Public Works Agency
www.santa-ana.org/pw
Item # 15
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
April 21, 2026
TOPIC: Agreements with Union Pacific Railroad Company for Railroad Crossing Improvements on Warner Avenue and McFadden Avenue
AGENDA TITLE
Agreements with Union Pacific Railroad Company for Improvements to the Railroad Crossings on Warner Avenue (Project 18-6901) and McFadden Avenue (Project No. 20- 6962) (General Fund)
RECOMMENDED ACTION
1. Approve an appropriation adjustment recognizing $8,570 in prior-year fund balance in the Transportation System Improvements Area D, Prior Year Carry Forward revenue account and appropriate the same amount into the Transportation System Improvements Area D, Improvements Other Than Buildings expenditure account (Requires five affirmative votes).
2. Approve an appropriation adjustment recognizing $531,000 in prior-year fund balance in the Residential Street Improvements, Prior Year Carry Forward revenue account and appropriate the same amount into the Residential Street Improvements, Improvements Other Than Buildings expenditure account (Requires five affirmative votes).
3. Approve an appropriation adjustment recognizing $936,955 in prior-year fund balance in the Select Street Construction, Prior Year Carry Forward revenue account and appropriate the same amount into the Select Street Construction, Improvements Other Than Buildings expenditure account (Requires five affirmative votes).
4. Approve an appropriation adjustment recognizing $776,858 in prior-year fund balance in the Measure M Street Construction, Prior Year Carry Forward revenue account and appropriate the same amount into the Measure M Street Construction, Improvements other than Buildings expenditure account (Requires five affirmative votes).
Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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5. Approve an amendment to the Fiscal Year 2025-2026 Capital Improvement Program to include an additional $2,253,383 for the Railroad Crossings on Warner Avenue (Project 18-6901) and McFadden Avenue (Project No. 20-6962).
6. Authorize the City Manager to execute an agreement with Union Pacific Railroad Company for improvements to the railroad crossing (DOT No. 761248L) on Warner Avenue for construction costs of $1,422,270, additional railroad right-of- way costs of $53,570 including an annual signal maintenance fee of $12,580, effective three years from agreement effective date. (Agreement No. A-2026- XXX).
7. Authorize the City Manager to execute an agreement with Union Pacific Railroad Company for improvements to the railroad crossing (DOT No. 761245R) on McFadden Avenue for construction costs of $776,858, additional railroad grant rights costs of $33,350 including an annual surface maintenance fee of $3,332, effective three years from agreement effective date. (Agreement No. A-2026- XXX).
8. Determine that, pursuant to the California Environmental Quality Act, the recommended actions are exempt from further review. Categorical Exemption Environmental Review Nos. ER-2026-XX and ER-2026-XX will be filed for Project Nos.18-6901 and 20-6962.
GOVERNMENT CODE §84308 APPLIES: Yes
DISCUSSION
Railroad Crossing Improvements
Union Pacific Railroad (UPR) operates several railroad crossings throughout the City of Santa Ana. The City is responsible for maintaining roadway approaches and related surface improvements adjacent to these crossings within the public right-of-way per California Public Utilities Commission (CPUC) General Order 72-B. When the City undertakes roadway maintenance or capital improvement projects near railroad crossings, staff must coordinate with Union Pacific and the California Public Utilities Commission (CPUC), the State agency that regulates railroad crossings, to review and approve proposed improvements.
Under current CPUC General Order 88-B, railroad companies are not required to install or fund safety improvements associated with local street projects if the railroad has prior rights. As a result, when City initiates roadway widening, safety enhancements, or multimodal improvements that affect railroad crossing infrastructure, the City is responsible for funding the required modifications within the railroad right-of-way.
Accordingly, the City must enter into agreements with Union Pacific to complete the necessary improvements and reimburse the railroad for the associated costs.
Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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Although these improvements are required to accommodate the City’s roadway projects, they also provide significant public benefits by improving crossing safety, enhancing ride quality, and reducing long-term maintenance needs. The proposed upgrades are consistent with adopted City transportation and mobility planning documents and will enhance safety for motorists, pedestrians, and bicyclists.
Warner Avenue Improvements
The Warner Avenue Widening and Protected Bike Lane Project was identified in several City Council-approved planning documents, including the Safe Mobility Santa Ana Plan (SMSA), the State Active Transportation Program (ATP), and the Central Santa Ana Complete Streets Plan (CSACS). The project includes bicycle and pedestrian improvements associated with the widening of Warner Avenue from four to six lanes, as well as landscaping, street lighting, traffic signal upgrades, storm drain improvements, and new curb, gutter, sidewalk, and pavement. The project also includes railroad grade crossing improvements designed to enhance safety, improve crossing conditions, provide traffic calming, and ensure compliance with the Americans with Disabilities Act (ADA).
Construction of the project is scheduled for City Council consideration on April 21, 2026, with construction anticipated to begin in summer 2026. Within the project limits is an at- grade railroad crossing on Warner Avenue east of Standard Avenue (Exhibit 1). City staff met with representatives from Union Pacific and the CPUC to review the existing crossing conditions and evaluate necessary improvements.
Due to the planned widening of Warner Avenue to a six-lane arterial roadway with bicycle facilities, the City must acquire additional railroad right-of-way and reconstruct the existing crossing to meet current design standards. The crossing will require full replacement with concrete panels and upgraded signal equipment.
Under existing maintenance responsibilities per CPUC General Order 72-B, the City maintains the roadway approaches within the City right-of-way, while Union Pacific maintains the railroad signals and pavement within the railroad right-of-way. To improve long-term durability and reduce maintenance requirements, Union Pacific has agreed to replace the existing crossing with concrete panels and upgrade the railroad signal crossing gates. Because these improvements occur within railroad right-of-way and are required to accommodate the City’s roadway project, the City is responsible for funding the work per CPUC General Order 88-B.
The proposed agreement (Exhibit 2) requires the City to reimburse Union Pacific for the installation of concrete panels and upgrades to the railroad signal crossing gates. Union Pacific has provided cost estimates for the improvements and the City’s share of project costs includes:
Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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$53,570 for railroad right-of-way acquisition
$12,580 in annual signal maintenance costs
Construction improvements estimated at $1,422,270
These improvements will support the Warner Avenue widening project and ensure compliance with the requirements of the State’s Active Transportation Program grant.
Upon completion, the upgraded crossing will provide a smoother and safer crossing for pedestrians, bicyclists, and motorists.
Staff recommends approval of the proposed agreement with UPR for the Warner Avenue crossing improvements.
McFadden Avenue Improvements
The McFadden Avenue Improvement Project was also identified in the City Council- approved Safe Mobility Santa Ana Plan (SMSA), Active Transportation Program (ATP), and Central Santa Ana Complete Streets Plan (CSACS). The project includes bicycle and pedestrian improvements, landscaping, lighting, traffic signal upgrades, and new curb, gutter, sidewalk, and pavement improvements. The project also includes railroad grade crossing improvements designed to enhance safety, improve crossing conditions, provide traffic calming, and install new ADA-compliant sidewalks. These improvements will improve safety for students walking to Kennedy Elementary School.
Construction of this project was awarded in September 2024 and is currently underway.
Within the project limits is an at-grade railroad crossing on McFadden Avenue east of Standard Avenue, which is currently in poor condition (Exhibit 3). City staff met with representatives from Union Pacific and the CPUC to evaluate the crossing and determine the necessary improvements. The existing crossing consists of asphalt pavement on the roadway approaches and between the rails. Historically, this type of crossing requires frequent maintenance to maintain a smooth roadway transition through the crossing.
Under existing maintenance responsibilities per CPUC General Order 72-B, the City maintains the roadway approaches within the City right-of-way, while Union Pacific maintains the railroad signals and pavement within the railroad right-of-way. To improve long-term performance and reduce maintenance requirements, Union Pacific has agreed to replace the existing asphalt crossing with concrete panels and upgrade the railroad signal crossing gates. Because the improvements occur within railroad right-of- way and are necessary to support the City’s street improvements, the City is responsible for funding the work per CPUC General Order 88-B.
The proposed agreement (Exhibit 4) requires the City to reimburse Union Pacific for installation of the concrete crossing panels and signal upgrades. Union Pacific has Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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provided cost estimates for the improvements and the City’s share of the improvements shall not exceed $776,858, which includes construction costs as well as ongoing annual signal and surface maintenance costs payable to Union Pacific. Upon completion, the upgraded crossing will provide a smoother, safer, and more durable crossing for pedestrians, bicyclists, and motorists.
Staff recommends approval of the proposed agreement with UPR for the McFadden Avenue crossing improvements.
Public Outreach
The Contractor shall conduct weekly meetings with City construction staff to review traffic control plans and lane closures for each phase of the project. Railroad crossing construction activities will typically be scheduled during weekends to minimize impacts to the community. Union Pacific Railroad (UPRR) staff will coordinate with the City on the scheduling of all railroad-related work. The Contractor shall also install and maintain message boards along the roadway to inform the public of upcoming lane closures and construction activities.
As part of standard community outreach practices, during the project design phase, staff coordinated with affected neighborhoods, schools, and businesses to present the project and collect community input. Upon Council approval of recommended actions, prior to start of construction, staff will notify affected neighborhoods, schools, and businesses of upcoming construction and distribute informational material including who to contact for additional information or to address issues of concern.
To ensure timely and effective communication, the following notification measures will be implemented prior to the start of construction:
Electronic message signs will be installed two weeks in advance of construction activities to provide early notice of the project’s start date, A project information sign will be posted at the construction site, including contact information for public inquiries,
Residents and businesses within 1,000 feet of the project limits will receive door hanger or mailed notifications at least two weeks before construction begins, A second round of notification will be issued 48 hours prior to the start of construction to residents and business adjacent to the limits of work, and The City will also disseminate information through its official website and social media platforms to keep the public informed of construction activities, including any lane closures.
The Contractor is required to issue construction notices to adjacent residents and businesses at least two weeks before construction begins. Additionally, the contractor is required to install signage at the project site indicating project details and contact information.
Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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ENVIRONMENTAL IMPACT
On September 1, 2015, City Council approved the Warner Avenue Final Environmental Impact Statement (EIR) (SCH No. 2012101004). The Warner Protected Bike Lanes Project received Caltrans approval under the National Environmental Policy Act (NEPA); a Categorical Exemption (CE) was approved on December 30, 2019. Caltrans revalidated the NEPA/CEQA document on May 27, 2025.
Staff filed Categorical Exemptions Sections 15301(c) and 15304(h) have been recorded with the Orange County Clerk-Recorder Department, as Environmental Review No. ER- 2020-97 for the McFadden Avenue Protected Bike Lane Project improvements project document on November 25, 2020.
The proposed Projects are exempt from further environmental review under Warner EIR and McFadden CEQA. This exemption applies when a previously certified Warner EIR and McFadden CEQA has adequately analyzed the environmental effects of an activity, and no new significant impacts would result from the proposed Project. If the proposed Project remains within the scope of the Warner EIR and McFadden CEQA and does not require a subsequent Environmental Impact Report (EIR), no additional environmental documentation is required. Therefore, a Notice of Exemption, Environmental Review No. 2026-XX for Warner and 2026-XX for McFadden, will be filed for the Projects. (Exhibit 5).
FISCAL IMPACT
With the approval of the requested appropriation adjustments, all funds will be available for expenditure in Fiscal Year 2025-26. Any remaining balances not expended at the end of the fiscal year will be presented to City Council for approval of carryovers into Fiscal Year 2026-2027.
With the approval of the requested appropriation adjustments, $776,858 of the Measure M-Street Construction accumulated fund balance will be appropriated for spending in the Measure M2 Local Fairshare St, Improvements Other Than Buildings expenditure account (No. 03217662-66220).
A portion of the Transportation System Improvement Area D accumulated fund balance will be appropriated for spending in the Transportation System Improvement Area D, Improvements Other Than Buildings expenditure account (No. 04417660-66220). The spendable portion of the fund balance is estimated to be $8,570 as of June 30, 2026, which is sufficient to allow for the recommended appropriation of $8,570.
A portion of the Residential Street Improvements accumulated fund balance will be appropriated for spending in the Residential Street Improvements, Improvements Other Than Buildings expenditure account (No. 05817660-66220). The spendable portion of Agreement for Railroad Crossing Improvements to Warner Avenue and McFadden Avenue
April 21, 2026
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the fund balance is estimated to be $3,631,793 as of June 30, 2026, which is sufficient to allow for the recommended appropriation of $531,000.
A portion of the Select Street Construction accumulated fund balance will be appropriated for spending in the Select Street Construction, Improvements Other Than Buildings expenditure account (No. 05917666-66220). The spendable portion of the fund balance is estimated to be $3,138,301 as of June 30, 2026, which is sufficient to allow for the recommended appropriation of $936,955.
Fiscal
Year
Accounting
Unit – Account
No.
(Project No.)
Fund Description Accounting Unit,
Account Description Amount
APPROPRIATION ADJUSTMENT
2025-26 03217662-66220
(20-6962)
Measure M-Street
Construction
Measure M2 Local
Fair Share,
Improvements Other
Than Buildings
$776,858
2025-26 04417660-66220
(18-6901)
Transportation
System
Improvements Area
D
Transportation
System
Improvements Area
D, Improvements
Other Than Buildings
$8,570
2025-26 05817660-66220
(18-6901)
Residential Street
Improvements
Residential Street
Repair, Improvements
Other Than Buildings
$531,000
2025-26 05917666-66220
(18-6901)
Select Street
Construction
Select Street
Construction,
Improvements Other
Than Buildings
$936,955
TOTAL $2,253,383
EXHIBIT(S)
1. Location Map – Warner Avenue
2. Agreement with Union Pacific Railroad Company - Warner Avenue Crossing
3. Location Map – McFadden Avenue
4. Agreement with Union Pacific Railroad Company - McFadden Avenue Crossing
5. Environmental Determination
6. Capital Improvement Project Worksheets
Submitted By: Rodolfo Rosas, P.E., Acting Executive Director of Public Works Agency Approved By: Alvaro Nuñez, City Manager