Public Works Agency
www.santa-ana.org/pw
Item # 12
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
May 5, 2026
TOPIC: Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study
AGENDA TITLE
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study
RECOMMENDED ACTION
Select Option 2 – Enhanced Bicycle and Pedestrian Zone Concept as the Locally Preferred Alternative for the First Street Multimodal Boulevard Study and direct staff to advance this concept into final engineering and design.
GOVERNMENT CODE §84308 APPLIES: No
DISCUSSION
EXECUTIVE SUMMARY
Improving the safety, accessibility, and reliability of the City’s major arterials for multimodal transportation is a critical mobility and safety imperative. These key arterials service some of the highest ridership bus routes in the County. A contributing factor in the high utilization of public transit and other transportation modes such bicycling and walking is fifty-five (55) percent of city residents do not have access to a private vehicle.
First Street, from Bristol Street to Tustin Avenue, is one of the City’s most critical multimodal corridors, serving approximately 36,000 vehicles, 2,900 daily transit boardings, over 1,300 pedestrians, and more than 250 bicyclists each day. For comparison purposes, Harbor Boulevard, also a six-lane roadway, carries about 49,000 vehicles per day with similar transit, bicycle, and pedestrian activity.
The First Street multimodal corridor experiences a collision rate over two times the national average for similar roads. Speed has been a primary contributing factor in many of these incidents, with higher vehicle speeds directly correlating to increased severity and lower survivability.
In response, the First Street Multimodal Boulevard Study evaluated options to transform approximately three miles of the corridor from a car centric to a multimodal corridor.
This effort was informed by detailed technical analysis and an extensive, 6-month
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
multilingual community engagement process that reached over 1,100 participants and generated more than 10,000 unique online interactions.
Based on this work, staff recommends that City Council select Option 2, Enhanced Bicycle and Pedestrian Zone Concept as the Locally Preferred Alternative (LPA). Option 2 introduces a five-lane configuration that reduces crossing distances, incorporates separated bikeways on both sides of the street at sidewalk level, and provides wider sidewalks to enhance pedestrian comfort. The concept also includes key operational improvements such as Transit Signal Priority (TSP) and GIS-based Emergency Vehicle Preemption (EVP).
Option 2 represents the most balanced and implementable solution. It directly addresses community traffic safety concerns while maintaining optimal vehicular traffic operations and supporting existing transit service. It is also consistent with the City’s General Plan Mobility Element, Vision Zero Action Plan, and the designation of First Street as a Pedestrian Opportunity Zone.
By contrast, Option 1 largely maintains the existing six-lane configuration and prioritizes vehicular travel time, resulting in only marginal improvements for pedestrians and bicyclists despite requiring full roadway reconstruction. It does not meaningfully address the corridor’s safety concerns for non-motorists.
Option 3, while offering a more transformative approach with dedicated transit emphasis, would significantly increase vehicular travel times, reduce landscaping opportunities, and rely on increased transit service that the Orange County Transportation Authority (OCTA) has confirmed is not currently planned. As a result, its benefits cannot be fully realized.
Selection of an LPA at this time will allow the City and OCTA to complete final design plans, specifications, and engineering estimates by the December 2026 grant deadline and position the project to competitively pursue construction grant funding. At present, construction funding has not been secured, and implementation will be contingent upon future grant awards. Construction costs are estimated to be approximately $45 million.
Due to the reliance on securing grant funds and timelines related to the grant process, Staff estimates that construction would not commence until 2028, at the earliest, and in all cases would be scheduled to not commence until other major corridor projects such as Bristol Street widening and Warner Avenue widening are completed.
BACKGROUND
First Street, from Bristol Street to Tustin Avenue, is a six-lane arterial that serves as a major east-west transportation corridor but functions as a connection barrier between neighborhoods to the north and south of the corridor. The section of First Street between Standard Avenue and Grand Avenue is four lanes, constrained by the Metrolink overcrossing. The street is reduced to five lanes from Golden Circle Drive to the City’s eastern border with the City of Tustin (“Eastern Segment”). While it Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
accommodates a high volume of pedestrians, bicyclists, students, seniors, and transit riders, the corridor’s existing design prioritizes vehicular throughput.
Existing conditions include high vehicle speeds, long pedestrian crossing distances, limited shade, infrequent protected crossings, and the absence of continuous bicycle facilities. These factors limit its effectiveness as a multimodal corridor and as a connection for neighborhoods to the north and south of the corridor.
In 2022, the City Council adopted the updated General Plan Mobility Element, which designates First Street as a Pedestrian Opportunity Zone and calls for rebalancing the corridor to better support walking, bicycling, and transit. The First Street Multimodal Boulevard Study was approved by Council in May 2025 to identify an LPA that advances these policy objectives while remaining feasible within the existing right-of- way.
Figure 1: First Street Corridor
EVALUATION OF ALTERNATIVES
From the original 12 concepts, three viable alternatives were advanced for detailed evaluation. The three viable alternatives are as follows:
Option 1 – Multi-Use Path Concept: Maintains six travel lanes and relies on shared pedestrian and bicycle space on one side of the corridor. This approach limits safety and comfort for both user groups and does not substantively improve corridor conditions.
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
Option 2 – Enhanced Bicycle and Pedestrian Zone Concept: Introduces a five-lane configuration with separated bikeways, wider sidewalks, and reduced crossing distances. It significantly improves safety and comfort while maintaining acceptable traffic performance.
Option 3 – Bus Lanes and Bikeway Concept: Prioritizes transit but results in substantial increases in vehicle delay, potential traffic diversion, and implementation challenges. Its effectiveness is constrained by the absence of planned transit service increases.
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
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 the City of Tustin limits, with expanded pedestrian and bicycle zones, is proposed across all alternatives. This concept builds on Caltrans’ Freeway Ramp Active Mobility Enhancement Study (FRAMES) concept on First Street between Zoo Lane and Cabrillo Park Drive and is consistent with the vision and design standards included in the Metro East Mixed-Use (MEMU) Overlay Zone.
COMMON ELEMENTS ACROSS ALL ALTERNATIVES
All alternatives evaluated in the First Street Multimodal Boulevard Study share a common set of baseline improvements and design treatments intended to maximize safety, accessibility, and travel experience for all users and abilities along the corridor.
These elements were consistently supported through technical analysis and community feedback and would be incorporated into the final design under any LPA. Common components include:
New and enhanced pedestrian crossings, including additional signalized and controlled mid-block crossings.
Shorter and safer intersection crossings, achieved through tighter curb radii, median refuges, and improved crossing geometry.
ADA-compliant curb ramps and accessible pathways at intersections and crossings.
Pedestrian-scale lighting along sidewalks and at crossings to improve visibility and safety.
Street trees and landscaping to increase shade, improve comfort during extreme heat, and enhance the overall streetscape.
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
High-visibility crosswalk markings and upgraded signage to improve pedestrian safety.
Transit Signal Priority (TSP) to improve bus reliability and on-time performance. GPS-based Emergency Vehicle Preemption (EVP) for improving response times. Upgraded bus stop amenities, including improved accessibility and lighting. Corridor beatification including sustainable, native, and aesthetically-pleasing trees, wayfinding, and landscaping, making the corridor inviting for businesses and residents.
These shared elements establish a consistent foundation for user safety and accessibility, while the individual concepts differ in how travel lanes, pedestrian and bicycle facilities, and transit treatments are configured.
COMMUNITY ENGAGEMENT AND FEEDBACK
The City conducted an extensive outreach effort from August through December 2025, including workshops, neighborhood meetings, pop-up events, surveys, and digital engagement that included:
A dedicated project website,
3 multiday in-person workshops at the Roosevelt-Walker Community Center, 11 neighborhood meetings,
10 pop-up events,
In-person outreach was augmented with a robust digital campaign, resulting in one virtual workshop, over 3,000 website views, 8,584 unique social media interactions and impressions, 521 online survey responses, and two YouTube informational videos with 875 views,
Coordination with more than 35 community-based organizations and stakeholders, and
Outreach also included both internal and external agencies such as the Orange County Fire Authority, Santa Ana Police Department, and City of Tustin.
This effort reached a broad cross-section of the community and generated consistent feedback. Key themes included:
Strong support for safer walking and bicycling conditions Preference for physically separated bicycle facilities Desire for shorter and more frequent crossing opportunities Support for traffic calming balanced with concerns about congestion Interest in additional shade, landscaping, and improved bus stop amenities Among the alternatives presented, Option 2 emerged as the preferred concept, as it most effectively balances safety, accessibility, and traffic operations while aligning with community priorities and City policy goals.
WORK STUDY SESSION
On February 17, 2026, the City Council held a Work Study Session to review the study’s findings, including existing conditions, community outreach results, and the Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
development of design alternatives (Exhibit 1). Staff presented how an initial set of 12 concepts was systematically refined to three viable alternatives through a structured process incorporating technical analysis, stakeholder coordination, community input, and policy alignment.
The Work Study Session provided an opportunity for City Council to review the data- driven and community-informed approach and to offer direction prior to staff advancing a recommended LPA. This staff report reflects that input and represents the next step in the decision-making process. The staff report and corresponding presentation from the February 17, 2026, City Council meeting are provided as Exhibit 2.
During that discussion, City Council provided valuable feedback and requested additional information on several key topics, including the community engagement process and specific feedback received, how that input was used in developing the concepts, OCTA support/preferences, cost implications, the potential for partnerships with UC Irvine’s Playful Learning Landscapes, greenhouse gas emission reductions, and the applicability of policies such as Assembly Bill 43 (AB 43, lowering speed limits).
Key findings and updates include:
Concept Development: Community preferences, specific and actual feedback (including survey results) is included in Exhibit 3, Outreach Summary Report.
The three final concepts are the direct result of a structured, iterative planning process that integrated Technical feasibility analysis, Community outreach and preference surveys, and policy alignment (Adopted General Plan Mobility Element and Vision Zero).
OCTA Coordination: OCTA has confirmed there are no plans to increase bus service along the corridor, which is a critical factor in evaluating Option 3 (Exhibit 4).
Costs: All alternatives require significant investment and will depend on grant funding for construction. Rough order of magnitude costs are as follows:
oOption 1 ~ $41.3M
oOption 2 ~ $45.1M
oOption 3 ~ $37.8M
Public Education: Opportunities to incorporate innovative bus stop design, including educational and community-serving elements (such as partnerships with institutions like UCI), will be explored further and incorporated during the design phase.
Route 64 Transit Users: Approximately 76% of riders utilize OCTA’s Route 64 for destinations within the City, concentrated around the Downtown, Santa Ana High School, Downtown commercial plaza, and the Zoo.
Greenhouse Gas Reduction: Option 2 provides the greatest opportunity to reduce emissions by enabling meaningful mode shift through improved walking, biking, and transit conditions.
Speed Management: Data collected supports potential speed limit reductions under AB 43, with all options incorporating design features to reduce vehicle speeds.
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
STAFF RECOMMENDATION AND NEXT STEPS
Staff recommends approval of Option 2 – Enhanced Bicycle and Pedestrian Zone Concept as the Locally Preferred Alternative.
This option delivers optimal safety design features, particularly for pedestrians and bicyclists, through reduced crossing distances, separated facilities, and traffic calming measures. It maintains compatibility with existing transit operations while enhancing reliability through signal priority improvements. Importantly, it achieves these benefits without requiring right-of-way acquisition or reliance on external service changes.
Compared to the other alternatives, Option 2 provides the greatest overall benefit with manageable trade-offs, including a modest increase in travel time of approximately 1.5 minutes in the westbound direction. It represents a practical, balanced solution that advances the City’s Vision Zero goals, supports multimodal mobility, and reflects both community input and technical analysis.
Selection of an LPA at this time will allow the City and OCTA to complete final design plans, specifications, and engineering estimates by the December 2026 grant deadline and position the project to competitively pursue construction funding. Construction funding pursued will include, but not be limited to, the Transit Rail and Intercity Rail Capital Program (TIRCP) through CalSTA, the FY26 Safe Streets and Roads for All (SS4A) grant program from the US Department of Transportation, and Caltrans’ Active Transportation Program (ATP), Local Partnership Program (LPP), and Solutions for Congested Corridors Program (SCCP).
At present, construction funding has not been secured, and implementation will be contingent upon future grant awards. Construction costs are estimated to be approximately $45 million. Due to the reliance on securing grant funds and timelines related to the grant process, Staff estimates that construction would not commence until 2028, at the earliest, and in all cases would be scheduled to not commence until other major corridor projects such as Bristol Street widening and Warner Avenue widening are completed.
ENVIRONMENTAL IMPACT
There is no environmental impact associated with the action. Staff will return in the future for Council approval of environmental clearance in accordance with CEQA when project plans are completed for the selected Locally Preferred Alternative.
FISCAL IMPACT
Planning, environmental clearance, and final engineering for the selected LPA are fully funded through the REAP 2.0 grant, which expires in December 2026. With Council’s selection of the LPA, staff will begin seeking grant opportunities to fund the construction of the LPA.
Select Locally Preferred Alternative for the First Street Multimodal Boulevard Study May 5, 2026
5 7
4 4
EXHIBIT(S)
1. Technical Memorandum
2. February 17, 2026 Staff Report and Presentation
3. Outreach and Engagement Summary Report
4. OCTA Memorandum
Submitted By: Rodolfo Rosas, P.E., Acting Executive Director – Public Works Agency Approved By: Alvaro Nuñez, City Manager