sidewalk riding;
Posted speeds of 40–45 mph are incompatible with the surrounding land uses and pedestrian activity;
Signalized crossings are spaced far apart, creating barriers between north–south neighborhoods;
Existing tree canopy is inconsistent with limited access to shade; Bus stops lack dedicated shelter lighting, wayfinding signage, and real-time arrival displays;
Pedestrian and bicycle crashes account for approximately 23% of all reported collisions—significantly higher than typical for similar arterials.
Figure 3: Key Findings
Key findings from the existing traffic operations analysis include:
Daily traffic volumes generally operate at level of service (LOS) C or better; Intersections operate at LOS D or better under existing conditions; Excessive speeds outside peak hours are common and strongly correlated with severe crashes.
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Per the City’s General Plan Mobility Element (Policy M-1.4, Motor Vehicle Level of Service), intersections of arterial streets shall maintain at least a LOS of D, except in areas planned for high intensity development or traffic safety projects.
EQUITY CONSIDERATIONS
The study area has higher than average rates of poverty, seniors living in poverty, renters who are cost-burdened, and residents with limited English proficiency. Travel behavior analysis shows high rates of walking and transit use, particularly among seniors and lower-income residents.
These findings underscore the importance of prioritizing safety, accessibility, and comfort for those who rely most on walking, bicycling, and transit.
COMMUNITY ENGAGEMENT
Robust community engagement was conducted from June 2025 through January 2026 using a multi-tiered strategy (Exhibit 3) that included:
In-person and virtual workshops;
Pop-up events at community festivals, events, and meetings; Surveys, dedicated project website, and online tools;
Stakeholder, agency, and interdepartmental meetings;
Community working groups and neighborhood association meetings; Spanish and Vietnamese interpretation.
More than 1,100 people and 35 community partners were engaged throughout the process. Across all phases, consistent priorities emerged:
Strong desire for protected bicycle facilities;
Wider sidewalks, additional and safer crossings, especially near schools and bus stops;
Improved bus stops, lighting, and shade;
Concerns about speeding and traffic safety;
Interest in designs that balance vehicle movement with safety and livability.
CONCEPT DEVELOPMENT
The following presents an overview of the breadth of options developed, including the top options that emerged through the process.
Initial Options
Twelve (12) multimodal design options were developed within the existing right-of-way, varying in:
Number of vehicle travel lanes;
Type and placement of bicycle facilities;
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Type, placement, and size of landscaped medians and buffers; Pedestrian zone width;
Transit treatments, including bus lanes.
Four (4) of the 12 options were ruled out due to either technical or operational infeasibility. As such, a total of eight (8) design options were presented at Workshop 2 and evaluated through technical analysis and a variety of public preference activities.
Based on evaluation results and the various public and stakeholder preference surveys, three (3) concepts advanced for detailed technical analysis and public review at Workshop 3. All concepts incorporate certain safety enhancements, including:
New signalized crossings. These four crossings are proposed at Shelton Street, Booth Street, west of Wright Street, and between Golden Circle Drive and Tustin Avenue. Each location would be equipped with a signal, high visibility markings and signage, and a paved area in the median as a refuge island. Tighter curb radii to slow turning vehicles. Most existing curb radii are 35 feet with some larger such as at the I-5 southbound ramps. For all City intersections, the curb radius is tightened to 25 feet, which slows the turning speed of vehicles making right turns and improves safety for pedestrians crossing the street. Intersection improvements. To improve travel time, improvements to intersections will include extending left-turn pockets in areas where queuing has the potential to block through traffic and the provision of new right-turn pockets at locations with high pedestrian and bicycle activity.
High-visibility crosswalks. At all signalized intersections and on STOP controlled side streets, high visibility bicycle crossing and crosswalks are recommended.
Continental style with high retro reflectivity is recommended for maximum visibility at night.
Improved street lighting. This includes evaluating the corridor to ensure minimum lighting requirements are met and adding pedestrian scale lighting within the pedestrian and bicycle zone.
Transit signal priority (TSP). Adding technology to the buses and to the traffic signal to help bus on-time performance is critical to improving access to transit.
The City will work with OCTA to identify the appropriate technology and implementation strategies.
Emergency Vehicle Preemption (EVP). All traffic signals will include GPS-based preemption technology to turn signals green for emergency vehicles and improve emergency response times.
Improved landscape and streetscape for the corridor. Street trees, low level landscape, drainage swales, and other treatments will be integrated to help reduce the heat envelope along the corridor and to capture urban run- off. Improved bus stops are also key to the overall corridor design. Creating a uniform plant palette and furniture design will create a cohesive feel and character along the corridor.
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CONCEPT OVERVIEW
The following presents an overview of the three (3) concepts that emerged as the top based on community input. Preferences for each of the three concepts were nearly equally distributed in terms of preference. Fact sheets for each concept are provided in Exhibits 4, 5, and 6.
Option 1: Multi-Use Path Concept
Maintains six vehicular travel lanes;
Introduces shared pedestrian/bicycle path on the south side at the sidewalk level, an additional one (1) to three (3) feet of width of the sidewalk on the south side only;
Sidewalk on the north side;
Maintains existing vehicle capacity but includes shared spaces. No changes to intersection levels of service, automobile/transit delay, or end-to- end travel times
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Option 2: Enhanced Pedestrian and Bicycle Zone Concept
Five travel lanes;
Separated, protected bicycle facilities at the sidewalk level on both sides; Wider sidewalks with landscape buffers between the bicycle lane and pedestrian walkway;
Reallocates one westbound travel lane to prioritize safety and comfort; Includes bus pull outs to maintain traffic flow;
Extends left-turn pocket lengths and introduces new right-turn pockets at intersections identified to have operational impacts;
Some traffic operational tradeoffs, but overall can be implemented without significant impacts to traffic.
oIntersections at Bristol, Flower, and Downtown Plaza experience slight increases to delay and level of service
o2 minutes, 14 seconds faster end-to-end travel time in eastbound direction during the AM peak hour
o30 second increase in end-to-end travel time in westbound direction during the AM peak hour
oNo change to end-to-end travel time in eastbound direction during the PM peak hour
o1 minute, 30 second increase in end-to-end travel time in the westbound direction during the PM peak hour
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Option 3: Bus Lanes and Bikeway Concept
Four general-purpose lanes plus dedicated transit-only bus lanes; Protected bicycle facilities on both sides;
Significant transit performance benefits;
Greatest potential mode shift but highest traffic operational tradeoffs. oIntersections at Bristol, Flower, Grand, and Lyon experience significant increases to delay and level of service
oLeft-turn queuing extends into the through lane at almost half the signalized intersections
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o49 second increase in end-to-end travel time for automobiles in the eastbound direction during the AM peak hour compared to a 3 minute, 39 second decrease in bus travel times
o1 minute, 48 second increase in end-to-end travel time for automobiles in the eastbound direction during the PM peak hour compared to a 4 minute, 4 second decrease in bus travel times
o27 second increase in end-to-end travel time for automobiles in the westbound direction during the AM peak hour compared to a 35 second increase in bus travel times
o3 minute, 1 second increase in end-to-end travel time for automobiles in the westbound direction during the PM peak hour compared to a 2 minute, 23 second increase in bus travel times
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Concepts East of Zoo Lane
For the eastern segment (I-5 to Tustin Avenue), a consistent four-lane configuration to match the existing cross-section of First Street within City of Tustin limits with expanded pedestrian and bicycle zones is proposed across all alternatives, building on a planned City rehabilitation project and Caltrans’ Freeway Ramp Active Mobility Enhancement Study (FRAMES) concept. This configuration is consistent with the vision and design standards included in the Metro East Mixed-Use Overlay Zone. The Fact Sheet for the East Side Concept is provided in Exhibit 7.
TRAFFIC EVALUATION OF CONCEPTS
Traffic modeling using VISSIM was conducted for opening year (2028) and design year (2048) conditions. Detailed traffic operational results are included in Exhibit 1.
Key findings include:
All concepts generally operate at acceptable levels of service in the opening year with targeted intersection improvements;
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Some intersections experience increased delay under lane-reduction scenarios, particularly near freeway ramps;
End-to-end travel times increase slightly under the five-lane concept and increase significantly under the four-lane concept;
East-side four-lane configuration operates acceptably in both opening and design years;
Long-term traffic patterns will be further evaluated in coordination with OCTA to account for potential traffic redistribution.
EVALUATION OF CONCEPT BENEFITS
Using the goals of this project, input and feedback from the community, and the technical analysis conducted to date, a comparison of the benefits for each concept was developed. The comparison (“Harvey Ball” rating) is based on how each concept improves conditions by mode compared to the existing conditions. The table below summarizes the results of this exercise (full shade = meets goal; not shaded = does not meet goal).
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NEXT STEPS
Staff will carefully review the analysis, findings, and community input and prepare a Final Technical Memorandum. Based on community input and technical analysis, staff will return to Council with a recommendation for selection of the Locally Preferred Alternative.
ENVIRONMENTAL IMPACT
There is no environmental impact associated with the action.
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FISCAL IMPACT
The City has secured grant funds for the design phase of the project only. Staff will coordinate with OCTA to identify funding strategies to potentially fund the construction of the Locally Preferred Alternative.
EXHIBIT(S)
1. Presentation
2. Technical Memorandum
3. Outreach and Engagement Fact Sheet
4. Option 1: Multi-Use Path Concept Fact Sheet
5. Option 2: Enhanced Pedestrian and Bicycle Zone Concept Fact Sheet
6. Option 3: Bus Lane and Bike Lane Concept Fact Sheet
7. East Side Concept Fact Sheet
Submitted By: Rodolfo Rosas, P.E., Acting Executive Director – Public Works Agency Approved By: Alvaro Nuñez, City Manager