HomeMy WebLinkAboutItem 19 - City Council Work Study Session Regarding the First Street Multimodal Boulevard Study Public Works Agency
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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.
o Intersections at Bristol, Flower, and Downtown Plaza experience slight
increases to delay and level of service
o 2 minutes, 14 seconds faster end-to-end travel time in eastbound direction
during the AM peak hour
o 30 second increase in end-to-end travel time in westbound direction
during the AM peak hour
o No change to end-to-end travel time in eastbound direction during the PM
peak hour
o 1 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.
o Intersections at Bristol, Flower, Grand, and Lyon experience significant
increases to delay and level of service
o Left-turn queuing extends into the through lane at almost half the
signalized intersections
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o 49 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
o 1 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
o 27 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
o 3 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
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 1
First Street Multimodal Boulevard Study
Work Study Session
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 2
Why First Street?
Citywide Statistics
•55% of population with no access to a private vehicle1
•21,916,743 combined bus boardings and alightings2
•Over 17,000 daily bicycle trips and 53,000 daily pedestrian trips3
1 US Census Bureau, 2018 American Community Survey, Means of Transportation
2 OCTA Bus Ridership by City, Santa Ana 2024
3 Santa Ana Bicycle and Pedestrian Master Plan, 2012 (extrapolated to 2024)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 3
Why First Street?
First Street Corridor Statistics
250+ Bikes per Day
85% on Sidewalk
*All data collected in March 2025
20,000 to 36,000
vehicles per day
Up to 2,900
Daily Boardings
1,300+ Pedestrians
per Day
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 4
Why Improve First Street? Why First Street?Collision Data
Comparison of Collision Data on Streets with Similar Volumes (2022-2025)
6 fatalities
2 fatalities
Location Total collisions Total Injured
Average number of days between collisions
Average number of days between injuries Ped/Bike Ped/Bike Injury
1st from Bristol to Standard 323 249 1.13 1.47 38 33
Harbor from McFadden to Westminster 211 142 1.73 2.57 28 22
17th from Santiago to Tustin 154 121 2.37 3.02 22 21
An average of 1 collision every 27 hours
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 5
Travel Experience on First Street
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 6
Existing Environment on First
•6 Lanes
•16 Traffic Signals
•Signals are Coordinated
•Routes 65
•12 Stops (each direction)
•No Transit Signal Priority
•9-10' Sidewalks
•Controlled Crossings Only at Signals
•84' to Cross First
•No Existing Bicycle Facilities
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 7
Vulnerable Populations
Senior Population Student Population
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 8
Existing Sidewalks
Narrow Sidewalks Curb Ramps
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 9
Pedestrian Exposure
Up to 1/2 Mile Between Marked Crosswalks Up to 82 Feet Across First Street
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 10
Traffic Flow
Buses Block Lane Left Turn Pocket Queue
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 11
Bus Stops & Lighting
Bus Stop Safety & Access Lack of Lighting
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 12
Pedestrian & Bicycle Safety
Bicycles on Sidewalk E-bikes
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 13
Project Background
•Funded through REAP 2.0 grant administered by OCTA and SCAG
•Grant focuses on improving access for low-income housing through improved multimodal options within existing right-of -way
•Scope includes existing conditions assessment, community engagement, alternatives analysis, feasibility studies, and 100% design of the Locally Preferred Alternative
•December 2026 grant deadline, condensed schedule
•HDR Inc., a global traffic engineering and transportation planning firm, was awarded contract in May 2025
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 14
Project Goal
The project's goal is to improve the travel environment along First Street and connect people to places through a variety of reliable, safe, and affordable travel options.
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 15
Comprehensive Data Collection
Traffic/Bike/Ped Counts Field Visit LiDar Survey
Traffic Modeling Bus Rider Experience Equity Studies
Walk Audit
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 16
Safety Assessment
–Long distance between marked / controlled crosswalks across First Street
–High traffic speed
–Visibility (lighting and at intersections)
–Absence of or discontinued bike facilities
–Pedestrian signal violation
CATEGORY
NUMBER OF REPORTED CRASHES IN YEAR
TOT
AL
%
SHA
RE20172018201920202021202220232024
CRASH SEVERITY
[PEDESTRIAN-INVOLVED]
Fatal Injury 0 1 1 1 2 0 1 0 6 10.7%
Severe Injury 1 1 0 0 2 1 2 2 9 16.1%
Minor Injury 5 3 0 0 5 4 8 2 27 48.2%
Complaint of Pain 4 1 0 0 1 1 4 3 14 25.0%
All Reported Crashes 10 6 1 1 10 6 15 7 56 -
CRASH SEVERITY [BICYCLE-
INVOLVED]
Fatal Injury 0 0 0 0 1 1 0 0 2 3.9%
Severe Injury 0 0 0 0 1 0 0 0 1 1.9%
Minor Injury 5 0 0 0 1 8 6 4 24 46.2%
Complaint of Pain 4 3 0 0 3 6 1 8 25 48.1%
All Reported Crashes 9 3 0 0 6 15 7 12 52 -
Source: Statewide Integrated Traffic Records System (SWITRS), 2017-
2024
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 17
Posted Speed vs. Observed Speed
85th Percentile Speeds
43 to 46 mph
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 18
Survival Rates by Age and Speed
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 19
Directional Volume and CapacityExisting Daily Traffic Volumes
0
5,000
10,000
15,000
20,000
25,000
Baker to
Shelton
Parton to
Ross
West of
Spurgeon
East of
Garfield
Standard to
Grand
West of
Wright
West of
Cabrillo Park
Drive
Golden
Circle toTustinAvenueEastboundWestbound
3 lanes
2 lanes(16,900)
(25,300)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 20
Benefits & Trade-Offs Analysis (3)
Community Workshop 2
Community Workshop 1
Existing Conditions Analysis
Community Workshop 3
Narrow to 8 Options
Technical Analysis
Feasibility Assessment
Present Options to Stakeholders
Identify Potential Options
Identify Issues
Identify 3 Potential Concepts
Initial Benefits & Trade Offs Analysis (8)
Workshops Held at Roosevelt-Walker Community Center
DataCollectionField Walk
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 21
How people use First Street today,and
the improvements that would make it
safer and more comfortable to travel.
What we heard:
•Need for safer walking and biking
access
•Missing crosswalks in several
locations
•Mixed feedback on adding bike
lanes
•Interest in improved sidewalk
amenities (bus stops, lighting,
shade)
•Concerns about peak-hour traffic
increases
Reviewed eight preliminary design
alternatives developed from community
input, technical analysis, and feedback
from the virtual survey. What we heard:
•Preference for six-, five-, and four-
lane travel lanes, with bus lane
options.
•Protected bike paths from street
traffic and transit signal priority at
intersections
•More shade trees and landscape
areas
•Mid-block-controlled crossings to
reduce jaywalking and improve
pedestrian access
•Need for sidewalk safety and street
lighting improvements
Reviewed three redefined design
concepts developed from community
input, technical analysis, and a virtual
poll. What we heard:
•Support for a design that
balances traffic with safety,
accessibility, and environmental
enhancements
•Urgency for pedestrian and
bicyclist safety, calling for raised
crosswalks, protected
intersections, complete
sidewalks, and fully separated
bike paths
•Travel congestion concerns and
mixed support on reducing
travel lanes
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 22
Community Input Summary
•Safety
•Lighting
•Landscaping
•Bikes in Dedicated Space
•Traffic Flow
•Existing Bus Stop Safety
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 23
In-Person Touch Points
Workshops –185 participants
Workshop Series #1 (one in person, one
virtual)
36 people, 102 comments
Workshop Series #2 (two in person, 3
hours each)
67 people, 88 comments
Workshop Series #3 (two in person, 2
hours each)
82 people, 237 comments
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 24
In-Person Touch Points
Pop Up Events
•Jim Rodeo (Jim Thorpe Elementary School)
•Fiestas Patrias
•SEVA Food Pantry Drive Thru (2)
•Chicano Heritage Festival
•Latino Health Access Senior Group
•Walk to School Day
•Santa Ana High School Youth Club Meeting
•Santa Ana College Career Fair
•ATP Mixer
•Coffee with the Mayor
•Faith Leaders Meeting
•Neighborhood Association Leadership Meeting
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 25
In-Person Touch Points
Neighborhood Association Meetings (11)
•Artesia Pillar (1)
•Downtown, Flower Park, and Artesia Pillar Combined (1)
•Heninger Park (2)
•Pacific Park (3)
•Pico Lowell (1)
•Saddleback View & Zoo District Combined (1)
•Willard (1)
•Valley Adams, Centennial Park, Laurelhurst, and Shadow
Run (1)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 26
Online Participation
Website
3,180 visits –Aug 2025 to Present
English –2,091
Spanish -552
Vietnamese -537
Online Surveys
521 Responses
Q&A Survey (2 weeks, Sept 2025)
First Street issues, challenges
feedback
•Responses: 120
Video with Design Options
Survey (1 month, Oct 2025)
Feedback on eight design options
•Responses: 207
•Comments: 194
Social Media
8,584 unique
interactions
and impressions
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 27
Focused Meetings
Stakeholders (28)
•City of Santa Ana
•City of Tustin
•County of Orange
•Caltrans
•OC Health Care Agency
•OCTA
•Orange County CEO's Office
•Orange County Fire Authority (OCFA)
•Santa Ana Senior Center
•Environmental and Transportation
Advisory Committee (ETAC)
Stakeholders Contacted (28),
•Orange County Business
Council
•Santa Ana Chamber of
Commerce
•Mercy House
•Santa Ana Historical
Preservation Society
•Thrive Community Land Trust
•LIUNA -Local 652
•SEIU USWW -Local 1877
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 28
Stakeholders (28)
Focused Meetings
•Santa Ana Unified School District (SAUSD)
•Raymond A. Villa Fundamental Intermediate School
•Carver Elementary
•Garfield Elementary School
•John F. Kennedy Elementary School
•Roosevelt-Walker Academy
•Santa Ana City College
•Martin R. Heninger Elementary School
•Santa Ana High School
•Edward B. Cole Academy
•Rancho Santiago Community College District
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 29
Focused Meetings
City Department Meetings (5)
•Santa Ana City Projects Review Meeting
•Orange County Fire Authority
•Santa Ana Police Department
•Community Development Agency
•Planning and Building Agency
Community Based Organizations (5)
•The Bicycle Tree
•Orange County Environmental Justice
•Santa Ana Active Streets
•Latino Health Access
•Orange County Communities Organized for
Responsible Development (OCCORD)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 30
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 31
Elements Included in All Options
Improvements to sidewalk quality, landscape and trees, curb ramps, new high-visibility crosswalks, ADA access, and transit signal priority will be included & emergency pre-emption (GPS), fire hydrants adjacent to curbs.
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 32
New Controlled Pedestrian Crossings
•Shelton St.
•Booth St.
•New Signal at Lacy St.
•Between McClay St. & Wright St.
•East of Cabrillo Circle
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 33
West Side
3 Concepts Developed (Bristol Street to Zoo Lane)
East Side
1 Concept(Zoo Lane to Tustin Avenue)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 34
West Side Concepts (3)
West Side (Bristol Street to Zoo Lane)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 35
Multi-Use Path Concept
Maintains six (6) travel lanes with a shared pedestrian and bicycle path on the south side
Concept 1
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 36
Multi-Use Path Concept
Six (6) travel lanes with a shared pedestrian and bicycle path on the south side
Concept 1
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 37
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 38
Five (5) travel lanes with a sidewalk and a separated bikeway at the sidewalk level on each side
Enhanced Pedestrian and Bicycle Zone Concept
Concept 2
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 39
Five (5) travel lanes with a sidewalk and a separated bikeway on each side
Enhanced Pedestrian and Bicycle Zone Concept
Concept 2
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 40
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 41
Bus Turnouts (WB)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 42
Bus Lanes and Bikeway Concept
Four (4) travel lanes and two (2) bus lanes with a sidewalk and bikeway on each side
Concept 3
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 43
Bus Lanes and Bikeway Concept
Four (4) travel lanes and two (2) bus lanes with a sidewalk and bikeway on each side
Concept 3
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 44
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 45
Enhanced Pedestrian & Bicycle Concept
Travel Time Comparison (Opening Year)
EB:WB:
EB:WB:
EB:WB:
AM PM
-2:05-0:03 -0:09-0:59
-2:12+0:30 0:00+1:30
+0:49+0:27 +1:48+3:01
AUTO:
Multi Use Path Concept
Bus Lane/Bike Lane Concept
1
2
3
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 46
Enhanced Pedestrian & Bicycle Concept
Travel Time Comparison (Opening Year)
EB:WB:
EB:WB:
EB:WB:
AM PMBUS:
Multi Use Path Concept
Bus Lane/Bike Lane Concept
-3:57+2:12 -2:17+0:43
-4:11+2:58 -2:01+1:35
-3:39+0:35 -4:04+2:23
1
2
3
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 47
Limited separated pedestrian & bicycle facilities
Narrow sidewalk for utilities, lighting and streetscape
Highest increase in travel time
2-minute bus travel time savings
Dedicated pedestrian & bicycle facilities
Narrowest crossing distance across First Street
Maximum area for landscape
Minimal change in travel time
Westbound right turn pockets and bus turnouts
Widens sidewalk on one side
Maintains or improves travel times
Limited safety improvements
1 2 3
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 48
East Side Concept (1)
East Side(Zoo Lane to Tustin Avenue)
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 49
Four (4) travel lanes with a sidewalk and a separated bikeway on each side
4 Lanes with Enhanced Pedestrian & Bicycle Zone
[First Street Multimodal][Public Works, Traffic][February 17, 2026]Slide 50
Questions
Memo
Date: Thursday, January 15, 2026
Project: First Street Multimodal Corridor Study
To: Mike Arizabal , Senior Transportation Analyst, City of Santa Ana Public Works Agency
From: Dawn L. Wilson, PE TE, Project Manager, HDR
Subject: First Street Multimodal Corridor Study Project Overview
Initiated in May 2025, HDR has been working closely with City of Santa Ana to develop
multimodal improvements that address mobility barriers for all users along First Street.
Project extents reach from Bristol Street to Tustin Avenue, approximately 3 miles through
downtown, past two schools , passes under the railroad tracks, and crosses through the I-5
interchange. This technical memorandum provides an overview of the project’s progress and
the tasks completed through December 2025, which included existing conditions
assessment, development of 8 options and refinement to three corridor concepts, technical
analysis of the options, and extensive outreach with the public, stakeholders and community
groups .
Project Background
The City of Santa Ana's First Street Multimodal Boulevard Study (Study) aims to transform
and improve the First Street corridor between Bristol Street and Tustin Avenue (see Figure
1) 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 Firs t 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 of Santa Ana (City) updated its General Plan Mobility Element (Mobility
Element) and identified First Street as a Pedestrian Opportunity Zone to be reconfigured for
multimodal improvements.
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 walking zones should have a minimum of 9
feet.
A walk audit was conducted, along with traffic modeling, origin-destination analysis, and an
in-depth assessment of existing pedestrian, bicycle, and transit conditions to establish the
City of Santa Ana | First Street Multimodal Corridor
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existing conditions of the First Street corridor. This information in conjunction with the
technical multimodal analysis and traffic modeling and community input resulted in the
development of three potential concepts that will improve the travel environment on First
Street. Ultimately, these three concepts will be reviewed by City Council, and a locally
preferred alternative will be selected. The City has funding to advance this alternative into
final design and is in the process of securing funding for construction.
Figure 1. Project Corridor
Figure 2. Examples of Best Street Practices for Pedestrian Facilities
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
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Funding
The project was funded through a REAP 2.0 grant administered by OCTA and SCAG. The
grant focuses on improving access for low -income housing through improved pedestrian,
bicycle and transit options . While the City did receive a short extension, the grant will expire
in December 2026. Additional funding may be needed to complete the design (depending
upon the timing and elements of the locally preferred alternative and the limits of the
improvements). The City is working closely with OCTA to secure additional funding for
construction engineering and construction of the selected improvem ents.
Goals and Objectives
The goal of this project is as follows:
Improve the travel environment along First Street and connect people to places through a
variety of reliable, safe and affordable travel options.
This can be achieved by:
• Prioritiz ing vulnerable roadway users. The success of implementing improvements
should be measured by its ability to improve safety and accessibility for pedestrians
and bicyclists.
• Reduc ing vehicle speeds and address basic safety.
• Add ing trees and landscape to create shade and make the corridor visually
appealing. Creating a unified design for the corridor will improve the quality of the
travel experience.
• Add ing new north-south crossings to improve connectivity across the street. With a
limited number of existing controlled crossings, First Street serves as a barrier
between communities north and south of the corridor .
• Creating a continuous, high-quality bike network that connects to north-south
regional routes . Most bicyclists currently travel on the sidewalk due to safety
concerns riding in the street. Providing wider sidewalks to accommodate either a
Class 1 multiuse path or Class IV bikeways improves safety for both pedestrians and
bicyclists .
• Enhanc ing and improving transit performance and the rider experience. Provide
features such as dedicated lanes or bus priority to improve the efficiency of buses
along this highly traveled route.
Existing Conditions
Pedestrians and Bicycles
For this analysis, First Street is grouped into three segments, each with distinct
characteristics that coincide with neighborhoods and districts identified in the City’s General
Plan. While district boundaries outside the city core are more flexible and may overlap due to
shared characteristics such as architectural style, scale, and overall character, the
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
4
introduction of newer large-scale commercial and mixed-use developments is expected to
create clearer, more defined boundaries in Santa Ana. The Pedestrian and Bicycle Analysis
Technical Memorandum (attached separately) provide a more detailed assessment of the
findings presented in this section.
West Bristol Hub: Bristol Street to Main St
• Neighborhoods: Flower Park, Downtown, Pico-Lowell, Heninger Park
• Character: Heavily commercial with shopping centers, civic uses, and surface
parking
Downtown Historic Center: Main Street to Grand Avenue
• Neighborhoods: Downtown, French Park, Lacy, Logan, Pacific Park
• Character: Historic downtown, civic buildings, smaller retail, denser housing,
transitions into mixed residential eastward.
East City Gateway: Grand Avenue to Tustin Avenue
• Neighborhoods: Saddleback View, Zoo District, Lyon Street.
• Character: Motels, Santa Ana Zoo, mix of offices, high-density residential, freeway
edge conditions.
This section summarizes existing pedestrian and bicycle conditions along First Street and its
intersection crossings. The analysis uses a customized ranking system based on the
Pedestrian Environmental Quality Index (PEQI), typical First/Last Mile evaluation criteria,
and Level of Traffic Stress (LTS), with adjustments tailored to the study area. This approach
emphasizes the pedestrian experience and provides a more qualitative measure of
walkability and bikeability.
Walkability
Bicycle Conditions
• Land Use & Neighborhood
Character
• Streetscape Design (roadway,
traffic speeds, sidewalk,
landscape, & lighting*)
• Pedestrian Access
• Connectivity & Safety
• Intersection Safety
* Lighting is not evaluated but should be studied
further in coordination with the City’s Lighting
Masterplan
• Facility Quality
• Intersection Safety
• Bicycle Network Connectivity
• Level of Traffic Stress (LTS)
City of Santa Ana | First Street Multimodal Corridor
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Level of Traffic Stress or LTS is a common measure of bicyclist comfort when traveling along
a roadway, with LTS 1 being very comfortable and LTS 4 being highly challenging. Below
are descriptions of each LTS categor y and Photo 6 shows examples of LTS 1 through 3
bicycle facilities :
LTS 1: Strong separation from all but low-speed, low -volume traffic; simple
crossings; suitable for children.
LTS 2: Physical separation from higher -speed or multilane traffic; easy crossings;
comfortable for most adults, especially the “interested but concerned.”
LTS 3: Requires interaction with moderate-speed or multilane traffic, or in close
proximity to higher-speed traffic; suitable for “enthused and confident” riders.
LTS 4: Requires interaction with or in close proximity to high-speed traffic; suitable
only for “strong and fearless” riders.
Photo 6: Examples of LTS 1 (Left), LTS 2 (Right), LTS
3 (Bottom) Bicycle Facilities
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
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West Bristol Hub: Bristol Street to Main Street
This segment of First Street combines commercial land uses (small scale retail, shopping
centers and surface parking lots) on the east and western edges with high-density housing
and schools focused near the center, between Flower Street and Broadway. The street
features a landscaped median, mature shade trees, and 7 to 8 feet sidewalks with tree wells,
supporting comfortable pedestrian activity. Striped shoulders are present but are below
standard in width for a bicycle lane and are not clearly marked. Several cyclists were
observed using sidewalks during a site w alk to avoid high speed traffic.
Two schools are located on the south side, Santa Ana High School and Martin R. Heninger
Elementary School, which also include recreational facilities. Key crossings at Flower and
Ross Streets serve students, highlighting the need for safe, well-connected pathways. North-
south access would be greatly improved by adding signalized pedestrian crossings along the
half-mile stretch between Bristol Street and Flower Street.
Overall, the segment balances commercial, residential, and educational uses while offering
potential for improved multimodal connectivity. Figure 3 shows the walkability and bikeability
ratings for West Bristol Hub with an example photo of typical conditions.
Figure 3. West Bristol Hub Pedestrian and Bicycle Existing Conditions
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
7
Downtown Historic Center: Main Street to Grand Avenue
This segment of First Street defines the southern edge of the City’s designated Downtown
Core and Transit Center District. Main Street provides a key connection north to the
Downtown Santa Ana Historic District and the new OC Streetcar, which links east to the
Santa Ana Regional Transportation Center. The corridor is characterized by small-scale
retail and shopping centers with surface parking lots. A landscaped median and mature
shade trees contribute to a consistent streetscape, while sidewalks (7-8 feet wide with tree
wells) support a comfortable pedestrian environment. The key exception is the section from
Standard Avenue to Grand Avenue, where First Street narrows to four lanes . Figure 4 shows
the walkability and bikeability ratings for the Downtown Historic Center with an example
photo of the railroad undercrossing where there are four travel lanes .
Challenges emerge in the quarter -mile stretch between Standard Avenue and Grand
Avenue, where the Metrolink underpass creates a hostile walking environment with narrow
5-foot sidewalks, no shade, and no buffer from traffic. Bicycle facilities are minimal–aside
from a short block between Main Street and Bush Street/Cypress Avenue, there are no
designated bike lanes along this segment.
The intersection of First Street and Downtown Plaza is a critical node for pedestrians –
serving local residents, families, shoppers, bus riders, and students from the Edward B. Cole
Sr. Academy. However, pedestrian safety improvements are needed. Additionally, between
Downtown Plaza and Standard Avenue, the corridor has long block lengths without a north-
south crossing (approximately half a mile) posing barriers to pedestrian connectivity.
Figure 4. Downtown Historic Center: Main Street to Grand Avenue
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
8
East City Gateway: Grand Avenue to Tustin Avenue
This eastern segment of First Street is a combination of commercial (motels, small scale
retail, shopping centers, office buildings and surface parking lots) and mixed-use high-
density housing. The corridor is separated by the I-5 freeway with the motels and Santa Ana
Zoo to the West and a mixture of office buildings and high-density housing to the east.
Overall, the lack of shade trees, and motel activity make the corridor unfriendly to walk and
was rated fair to poor. Figure 5 shows the walkability and bikeability ratings for East City
Gateway.
Typical roadway width in this segment is upwards of 85 feet, including both landscaped and
paved medians. Via Google Earth images , it appears that there were once shade trees in the
median that seem to have been rem oved. Sidewalk widths range from 9 to 11’ with tree
wells, but unless added with new development, the existing mature shade trees are
sporadically dispersed throughout the corridor.
While the zoo is a major destination in the area, First Street is not the primary access point
and may not see increased traffic during hours of operation. Overall, the lack of shade trees,
and motel activity make the corridor unfriendly to walk and was rated fair to poor.
Figure 5. East City Gateway: Grand Avenue to Tustin Avenue
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
9
Overall Corridor Conditions
Pedestrian and bicycle conditions along First Street reveal significant safety and accessibility
challenges, with gaps in infrastructure, inconsistent facilities, and environmental factors that
collectively create barriers to safe and comfortable travel for all users. The following
observations highlight opportunities for improvement in the redesign of First Street.
Street Conditions
• Continuous sidewalk access on both sides of the street.
• High frequency of driveways with no clear ADA pathway.
Bicycle Facilities
• No existing bicycle facilities provided.
• Posted speed limits (40-45 mph) have proven fatal for cyclist/vehicle collisions.
• Predominance of sidewalk cycling impacts pedestrians.
• No bike-protected intersections at key north/south wheel facility connections (Bristol
Street, Flower Street, Ross Street, Standard Avenue, Grand Avenue, Tustin
Avenue).
• Need connections to other bike routes, safe crossings under Metrolink & over
freeway.
Intersections & Controlled Crossings
• Signalized crossings are infrequent (16 traffic signals along the 3-mile corridor) and
often located far apart (approximately 1 mile west of Main Street and approximately
0.25 mile east of I-5).
• Long distances between north-south signalized cross ings (typically 1/2-mile).
• Major intersections with long crossing distances (100–140 feet).
• Marked crosswalks are not high-visibility continental type.
• Directional curb ramps (single ramp) are unsafe at intersections with large curb radii
& high turning speed.
• Dangerous jaywalking near activity hubs with vulnerable populations.
• No protected bicycle intersections.
Climate Impact
• Extreme weather threatens people with disabilities.
• Existing tree canopy is inconsistent.
• Limited access to shade & seating.
• Surrounding hardscape, landscape & buildings affect pedestrian comfort.
City of Santa Ana | First Street Multimodal Corridor
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Transit
OCTA Route 64 runs east-west along First Street, connecting Larwin Square in the City of
Tustin to the Westminster Mall in the City of Huntington Beach. Route 64 has local and
express stops along First Street.
In addition, OCTA provides multiple north-south bus routes that intersect First Street and
provide connectivity across Orange County (OCTA Routes 57, 150/151, 55, 53, 553, 59, 83,
and 71). Key transfer points along the corridor include Bristol Street, Flower Street, Main
Street, Grand Avenue, and Tustin Avenue.
The Santa Ana Regional Transportation Center is less than half a mile north of the project
corridor and serves regional transit services , including Amtrak, Metrolink, OCTA, and
Greyhound. The station sits west of the railroad tracks at the intersection of Santa Ana
Boulevard and Santiago Street. From First Street, several north-south roadways —such as
Main Street—provide direct access to Santa Ana Boulevard. Riders can reach the station by
taking OCTA Route 64 westbound and transferring to Route 59 northbound at Tustin
Avenue.
Ridership
Daily boarding information for Route 64 was provided by OCTA for October 2024, April
2025, and May 2025. Ridership was analyzed for each stop along the project corridor in the
eastbound and westbound direction (see Table 1). The highest average boarding across the
three time periods occurs at Bristol Street eastbound and Main Street westbound. The
busiest stops are on the west side from Bristol Street to Downtown Plaza and at Grand
Avenue. Ridership is lower at local stops between Downtown Plaza and Standard Avenue
and at Cabrillo Park Drive and Golden Circle Drive.
Bus Stop Amenities
A field check was completed to document the existing amenities at local and express bus
stops between Bristol Street and Tustin Avenue. While the amenities at each stop varied, all
stops included seating and signage. The provision of bus shelters aligns the busiest stops
and is constructed and maintained by the City. Photo 1 shows the bus stop near Bristol
Street.
All stops lack dedicated shelter lighting, wayfinding signage, and real-time arrival displays.
Each bus stop has basic route information from OCTA. Most bus stops have a concrete bus
pad for boarding, and buses usually stop in the outside travel lane. The only exception is the
westbound stop on Flower Street, which includes a dedicated bus turnout, shown in Photo 2.
Individuals experiencing homelessness were observed occupying seats at some locations,
leaving other riders to stand.
City of Santa Ana | First Street Multimodal Corridor
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Table 1. Ridership by Stop
Daily Boardings
Stop Direction Oct -24 Apr -25 May-25
5957-1st -Bristol E 368 327 342
5987-1st -Bristol W 252 223 228
5961-1st -Flower E 114 104 112
5984-1st -Flower W 173 165 165
5962-1st -Ross E 71 65 71
5983-1st -Ross W 135 122 129
5964-1st -Main E 189 187 200
5981-1st -Main W 332 315 324
5965-1st -Maple E 112 104 105
5980-1st -Downtown Plaza W 194 183 191
5966-1st -Hickory E 36 33 32
5978-1st -Lacy W 71 73 79
5967-1st -Cedar E 36 26 24
5976-1st -Standard W 42 38 38
5968-1st -Grand E 62 58 64
5975-1st -Grand W 243 228 225
5974-1st -Lyon W 131 126 129
5970-1st -Cabrillo Park E 9 8 7
5973-1st -Cabrillo Park W 48 44 43
5971-1st -Golden Circle E 37 27 27
5972-1st -Golden Circle W 159 148 142
7152-1st -Tustin E 33 34 33
7165-1st -Tustin W 141 140 138
Note : Colors depict the range of boardings from highest to lowest in 50 boarding increments where green =
highest number of boardings and red = lowest number of boardings.
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
12
Photo 11: Bust Stop near Bristol Street
Photo 22: Bus Turnout at Flower Street
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
13
Traffic Operations
First Street is currently a six-lane divided roadway with a raised median and dedicated turn
pockets at intersections . The road has a capacity of 56,300 vehicles per day at LOS E. The
threshold for acceptable level of service (LOS D) is 50,600 vehicles per day. Within the study
area there are 16 signalized intersections and several unsignalized intersections . The posted
speed limit is 40 miles per hour (mph) despite the presence of several school and senior
facilities within the study area.
To assess the existing traffic conditions along the corridor, peak hour intersection volumes
(vehicles, pedestrians and bicycles) and daily volumes (speed, volume and classification)
were collected at locations along the corridor during a typical weekday in March 2025.
Daily Volume Analysis
Daily traffic volumes were collected at eight spot locations along the corridor. Table 2 below
summarizes the volume and the existing level of service based on the City’s level of service
thresholds for roadway segments .
Table 2. Existing Roadway Segment Level of Service
Segment
Daily Traffic Volume (vehicles per day)
LOS EB WB Total
Baker Street to Shelton Street 20,526 18,862 39,388 B
Parton Street to Ross Street 21,155 19,046 40,201 C
West of Spurgeon Street 20,773 16,490 37,263 B
East of Garfield Street 18,417 15,626 34,043 B
Standard Avenue to Grand Avenue 18,373 14,924 33,297 A
West of Wright Street 18,476 15,598 34,074 B
West of Cabrillo Park Drive 14,451 10,603 25,054 A
Golden Circle Drive to Tustin Avenue 10,373 8,766 19,139 A
As shown, all of the segments currently operate at LOS C or better. To understand the
peaking characteristics along the corridor, the daily volumes at the locations with highest
volume (Parton Street to Ross Street) and lowest volume (Golden Circle Drive to Tustin
Avenue) were evaluated on an hourly basis . Figure 6 illustrates the volumes over a 24-hour
period, which shows at both the highest and lowest volume locations there are similar
peaking characteristics , which occur in the AM (7:00 to 9:00AM) and in the PM (3:30 –
5:30PM).
City of Santa Ana | First Street Multimodal Corridor
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Figure 6. Distribution of Volume Across a 24-Hour Period
Traffic Speeds
The posted speed limit along First Street is primarily 40mph in each direction. Table 3 shows the
85th percentile or prevailing speed along the corridor. As shown, the 85th percentile is generally
within 5 mph of the posted speed limit.
Table 3. 85th Percentile Speeds by Study Segment
Segment
85th Percentile Speed (miles per
hour) Vehicles Per
Day Traveling
Over 40 mph
(% of ADT) EB WB Total
Baker Street to Shelton Street 41 40 40 5,899 (15%)
Parton Street to Ross Street 41 41 41 7,158 (18%)
West of Spurgeon Street 37 35 36 2,087 (6%)
East of Garfield Street 42 44 43 8,687 (26%)
Standard Avenue to Grand Avenue 42 40 41 6,017 (18%)
West of Wright Street 43 42 43 8,160 (24%)
West of Cabrillo Park Drive 40 38 39 2,754 (11%)
Golden Circle Drive to Tustin
Avenue
42 40 41 3,525 (18%)
While the 85th percentile speeds are within a reasonable range of the posted speed limit, many
vehicles were recorded traveling at or above the posted 40 mph speed limit. These excessive
speeds tend to occur outside of the peak hours when the volume on the roadway is well below
capacity. The lack of traffic and friction that is caused by the proximity of vehicles close to one
another results in drivers traveling faster than the posted speed limit – even when they are not
aware they are doing so.
0
500
1000
1500
2000
2500
3000
3500
0:001:002:003:004:005:006:007:008:009:0010:0011:0012:0013:0014:0015:0016:0017:0018:0019:0020:0021:0022:0023:00Vehicles Per Hour
Parton Street to Ross Street Golden Circle Drive to Tustin Avenue
City of Santa Ana | First Street Multimodal Corridor
Technical Memorandum
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The section east of Garfield (between Garfield Street and Standard Avenue) experienced the
highest percentage of daily traffic traveling at a speed greater than 40mph at 8,687 vehicles per
day or 26% of the daily traffic on the segment.
Why is this important ? Figure 7 illustrates the probability of fatality in a pedestrian-vehicle crash based
on vehicle speeds . The curves represent different age ranges . According to data collected by the
Automobile Club of A merica (AAA) and illustrated by ProPublica in an interactive graph, a 70-year-old
person has a 70% chance of being killed by a vehicle traveling at 40mph. While young adults have a
higher chance of surviving a crash at 40mph, the probability of fatality increases exponentially as
speeds increase with the chance of any pedestrian surviving being struck by a vehicle moving at
60mph of less than 10%. Identifying solutions to reduce the traffic speeds of these high-speed
vehicles will significantly improve safety and reduce both severe injury crashes and fatalities .
Figure 7. Fatality Rates as a Function of Traffic Speed
Source: “Impact Speed and a Pedestrian’s Risk of Severe Injury or Death”, Brian Tefft (1998) – AAA
Foundation for Traffic Safety.
City of Santa Ana | First Street Multimodal Corridor
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Intersection Analysis
Daily traffic volume and speed are two metrics by which to analyze the existing traffic along the
corridor and provide the travel patterns throughout the day. Intersections and travel time are two
other key metrics that focus on the traffic during the peak four hours of the day – 7:00 to 9:00AM
and 4:00 to 6:00PM.
Two models were used to understand the existing traffic conditions along the corridor. The City
recently updated their Synchro model to update the signal timing along First Street. This model
was used to evaluate the intersection LOS using the Highway Capacity Manual methodology for
urban signalized intersections. This method evaluates the intersection operating conditions in
isolation using the signal timing and volumes collected for the corridor. Table 4 summarizes the
results of the intersection analysis using Synchro.
Table 4. Existing Condition Synchro HCM Results
# INTERSECTION AM Peak Hour PM Peak Hour
Delay
(s) LOS Delay
(s) LOS
1 1st St. at Bristol St. 49.3 D 55.0 D
6 1st St. at Flower St. 35.4 D 37.8 D
8 1st St. at Ross St. 16.3 B 11.3 B
10 1st St. at Broadway 29.7 C 31.6 C
11 1st St. at Sycamore St. 4.2 A 5.4 A
12 1st St. at Main St. 43.8 D 36.2 D
13 1st St. at Bush St. 6.4 A 7.6 A
14 1st St. at DT Plaza 14.9 B 28.5 C
21 1st St. at Standard Ave. 33.3 C 26.0 C
22 1st St. at Grand Ave. 40.9 D 39.2 D
25 1st St. at Lyon St. 24.0 C 16.0 B
26 1st St. at Zoo Ln. 28.0 C 32.3 C
27 1st St. at I -5 SB 6.1 A 28.9 C
28 1st St. at Cabrillo Park Dr. 19.3 B 22.0 C
29 1st St. at Golden Circle Dr. 19.6 B 14.3 B
30 1st St. at Tustin Ave. 21.6 C 26.1 C
The analysis shows that all intersections along the corridor operate at LOS D or better during
the peak hours . The greatest level of congestion is reported from Grand Avenue to Zoo Lane
approaching the I-5 southbound freeway ramps .
The second model used to assess the operating conditions along the corridor is a
microsimulation model VISSIM. This tool simulates vehicle travel along the corridor based on
driver behavior assumptions . Where as Synchro looks at the volume at each intersection,
City of Santa Ana | First Street Multimodal Corridor
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VISSIM looks at each vehicle as is travels along the network. This allows for more accurate
operational analysis and travel time modeling by travel model (passenger vehicle versus bus
for example).
In order to accurately assess traffic conditions using VISSIM, multiple model runs are
conducted, and the results are averaged. The model is then compared to existing conditions
and calibrated until the delay and travel time accurately reflects the analyzed and observed
conditions . Table 5 reports the intersection delay using VISSIM for each of the study
intersections .
Table 5. Existing Condition VISSIM Results
# INTERSECTION AM Peak Hour PM Peak Hour
Delay
(s) LOS Delay
(s) LOS
1 1st St. at Bristol St. 41.2 D 42.3 D
6 1st St. at Flower St. 32.6 C 33.3 C
8 1st St. at Ross St. 10.7 B 6.8 A
10 1st St. at Broadway 30.5 C 34.3 C
11 1st St. at Sycamore St. 10.0 A 10.8 B
12 1st St. at Main St. 30.6 C 30.4 C
13 1st St. at Bush St. 8.2 A 11.7 B
14 1st St. at DT Plaza 13.3 B 22.5 C
21 1st St. at Standard Ave. 32.0 C 22.5 C
22 1st St. at Grand Ave. 36.6 D 46.4 D
25 1st St. at Lyon St. 59.5 E 49.2 D
26 1st St. at Zoo Ln. 40.3 D 48.2 D
27 1st St. at I -5 SB 8.1 A 5.5 A
28 1st St. at Cabrillo Park Dr. 15.2 B 17.9 B
29 1st St. at Golden Circle Dr. 14.4 B 10.3 B
30 1st St. at Tustin Ave. 24.0 C 27.4 C
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Travel Time
While traffic counts were collected in March 2025, travel time data was also collected that
was then used to calibrate and validate the existing VISSIM model. Table 6 summarizes the
travel times collected in the field using the floating car method and the VISSIM calibrated
travel times .
Table 6. Existing and Calibrated VISSIM AM and PM Peak Hour Travel Times
# START LOCATION END LOCATION
AM TRAVEL TIME
Field
(mm:ss)
Vissim
(mm:s s)
1ST STREET EASTBOUND
1 1st St. at Bristol St. 1st St. at Zoo Ln. 11:06 8:02
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:04 01:15
Eastbound Total 12:10 09:17
1ST STREET WESTBOUND
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 01:28 01:45
5 1st St. at Zoo Ln. 1st St. at Bristol St. 06:22 06:49
Westbound Total 07:50 08:34
# START LOCATION END LOCATION
PM TRAVEL TIME
Field
(mm:ss)
Vissim
(mm:s s)
1ST STREET EASTBOUND
1 1st St. at Bristol St. 1st St. at Zoo Ln. 08:32 08:03
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:10 01:13
Eastbound Total 09:42 09:16
1ST STREET WESTBOUND
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 00:58 01:26
5 1st St. at Zoo Ln. 1st St. at Bristol St. 10:02 06:56
Westbound Total 11:00 08:22
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Safety Assessment
The posted speed limit along First Street is 40 miles per hour, but field observations and crash
data indicate that speeding is a persistent issue throughout the corridor. This behavior
significantly contributes to safety concerns, particularly for vulnerable road users such as
pedestrians and bicyclists. Over the past eight years, approximately 25% of all reported collisions
were attributed to unsafe speed as a primary contributing factor. These speed-related crashes
tend to be more severe, often resulting in serious injuries or fatalities. The combination of high
travel speeds with limited physical separation between vehicles and pedestrians, and long
crossing distances at intersections, creates a hazardous environment that demands targeted
traffic calming and safety interventions.
Existing available crash data was used to identify potential safety concerns or historic trends.
Crash data for the most recent 8-year period (2017-2024) was obtained from the California
Statewide Integrated Traffic Records System (SWITRS) crash database then ‘scrubbed’ to
address inconsistencies in how the data was logged.
Table 7 summarizes the results of the crash analysis including the severity, crash type and crash
factor. Of the 479 crashes reported over the eight-year period, 28 resulted in a fatality or severe
injury. The majority of the crashes report were either broadside or rear end.
Common causes of broadside crashes include:
• Running red lights or stop signs.
• Failure to yield right of way, particularly at uncontrolled or side street-controlled
intersections.
• Distracted driving
• Speeding and/or aggressive driving
Common causes of rear end collisions include:
• Distracted driving
• Tailgating or aggressive driving
• Speeding
• Heavy traffic
Most crashes reported were a result of unsafe speed or right of way violations, which align with
the crash types. Evaluating traffic patterns at the side street stop -controlled intersections,
narrowing the roadway to reduce crossing and turning distance, physical improvements to
reduce speeds and enforcement are potential measures to offset the current crash trends and
patterns along First Street.
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Table 7. Crash Data Summary
The most vulnerable users along First Street
are those on foot, on bike, rolling or strolling
along the sidewalks and crossing across the
corridor. Of the 479 traffic collisions recorded
along First Street, 12% involved pedestrians
(56 collisions) and 11% involved bicycles (52
collisions), summarized in Figure 8.
According to the Federal Highway
Administration, the average crash rate for
pedestrians and bicycles along similar
corridors is approximately 4 to 5%, indicating
that the frequency of pedestrian and bicycle
crashes is higher than a typical six-lane corridor.
Figure 8. Pedestrian and Bicycle
Involved Reported Crashes
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General Traffic Conditions
Based on the existing conditions analysis, the following general conditions exist along First
Street:
• Daily traffic volumes along most of the corridor fall below the LOS D threshold for a
six-lane arterial.
• Eastbound volumes are higher than westbound volumes on all segments for both
peak periods.
• All study intersections operate at LOS D or better.
• The highest congestion occurs eastbound between Grand Avene and Zoo Lane
(approaching the I-5 freeway southbound ramp)
• Speeds are at or near the posted speed limit during the peak hour. Outside of the
peak hour, speeds tend to increase with a greater occurrence of speeds 10 mph or
more above the posted speed limit.
• Crash data indicates that speed and right-of-way issues along the corridor account
for approximately half of the crashes reported over an eight-year period. Rear-end
crashes and broadside crashes are the most common types of crashes, which align
with the causes identified.
• Pedestrian and bicycle involved crashes make up approximately 23% of all crashes
reported indicating a higher than average crash rate for the most vulnerable users.
Equity Assessment
This section summarizes key equity findings from the demographics, transportation, and land use
analyses within the study area and identify disparities in access and/or barriers to quality of life
parity experienced by marginalized communities, compared to more resourced, abled, and
affluent neighbors and communities. Key data sources for this analysis include Southern
California Association of Governments (SCAG) and the United States Census Bureau.
Marginalized Groups and Vulnerable Road Users
Marginalized groups and vulnerable road users are among those at risk of being most adversely
impacted by changes to infrastructure and operations of a public right-of-way. This risk is due to
these populations being less likely to have additional mobility options, less likely to be included in
public decision-making, and more likely to have other existing barriers and challenges to
accessing resources or navigating changes to the local environment.
The Equity St udy prepared determined that the study area has a proportionately higher poverty
rate than the City and Orange County as a whole, and especially high rates of seniors living in
poverty, especially on the northwest side of the corridor (refer to Figure 9). This area of the study
also overlaps with proportionally higher populations of residents that speak an Asian/Pacific
Island language (likely Vietnamese) and English “less than well.” The corridor study area also
has proportionally higher populations of residents that speak Spanish as well as English “less
than well” than other parts of the City and Orange County as a whole, primarily on the south side
of the First Street corridor (refer to Figure 10). Over 40% of the City’s residents identify as
immigrants, and the study area reflects this trend. Notably, more than half of residents in Census
block groups north of First Street identify as immigrants. These demographics demonstrate
significant populations that are likely to have fewer mobility options and fewer opportunities to be
civically engaged (in transportation investment decisions, for example) in a welcoming language
or format compared to other residents in the City.
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Figure 9. Poverty Rates within First Street Equity Study Area
Figure 10. Map of Hispanic/Latinx Residents that Speak English Less than “Well”
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The City has a high proportion of renters, compared to Orange County, and the study area has
an even higher proportion, over half of whom are cost-burdened by their housing costs (refer to
Figure 11). This demonstrates a majority of study area residents that live in housing insecurity
due to a high proportion of their income devoted to housing, which increases risk of defaulting on
rent payments and potential eviction.
Figure 11. Renter Households within First Street Equity Study Area
The Origin-Destination Analysis conducted for the two-mile area around the corridor shows that
the highest origin-destination pairs for people living within a half mile of the corridor also had
notably high proportions of people walking, ranging from 24-38% of all travel modes. Further,
trips from resident originating near the cluster of seniors living in poverty on the north side of the
corridor and ending in the downtown civic center area had a relatively high proportion of transit
trips (5%), although these areas are less than a half mile from each other. These travel patterns
show that there are very high percentages of people walking to destinations near and on the
corridor, as well as higher rates of people taking transit near senior housing. This demonstrates a
vulnerable road user presence in and around the corridor that may benefit greatly from safe,
accessible, and comfortable mobility options.
Considerations for Community Engagement and Multimodal Concept Development
These demographics, land uses, and road user findings overall provide important context for the
advancement of the First Street Multimodal Boulevard Study.
The prevalence of marginalized demographics and vulnerable road users inform project
approaches to community engagement, such as targeted outreach to include community
members that are older and/or have limited safe and accessible mobility options, speak
languages other than English, are more likely to experience housing insecurity, and are more
likely to walk or take transit. Members of these key study demographics are typically not centered
in traditional outreach methods but are likely to be disproportionately impacted by not having
their needs considered in street design and operations, as they are likely to have fewer
resources and alternatives to adapt to environmental changes. Figure 12 illustrates the
relationship between residents over Age 65 and the poverty rate within the area.
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Figure 12. Residents Over Age 65 and Poverty Rate within Equity Study Area
Considerations for multimodal concept development include recognizing specific access needs
for people walking/rolling, education and intuitive design for new street configurations, and
focusing improvements on traffic safety and reduction of conflicts between different travel modes,
especially vehicles and pedestrians. Examples of these considerations may include any
placement of a new bi-directional bicycle facility or shared-use path on the southern side of the
corridor, where there is less concentration of senior housing developments, or identifying
controlled mid-block crossing locations that can better facilitate vulnerable road users access to
transit. Another consideration is for providing longer crossing times for slower moving members
of the community including the elderly, disabled and young children.
Built Environment and Exposure to Harm
This section summarizes key points of findings from this memorandum that focus on the existing
conditions, built environment, and exposure to harm, specifically for marginalized and vulnerable
populations. The corridor study area has a presence of community assets (grocery
stores/farmers market, community centers, hospitals, libraries) that serve and are open to the
public, but little green or open space. This showed that while there may be important resources,
such as access to fresh food and health services, there may be inconsistent access to these
resources for community members in the study area based on insurance coverage and food
insecurity rates, as well as limited existing opportunities for physical activity.
Most of the formal employment opportunities in the study area are within the civic or health and
manufacturing sectors (refer to Figure 13). Additionally, preliminary findings show that one in
three workers are in a blue-collar sector, with over one in four in the service sector. This may
demonstrate a relatively steady commute demand throughout a 24-hour period that includes
traditional 9 AM to 5 PM hours, as well as late night or early morning shifts.
As described above, a robust informal economy of street vendors has been observed along the
corridor. In the observational survey, conducted over a period of four days, the consultant team
observed 30 vendors, slightly more than half serving food. In line with SB 946 and the City’s and
County’s regulatory framework and given the placement of many street vendors along the
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sidewalk infrastructure, the study will assess sidewalk design and dimension needs that balance
the use of space by permitted vendors and people walking and rolling.
The study area shows some cleanup sites along and near the corridor (refer to Figure 14), as
well as higher Disadvantaged Communities rankings, which measure environmental pollution
exposure and social vulnerability, around the east side of the corridor, just west of the I-5 freeway
and near several cleanup sites. Given preliminary level of service assessment findings of vehicle
congestion around this part of the corridor, this may reflect the value of shifting travel modes
away from single occupancy driving to reduce vehicle miles traveled and emissions.
Figure 13. Major Employers and Employment Hubs Near First Street
Figure 14. Identified Hazardous and Clean Up Site
Source: Department of Toxic Substances Control (2025)
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Community Engagement
Community engagement is a key component of identifying barriers to mobility along First
Street. Beginning in June 2025 and wrapping up in December 2025, the outreach strategy
reached over 900 participants , summarized in Figure 15.
In order to achieve balanced input throughout this process, a multi-tiered outreach strategy
was conducted, which included:
• Broad community outreach
through workshops, pop up
events and targeted small
group meetings.
• Stakeholder engagement with
both city and government
officials as well as active
organizations in the
community
• Community working group
meetings with community-
based organizations who
assisted with driving
participation at the community
events and bringing
awareness to the project.
• Presentations to
Neighborhood Associations
along the corridor.
Information at key points in the project was disseminated through workshops and then
shared with the community through on-line surveys, pop up events, videos, and
presentations at stakeholder, community working group and neighborhood association
meetings . The timeline for sharing information about the project is summarized in Figure 16.
In this section, the results of Workshop 1 are summarized. Input from the community from
Workshop 2 and Workshop 3 are summarized in the Options and Concepts sections of this
technical memorandum as the results align with preference surveys and input collected
related during those phases of the project.
Figure 15: Multi-tiered Outreach Strategy
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Figure 16. Community Engagement Timeline
Workshop 1: Barriers to Mobility
The first set of workshops and outreac h events provided an opportunity to introduce the First
Street Multimodal Boulevard Study and gather community input on making First Street a
healthier and safer experience for all residents who utilize the corridor.
The goals of the workshops were to enc ourage participants to connect with the Project
Team, share experiences traveling along First Street, suggest improvements to access and
travel options, and learn more about the project.
To provide multiple opportunities to learn about the project and provide feedback, the Project
Team hosted one in-person workshop (Tuesday, August 26, 2025), one virtual workshop
(Wednesday, August 27, 2025), conducted an on-line survey, and attended multiple in-
person pop-up events in the community. A total of 40 people attended the two workshops
and over 60 people were engaged during the Chicano Heritage Festival. Photos 3 through 5
on the following pages illustrate activities at both the pop-up event and at the in-person
workshop.
Feedback received during the in-person and pop-up events regarding improvements the
public would like to see along First Street indicated protected, off street bicycle facilities ;
wider sidewalks and mid-block crossings for pedestrians ; improved transit stops with real-
time bus inform ation; and shade with places to sit along the corridor were amongst the top
priorities for those who participated in the preference survey. Figures 17 to 19 summarize
the results of the survey.
For the virtual meeting and through the on-line poll, participants were asked to share
information about their travel experience and their travel barriers . Results of the on-line
surveys are summarized below in Figure 20.
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Photo 33: Chicano Heritage Festival Booth
Photo 44: Preference Survey Boards from Workshop and Pop-Up Events
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Photo 55: Workshop 1 Activities
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Figure 17. Bicycle Improvements Preferences
Figure 18. Pedestrian Improvements Preferences
Figure 19. Safety Improvement Preferences
21%
12%
5%
4%
8%10%
21%
6%
13%
Off-street bike path or shared-use trail
Protected or separated bikeway
Bike lane
Bike lane with painted buffer
Shared transit/bike lane
Bike-friendly intersection
Protected intersection for bicyclists
Bike repair station
Bike parking
8%
14%
12%
22%
4%
9%
15%
16%
Wide/extended sidewalks
Mid-block crossing with signals
Sidewalk lighting
Shade Trees
Wayfinding and signage
Street furniture/places to sit
Bus stop improvements and amenities
Real-time bus information
11%
5%
4%
5%
29%
46%
Curb ramps
High visibility crosswalks
Sidewalk repair or replacement
Landscaping and medians
Street Lighting
Raised Medians
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Figure 20. Summary of On -Line Survey
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Options Development and Workshop 2
The development of potential multimodal improvements along the corridor began with the
development of options . A total of eight options were developed that integrated a variety of
pedestrian, bicycle, transit and vehicular features within the existing 100’ to 104’ right of way
available along the corridor. The options were presented at Workshop 2.
Each of the options are presented on the following pages . Table 8 below summarizes and
compares the features of each option considered.
Table 8. Summary of Options Presented at Workshop 2
Option
Roadway
Features
Pedestrian
Features
Bicycle
Features
Transit
Features Number of Lanes Curb to Curb Width (ft) Shared Pedestrian- Bicycle Path Dedicated Sidewalk Shared Pedestrian-Bicycle Path Bi-Directional Bikeway Directional Bikeway Buffered Bicycle Lanes Share Bus/Vehicle Shared Bus / Bicycle Dedicated Bus Existing Conditions
6 Lanes with Sidewalk 6 83’ B EB &
WB
6 Lane Option
Option 1
6 Lanes with Multi-use Path 6 76’ S N S EB &
WB
4 Lane Options
Option 2
4 Lanes with Bike Lanes & Path 4 74’ S N B EB &
WB
Option 3
4 Lanes with Directional
Bikeway
4 58’ B B EB &
WB
5 Lane Option
Option 4
5 Lanes with Directional
Bikeway
5 62’ B B EB &
WB
Option 5 5 Lanes with Bi-Directional
Bikeway
5 66’ B N EB &
WB
Bus Lane Options
Option 6
4 Lanes with Bike Lane & Bus
Lane
4 86’ B B EB & WB
Option 7
4 Lanes with Shared Bike/Bus
Lane
4 78’ B EB &
WB
Option 8
5 Lanes with WB Bus Lane &
Directional Bikeway
5 78’ B WB
Note : N = North side of the Street, S = South side of the street, B = Both sides of the street, WB = Westbound, EB = Eastbound
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Workshop 2 Input The in-person workshop was held over two consecutive days (September 17 and 18 from 5:00 to 7:00PM) as an open house style with Spanish and Vietnamese interpreters on hand to assist participants. A series of stations were set up to help participants navigate the eight options being presented (refer to Photo 7). The stations included “Existing Conditions”, “Design Options”, “Aerial Maps”, “Curb Space and Bus Stops”, and “Railroad Tracks Configuration” as well as a welcome table and a family table. Workshop participants were encouraged to provide feedback on potential design options for the corridor, connect with the Project Team, suggest improvements to access and travel options, and learn more about the next stages of the project. A total of 69 attendees signed in at the workshop over the course of the two days and 30 comment cards were collected. Participants were encouraged to participate in a preference activity where they placed pom-pom balls in containers that represent the options that they liked. While three pom-pom balls were provided to each participant, additional balls were provided if requested. The preference activity (pom-pom balls) revealed a strong preference for bus lanes. Figures 21 and 22 below break down the results of the preference survey by lane configuration and by pedestrian and bicycle zone configuration.
Figure 21. Percent of Responses Related to Number of Lanes by Option
Figure 22. Percent of Responses Related to Pedestrian and Bicycle Zone
Configuration
15%
12%
24%
36%
13%Six Lanes
Four Lanes
Five Lanes
Four + Bus
Five + Bus
15%
5%
63%
11%
6%Multi Use Trail
Multi Use Trail + Bike Lanes
Sidewalk + Directional Bikeway
Sidewalk + Bi-Directional Bikeway
Shared Bus - Bike Lane
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The following is a summary of comments received:
• Like the smooth connectivity of buses, bikes and cars in Option 6
• Consider bicycle parking
• Protected bike lanes are a must
• Take bicycles off the sidewalk; put bikes on the street
• Prefer bicycles at sidewalk level, not in a bus lane
• Like the separated bicycle lane on both sides of the street
• Consider at grade bus boarding at bus stops
• Maintain ADA access at all bus stops for wheelchair users
• Need traffic calming at all intersections
• Reduce crossing distance for pedestrians and shorten distance between crosswalks
across First Street
• Add a crosswalk at the First Street and Halladay intersection
• Add a crosswalk at Hickory intersection
• Need additional street lighting between Standard and Spurgeon
• Like the trees or landscape separating bicycles and pedestrians
• Homeless take up the bus stops and benches – creates safety concerns walking or
taking the bus
• Homeless walking and biking on First Street cause hazards . Address the issue
before adding bicycle facilities
• Keep the six lanes – traffic piles up
• If there is a bus lane, make sure it is shared with traffic
• Consider a center running bus lane and move the bicycles to Chestnut or parallel
streets
• Eastbound from Standard (or DMV) to Zoo Lane traffic backs up especially in the
morning
• Opposed to removing lanes, adding bicycle lanes or crosswalks . Keep traffic moving
• Don’t start construction until Bristol Street is complete
Photo 6: Participants Engaging in Interactive Stations and Preference Survey
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Concept Development
Based on feedback from the community, technical analysis and field assessments, three
Concepts were developed for the c orridor. Conceptual layouts in plan view, illustrative
renderings and cross sections were developed to illustrate the components of the design
concepts that were then shared with the public during W orkshop 3.
Technical analysis , including traffic modeling and pedestrian / bicycle analysis , was
conducted to assess the benefits of each alternative compared to the existing conditions.
In response to the existing conditions assessment and concerns about safety and pedestrian
access, the following features wer e integrated into all the concepts presented:
• New
Mid-Block 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 HAWK signal, high visibility markings and signage and a paved area in the
median as a refuge island, as shown in Figure 23. With these crossings, the average
distance between controlled crossings is approximately 0.25 miles and a controlled
crossing is located at or near an existing bus stop.
• Tighter Curb Radius – Most existing curb radii are 35’ with some larger such as at
the I-5 southbound ramps . For all City intersections, the curb radius is tightened to
25’, which slows the turning speed of vehicles and improves safety for pedestrians.
• 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. Crosswalks near school zones should be evaluated for yellow markings and
signage.
Figure 23. New Controlled Crossing at
Shelton Street
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• 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 – 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.
• 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. Additional places
to rest and 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. Potential plant options, consistent with the City’s design
guidelines , are presented in Figure 24.
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Figure 24. Potential Street
Tree Options for First
Street
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West Side and East Side Concepts
Due to planned projects along First Street, the corridor was divided into a west side and an
east side when developing concepts . The west side extends from Bristol Street to Zoo Lane,
which aligns with the Caltrans right-of-way. The east side extends from Zoo Lane over the I-
5 freeway to Tustin Avenue.
Caltrans has developed concept plans for First Street as part of the Freeway Ramp Active
Mobility Enhancement Study (FRAMES ), illustrated in Figure 25. Concepts illustrated in this
technical memorandum reflect the recommendations in that report. However, the City is
currently working with Caltrans to identify alternative solutions that align with the concepts
for the west side of the corridor. Modifications to this section may be proposed based on the
ongoing coordination with Caltrans and the locally preferred alternative for this project.
Figure 25. Recommendations in Caltrans FRAMES
Source: Caltrans , February 2024. Freeway Ramp Active Mobility Enhancement Study (FRAMES).
Based on traffic volumes for the existing and future conditions east of I-5, the concept
developed for the east side of the corridor assumes the four-lane condition. Narrowing the
road to widen the sidewalks builds upon the Public Realm Plan for this area by extending the
curb to construct 17’ to 20’ wide pedestrian zones . This allows additional improvements
within the pedestrian and bicycle zones as described later in this section and is consistent
with the City’s Metro East Mixed-Use Overlay Zone.
A complete set of conc eptual layouts for the three West Side and the one East Side concept
is provided as an attachment to this technical memorandum.
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West Side Design Concepts
Multi -Use Path Concept
This concept includes a multi-use path on the south side of First Street. This space is shared
by pedestrians and bicyclists and is approximately 14’ wide. This area would narrow to 10’
near trees, light posts, utilities and bus stops. Distinct colors or textures on the pavement
could be used to help delineate areas for pedestrians and bicycles within this space;
however, there would be no physical separation between those who are walking or rolling
and those on a bicycle. On the north side of the street, a sidewalk would be provided for
pedestrians . As such, the bicyclists would be permitted only on the south side of the street.
Illustrations of this concept are provided in Figure 26.
This concept provides six travel lanes and left turn pockets at intersections, consistent with
existing conditions . To provide additional space on the south side of the street for the multi-
use trail, existing lane widths are narrowed to 11’ and the center median is narrowed to 12’.
Figure 26. Illustrations of the Multi-Use Path Concept
.
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Enhanced Pedestrian and Bicycle Zone Concept
This concept includes directional Class IV bikeways on each side of First Street (north and
south side) as well as a dedicated sidewalk. With 17’ feet within the pedestrian zone, there is
sufficient space to construct a physical barrier such as a plantable strip between the bikeway
and the sidewalk and provide trees along the curbline. Distinct color or texture on the
pavement could also be used to help delineate areas for pedestrians and bicycles . At 66’
feet wide curb to curb, this concept is the narrowest of the three concepts developed.
Illustrations of this concept are provided in Figure 27.
This concept provides five travel lanes and left turn pockets at intersections . As shown in the
existing conditions section of this technical memorandum, the traffic volume in the
eastbound direction is higher than in the westbound direction in each peak hour as well as
over a 24-hour period. Therefore, this option removes one travel lane in the westbound
direction to provide the space within the pedestrian zone. Lane widths in this option are 10 to
11’ wide and the median is 12’ wide.
Figure 27. Illustrations of the Enhanced Pedestrian and Bicycle Concept
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Bus Lanes and Bikeway Concept
This concept includes directional Class IV bikeways on each side of Firs t Street (north and
south side) as well as a dedicated sidewalk. With 12’ feet within the pedestrian zone, a 6’
bikeway and a 6’ sidewalk can be delineated. Bicycles would travel closest to the roadway
and would need to weave around bus stops, trees or other landscape areas and utilities
such as streetlight poles . Where these obstructions occur in the bikeway, the bicycles would
merge with the pedestrians in a shared 10’ to 13’ space. This may create a sort of
meandering bikeway visually but will require careful navigation through these shared areas .
Distinct color or textures on the pavement should be used to help delineate areas for
pedestrians and bicycles. Figure 28 illustrates the features of the Bus Lane and Bikeway
Concept.
This concept provides four travel lanes , two bus only lanes and left turn pockets at
intersections . As discussed in the existing conditions section of this report, Route 64 is one
of the highest traveled routes in Orange County and experiences over 2,900 boardings and
alighting eac h day within the study area.
Figure 28. Bus Lane and Bikeway Concept
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Providing a bus lane provides benefits to vehicular traffic and buses. Vehicles may enter the
bus lane to make a right turn at intersections .
This moves the decelerating vehicles into the bus lane and reduces the potential for rear end
crashes . With buses in a dedicated lane, there would be no queuing of vehicles behind
buses at bus stops . Vehicles maneuvering around stopped buses is also a potential cause of
rear-end and sideswipe cras hes that would be reduced with this option. Bus on-time
performance and delay would also improve. Coupled with bus priority, travel time for buses
along the corridor are forecast to improve significantly. This City has discussed with OCTA
options to increase frequency of bus service along the route if dedicated. Additional
discussion and analysis are needed to determine if expanded or more frequent service is
possible.
East Side Design Concepts
From Cabrillo Park Drive to Tustin Avenue, the City will be c onstructing new medians and
buffered bicycle lanes . This project will also reduce First Street from six lanes to four lanes .
While this will improve the bicycle amenities on this portion of the corridor compared to
existing conditions, feedback during community outreach meetings suggests that bicyclists
would prefer to be at sidewalk level as opposed to street level. Figure 29 provides the cross
section and the pedestrian and bicycle zone illustrations.
Figure 29. East Side Illustrations
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Therefore, a four-lane concept was developed that provides for 17 to 20’ pedestrian and
bicycle zones, four travel lanes and a raised median. With these improvements, the median
constructed by the City would remain in place the curbs on the north and south sides of the
street would be moved to the edge of the buffered bicycle lanes thereby bringing the bicycles
to sidewalk level. This would allow for directional bikeways on each side of the street,
physically separated from the sidewalk by a low planting strip or other edge treatment.
Traffic Analysis
The VISSIM microsimulation model was used to forecast the intersection delay and travel
time along the corridor for each of the three design concepts on the west side of the corridor
in the AM and in the PM peak period. Two study years were evaluated – Project Opening
Year (2028) and Project Design Year (2048). Future year volumes were determined by
applying a growth rate to existing conditions traffic volumes . The growth rate of 0.6% per
year was determined using the OC TA OCTAM model.
Tables 9 and 10 summarize the results of the level of service from Bristol Street to the I-5 SB
Freeway Ramps in the AM and PM Peak Period for the No Build (maintain existing roadway
lanes, intersection configuration and signal timing) and for each of the three concepts
presented (Multi-Use Path Concept, Enhanced Pedestrian and Bicycle Concept and Bus
Lane/Bikeway Concept) for the west side of the corridor for the Opening Year and Design
Year. Turn pocket lengths, signal timing and intersection configurations in addition to the
modification to the number of lanes were modified in the VISSIM network for each of the
concepts presented.
Since only one concept was developed for the east side (I-5 SB Ramps to Tustin Avenue),
Tables 11 and 12 summarize the intersection LOS for the Opening Year and Design Year.
The City has approved a new traffic signal at the intersection of First Street and Lacy Street.
Currently this intersection is side-street stop controlled. As the signal is fully funded and
currently in the final design stage, this new traffic signal has been added to all study
scenarios , including the No Build condition.
West Side Opening Year Conditions
As shown in the tables on the following page, most intersections operate at LOS D or better
under all study scenarios by year 2028 in the AM Peak Period. The exceptions to this are the
intersections at Bristol Street and Flower Street under the Bus Lane / Bike Lane option. It
should be noted that under the No Build condition, Lyon Street is forecast to operate at LOS
F. Signal timing and geometric improvements in the three Options address queuing issues at
Lyon Street that improve the delays and queues .
In the PM Peak, most intersections continue to operate at acceptable LOS D or better.
However, the intersections at Bristol Street, Flower Street, Downtown Plaza, Grand Avenue
and Lyon Street are all forecast to operate at LOS E or F under for at least one concept in
either the AM or the PM per period. Lyon Street experiences the greatest increase in delays .
This is largely due to the reduction in right turn lanes onto the I-5 freeway southbound from
one shared right-through and one dedicated right turn lane to a single right turn lane.
Additional analysis is being conducted at all these intersections to determine geometric
modifications and signal timing improvements to determine if delay can be improved to an
acceptable range.
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West Side Design Year
For all study scenarios, the future year volumes are based on an average growth rate of
0.6% per year applied to the existing ground count traffic volumes , which suggest no
changes in traffic patterns over the next 22 years . The results of the Design Year analysis
indicate that with the reduction in lanes to either five lanes or six lanes , there will be a
significant increase in delays if traffic patterns remain unchanged. The City is currently
working with OCTA to run the OCTAM model for the five lane and the four-lane with bus lane
conditions to determine if the lane reduction would res ult in a redistribution of traffic to other
routes . As this is currently a grid network and there are several parallel or alternative routes
in the area, this model will help provide more accurate long-term travel patterns . Results of
the Enhanced Pedestrian and Bicycle Concept and Bus Lane/Bike Lane Concept will be re-
evaluated once the model runs are completed.
East Side Analysis
Operational analysis for the east side evaluated the baseline six-lane option and the
proposed four-lane option. The results of the analysis show that all intersections east of I-5
are forecast to operate at LOS D or better with the four lanes under both Opening Year and
Design Year Conditions.
Travel Time Analysis
Travel time calculations were conducted for the west side (Bristol Street to Zoo Lane) and
the east side (Zoo Lane to Tustin Avenue) for the Opening Year and Horizon Year for all
study scenarios. Travel times were calculated for both buses and passenger vehicles in
order to understand the benefits and the impacts to each mode. Tables 13 and 14
summarize the Opening Year and Design Year travel times for the corridor for automobiles
and Tables 15 and 16 report the same data for buses.
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Table 9. Opening Year Delay and Level of Service (VISSIM) – West Side
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Table 10. Design Year Delay and Level of Service (VISSIM) – West Side
AM PEAK HOUR [7:30am -8:30am ]
1 1st St. at Bristol St.4 6.9 D 48.9 D 5 1.6 D 113 .1 F
6 1st St. at Flower St.39.6 D 46.0 D 50.1 D 95.6 F
8 1st St. at Ross St.12 .1 B 9.6 A 11.5 B 24.8 C
10 1st St. at Broadway 3 4.9 C 30.7 C 3 1.6 C 45.5 D
11 1st St. at Sycamore St.12 .7 B 14 .8 B 17 .8 B 22.5 C
12 1st St. at Main St.33.5 C 40.3 D 47.2 D 45.1 D
13 1st St. at Bush St.8 .4 A 10 .8 B 16 .5 B 2 1.9 C
14 1st St. at DT Plaza 13 .5 B 8.2 A 17 .9 B 15 .8 B
18 1st St. at Lacy St.4 .4 A 16 .7 B 2 1.5 C 22.5 C
21 1st St. at Standard Ave.40.5 D 38.2 D 44.8 D 42.4 D
22 1st St. at Grand Ave.62.6 E 48.2 D 46.7 D 44.6 D
25 1st St. at Lyon St.18 1.4 F 117 .7 F 12 1.0 F 86.7 F
26 1st St. at Zoo Ln.52.8 D 98.9 F 108.1 F 98.2 F
27 1st St. at I-5 SB 15 .3 B 12 .4 B 12 .8 B 11.8 B
PM PEAK HOUR [5:00pm-6:00pm]
1 1st St. at Bristol St.4 9.9 D 54.8 D 63.0 E 139.3 F
6 1st St. at Flower St.37.6 D 47.9 D 60.0 E 97.2 F
8 1st St. at Ross St.7 .7 A 8.3 A 29.9 C 37.5 D
10 1st St. at Broadway 39.1 D 33.5 C 42.4 D 46.1 D
11 1st St. at Sycamore St.14 .8 B 2 1.2 C 30.9 C 24.2 C
12 1st St. at Main St.3 4.2 C 40.7 D 47.1 D 42.4 D
13 1st St. at Bush St.12 .3 B 12 .5 B 50.0 D 53.8 D
14 1st St. at DT Plaza 23.5 C 12 .4 B 76.3 E 55.5 E
18 1st St. at Lacy St.6 .5 A 10 .8 B 57.1 E 48.8 D
21 1st St. at Standard Ave.3 8.1 D 38.5 D 60.5 E 83.3 F
22 1st St. at Grand Ave.88.1 F 66.1 E 67.7 E 84.3 F
25 1st St. at Lyon St.173.9 F 155.1 F 14 5 .7 F 125.5 F
26 1st St. at Zoo Ln.4 9.3 D 53.2 D 57.9 E 5 1.7 D
27 1st St. at I-5 SB 5 .6 A 9.3 A 9.3 A 9.3 A
Delay
(s)LOS#INTERSECTION
No Build Multi-Use Path Enhanced Bike/Ped Bus/Bike
Delay
(s)LOS Delay
(s)LOS Delay
(s)LOS
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Table 11. Opening Year Delay and Level of Service (VISSIM) – East Side
# INTERSECTION
NO BUILD Four Lane Option
Delay
(s) LOS Delay
(s) LOS
AM PEAK HOUR [7:30am -8:30am]
28 1st St. at Cabrillo Park Dr. 14.8 B 14.9 B
29 1st St. at Golden Circle Dr. 14.7 B 17.5 B
30 1st St. at Tustin Ave. 24.1 C 24.9 C
PM PEAK HOUR [5:00pm -6:00pm]
28 1st St. at Cabrillo Park Dr. 18.0 B 18.0 B
29 1st St. at Golden Circle Dr. 9.8 A 9.3 A
30 1st St. at Tustin Ave. 26.3 C 26.1 C
Table 12. Design Year Delay and Level of Service (VISSIM) – East Side
# INTERSECTION
NO BUILD Four Lane Option
Delay
(s) LOS Delay
(s) LOS
AM PEAK HOUR [7:30am -8:30am]
28 1st St. at Cabrillo Park Dr. 16.4 B 15.2 B
29 1st St. at Golden Circle Dr. 15.0 B 17.6 B
30 1st St. at Tustin Ave. 24.5 C 25.2 C
PM PEAK HOUR [5:00pm -6:00pm]
28 1st St. at Cabrillo Park Dr. 18.9 B 18.6 B
29 1st St. at Golden Circle Dr. 10.6 B 9.3 A
30 1st St. at Tustin Ave. 26.8 C 26.0 C
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Table 13. Opening Year Travel Time
# START LOCATION END LOCATION
AVERAGE TRAVEL TIME (mm:ss)
NO
BUILD
Multi -
Use Path
Enhanced
Ped -Bike
Bus/Bike Lanes
Base TSP
AM PEAK HOUR [7:30am-8:30am]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 10:00 07:59 07:53 10:27 10:53
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:16 01:12 01:11 01:11 01:11
Eastbound Total 11:16 09:11 09:04 11:38 12:05
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 01:48 01:36 01:39 01:35 01:36
5 1st St. at Zoo Ln. 1st St. at Bristol St. 06:50 06:59 07:29 07:30 07:29
Westbound Total 08:38 08:35 09:08 09:05 09:05
PM PEAK HOUR [5:00pm -6:00pm]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 10:37 10:27 10:36 12:34 12:24
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:12 01:12 01:12 01:11 01:12
Eastbound Total 11:48 11:39 11:48 13:46 13:36
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 01:29 01:21 01:21 01:21 01:22
5 1st St. at Zoo Ln. 1st St. at Bristol St. 07:26 06:35 09:04 10:06 10:34
Westbound Total 08:55 07:56 10:25 11:26 11:56
Table 14. Design Year Travel Time
# START LOCATION END LOCATION
AVERAGE TRAVEL TIME (mm:ss)
NO
BUILD
Multi -
Use Path
Enhanced
Ped -Bike
Bus/Bike Lanes
Base TSP
AM PEAK HOUR [7:30am-8:30am]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 14:26 10:28 10:40 13:19 13:41
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:18 01:13 01:12 01:12 01:12
Eastbound Total 15:44 11:41 11:52 14:30 14:53
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 02:25 01:43 01:45 01:46 01:39
5 1st St. at Zoo Ln. 1st St. at Bristol St. 07:21 07:10 08:09 07:58 08:22
Westbound Total 09:46 08:54 09:55 09:44 10:01
PM PEAK HOUR [5:00pm -6:00pm]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 14:46 14:02 13:05 16:55 16:25
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 01:13 01:12 01:13 01:13 01:13
Eastbound Total 15:59 15:15 14:18 18:08 17:38
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 01:32 01:23 01:23 01:24 01:25
5 1st St. at Zoo Ln. 1st St. at Bristol St. 08:25 06:56 12:24 13:17 14:04
Westbound Total 9:57 8:19 13:47 14:41 15:29
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Table 15. Opening Year Travel Time - Buses
# START LOCATION END LOCATION
AVERAGE TRAVEL TIME (mm:ss)
NO
BUILD
Multi -
Use Path
Enhanced
Ped -Bike
Bus/Bike Lanes
Base TSP
AM PEAK HOUR [7:30am-8:30am]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 15:03 11:27 11:19 11:12 11:53
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 02:35 02:14 02:08 02:12 02:06
Eastbound Total 17:38 13:41 13:27 13:24 13:59
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 02:53 04:03 03:57 03:57 03:34
5 1st St. at Zoo Ln. 1st St. at Bristol St. 11:17 12:19 13:11 12:06 11:11
Westbound Total 14:10 16:22 17:08 16:03 14:45
PM PEAK HOUR [5:00pm -6:00pm]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 16:22 14:23 14:38 12:45 12:41
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 02:27 02:09 02:10 02:10 02:05
Eastbound Total 18:49 16:32 16:48 14:55 14:45
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 02:57 02:38 02:37 02:37 02:38
5 1st St. at Zoo Ln. 1st St. at Bristol St. 12:25 12:02 14:21 11:23 10:22
Westbound Total 15:23 14:40 16:58 14:01 13:00
Table 16. Design Year Travel Time - Buses
# START LOCATION END LOCATION
AVERAGE TRAVEL TIME (mm:ss)
NO
BUILD
Multi -
Use Path
Enhanced
Ped -Bike
Bus/Bike Lanes
Base TSP
AM PEAK HOUR [7:30am-8:30am]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 19:46 12:57 12:57 11:39 12:08
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 02:34 02:18 02:09 02:10 02:10
Eastbound Total 22:20 15:16 15:06 13:49 14:18
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 03:09 04:06 03:51 04:08 03:39
5 1st St. at Zoo Ln. 1st St. at Bristol St. 12:24 12:33 13:39 12:00 11:30
Westbound Total 15:32 16:40 17:30 16:08 15:09
PM PEAK HOUR [5:00pm -6:00pm]
1 1st St. at Bristol St. 1st St. at Zoo Ln. 21:00 18:00 17:21 12:58 12:44
2 1st St. at Zoo Ln. 1st St. at Tustin Ave. 02:18 02:12 02:14 02:09 02:06
Eastbound Total 23:18 20:12 19:35 15:07 14:51
4 1st St. at Tustin Ave. 1st St. at Zoo Ln. 03:06 02:40 02:39 02:42 02:39
5 1st St. at Zoo Ln. 1st St. at Bristol St. 13:01 12:26 17:39 12:01 11:12
Westbound Total 16:07 15:05 20:18 14:44 13:51
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Evaluation of Concept Benefit s
Using the goals of this project, concerns raised by the community and the technical analysis
conducted to date, a comparison of the benefits for each concept was developed. The
comparison is based on how each concept improves conditions by mode compared to the
existing conditions . Table 17 below summarizes the results of this exercise.
Table 17. Comparison of Three Design Concepts
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Workshop 3
Workshop 3 was conducted on December 9 and 11, 2025 at the Roosevelt Walker
Community Center . Over the course of the two days, 82 attendees signed in representing a
broad range of representatives from the community including youth. Participants were
encouraged to visit stations around the room that provided information on the three west
side concepts, the east side concept and landscaping and then completed a feedback form
(refer to Photo 8). The form asked them to share what elements of the concepts presented
would improve their travel along the corridor. Responses to each concept are summarized
on the following pages.
General Comments
Aside from the specific comments on each concept presented and the landscape design, the
following comments were received either in the “O ther Notes” section of the comment form,
on comment cards or on the available note pads.
• Community feedback strongly emphasizes pedestrian and bicyclist safety, calling for
raised crosswalks, protected intersections, complete sidewalks, and fully separated
bike paths .
• Lighting, reflective elements, and tree shade are requested to improve usability and
safety, especially for students and daily walkers .
• Residents express concern about maintaining vehicle travel lanes to avoid worsening
traffic congestion while recommending design features like narrower lanes and speed
controls to ease traffic .
• There is also strong support for underground utilities, clear sidewalks, and separated
bus lanes .
• The community is interested in a design that balances traffic with safety, accessibility,
and environmental enhancements.
• Appreciation expressed for the workshop and answers provided.
Photo 8: Participants Involved in Interactive Stations at Workshop 3
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Multi-Use Path Concept:
Six travel lanes with a shared pedestrian
and bicycle patch on the south side of
First Street
Bicyclist Improvements
• Requests for dedicated, clearly marked bike lanes on both sides
of the street, buffers/barriers
between bike lanes and
sidewalks, and improved bike
and bus separation.
• Support for protected bike paths rather than shared paths, clear
pavement markings, and signage to identify bike zones.
• Concerns about bike lanes accumulating trash and debris.
• Some people support expanded bike lanes for safety while
others oppose additional bike lanes due to concerns about traffic impacts.
Pedestrian Improvements
• Requests for additional crosswalks near schools, churches, and bus stops.
• Requests for elevated crosswalks, all-way crossings, and shorter crossing distances
at smaller intersections .
• Support for wider sidewalks, sidewalks flush with street, and trees that supply shade
for pedestrians.
• Reduction of obstruction in pedestrian zones such as utility boxes and poles.
Safety improvements
• Requests for traffic signals for controlled pedestrian crossings, restrictions for right
turns at red lights, additional guardrails, barriers, and
buffers. between pedestrians, cyclists, buses, and vehicle lanes.
• Requests for additional street lighting and illuminated/glow ing crosswalks.
• Concerns regarding vehicle speeds.
Roadway/Driver Improvements
• Support for lane reductions to reduce traffic speeds and support
for separation of vehicles, buses , bikes , and pedestrian zones.
• Suggestions to reduce it to two lanes in each direction and eliminate or consolidate
turn lanes.
• Request for dedicated bus lanes, improved bus operations, and improve mobility for
bus turning movements.
• Opposition towards reduced travel lanes due to congestion concerns .
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Enh anced Pedestrian & Bicycle Zone
Concept:
Five travel lanes with a sidewalk and a
separated bikeway on each side of First
Street
Bicyclist Improvements
• Support for separated and
protected bike
lanes highlighting this concept
as the most bike-friendly and most
complete.
• Support for bike lanes on both sides of street, bi-directional bike lanes rather than
one-sided, and barriers between bikes and traffic such as curbs and planters.
• Requests for complete bike paths through intersections, bike-specific signals,
separation between cyclists and pedestrians, and enhanced striping positioning for
bike lane (green conflict zone on North Lyon Street).
• Requests for multilingual bike signage (English, Spanish, Vietnamese).
Pedestrian Improvements
• Requests for additional and clearly marked crosswalks, z -crossings near schools,
and all-way crossings at major intersections.
• Requests for elevated and protected sidewalks at underpass at N McClay Street and
widened sidewalks.
• Requests for guardrails, reflective lighting, and improved lighting for pedestrian
visibility.
Safety Improvements
• Support for concept citing it is the safest, most complete, and best option.
• Support for the narrow streets for reduction in traffic speeds as well as
raised/protected crosswalks.
• Requests for protected intersections, curb extensions, and barriers between traffic
and bicyclists for accident prevention.
• Concerns raised for blind spots near buildings and trash/debris from vehicles
affecting safety.
Roadway/Driver Improvements
• Support for concept citing it accommodates high volumes of pedestrians and cyclists
as well as balances safety improvements with traffic.
• Support for five lanes or three lanes in one direction to manage congestion as well as
support for lane reductions for safety and walkability.
• Support for adding bus lanes on the three-lane side of street and dedicated bus lanes
to improve reliability and encourage ridership.
• Requests for bioswales in medians, simpler driveway access, shorter crossings
• Interest in learning more regarding hours for bus lanes (all day or rush hour).
• Concerns of bus lanes increasing congestion.
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Bus Lane & Bikeway Concept:
Four travel lanes and two bus
lanes awith a separate dedicated bikeway
and a sidewalk on each side of First Street
Bicyclist Improvements
• Requests for continuous bike
paths through intersections,
protected bike lanes with physical
barriers like curbs and planters, and clear signage in English and Spanish.
• Support for bi-directional bikeways and lanes on both sides of the street.
• Concerns for bicyclists traveling around buses, lack of separation/barriers, and single
bike lane provided.
Pedestrian Improvements
• Requests for additional crosswalks near schools, z -crossings
to address jaywalking, and curb extensions to shorten crossings and improve
visibility.
• Requests for improved push button placement and countdown signals,
longer crossing times for wheelchair users, and improved curb ramp alignment
for accessibility.
• Concerns for drainage and potential flooding at corners.
Safety Improvements
• Support for separation among all modes of transportation, reduction in intersection
width, protected curbs at intersections, traffic signals and crossings spaced
throughout corridor.
• Requests for left and right turn signals and enforcement tools such traffic signal
cameras for pedestrian safety.
• Concerns for pedestrians and bicyclists about travel conflicts in shared areas as well
as visibility issues without curb extensions.
• Improved vendor and pedestrian safety due to exclusive bus lane.
Roadway/Driver Improvements
• Support for dedicated bus lanes due to improved bus reliability, better wait times,
incentivized public transit, and mitigation of traffic impacts on buses .
• Mixed opinions on bus lane impacts to traffic. Some note it will improve flow while
others feel it will worsen congestion.
• Suggestion to add dedicated bus signals at busy intersections .
• Interest in learning if bus lanes will have dedicated hours (full-day or peak) and if two
car lanes in each direction are necessary.
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Enhanced Pedestrian & Bicycle
Zone Concept:
Four travel lanes with a sidewalk and a
separated bikeway on each side of
First Street
Bicyclist Improvements
• Support for extended bike
infrastructure
throughout corridor and separate and protected bike lanes/paths
• Requests for physical buffers and barriers to protect bike lanes such as planters.
Pedestrian Improvements
• Support for the concept specific to separating pedestrian walkways for safety and
comfort.
• Requests for all-way pedestrian crossings, incorporation of cross paths at
all intersections, and curb bulb-outs to shorten crossing distances and protect
pedestrians.
• Concerns for physical pedestrian obstruction near Caltrans parking lot.
Safety improvements
• Support for this design, citing it is the safest for all modes of transportation due to
separation, can reduce accidents, and narrows roadway widths leading to slower
traffic speeds.
• Improved safety outcomes through buffers, planters, and curb extensions.
Roadway/Driver Improvements
• Request to narrow the roadway to slow traffic speeds, reallocate space from wide
lanes or medians to protect bike and pedestrian zones.
• Concern for traffic impacts with new bike lane.
Streetscape and Landscape
Participants also provided input on potential street trees for the corridor. The results of the
input are summarized below:
• Use California native plants and trees, particularly within bioswales.
• Discouraged the use of Mediterranean climate plants and expressed frustration with
overplanted species, such as crepe myrtle, citing poor appearance and overuse in
the area.
• Clear support for prioritizing native vegetation in the project’s landscape design.
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Next Steps
With the development of the three concepts, the next step in the project is to select a locally
preferred alternative. In order to select that option, the following steps will be completed:
• Complete the OCTAM model and assess the redistribution of traffic related to
potential lane reductions and update the levels of service.
• Conduct meetings with the Stakeholder Group and the Community Working Group to
receive additional feedback on the three Concepts.
• Present and receive direction from City Council.
Once a locally preferred alternative is selected, the project team will move forward with the
final engineering, feasibility study and environmental document for the corridor. Due to
project funding, this phase of the project will need to be completed by December 2026. The
City is currently seeking funding to finalize the engineering, prepare bid documents and
construct the project; however, additional funding may be needed for construction depending
upon the concept selected.
FIRST STREET MULTIMODAL BOULEVARD STUDY
Community Feedback Summary
From August through December 2025 , a robust outreach effort was conducted engaging more than
1,100 people at in-person events, 10,000 interactions through on-line platforms, presentations to 11
neighborhood organizations, and coordination with 35 community partners to gather meaningful input.
Workshops & Meetings
Community
Events & Pop-ups
Printed &
Virtual
Survey
FIRST STREET MULTIMODAL BOULEVARD STUDY
Community Outreach Overview
Moving
Forward
on First
Design
Concepts
Community
Feedback
Technical
Analysis
Preference
Survey WE ARE
HERE
Workshop 1
July - August 2025
This workshop looked at how
people use First Street today
and what improvements would
make traveling the corridor
safer and more comfortable.
What we heard:
• Need for safer walking and
biking access
• Several locations missing
crosswalks
• Mixed feedback on adding
bike lanes
• Interest in improved sidewalk
amenities (bus stops, lighting,
shade)
• Concerns about peak-hour
traffic increases
September - November 2025
This workshop reviewed eight
preliminary design alternatives
developed from Workshop 1
input, technical analysis, and
feedback from the virtual survey.
What we heard:
• Preference for six lanes, five
lanes, and four travel lanes
with bus lane options
• Protected bike paths from
street traffic
• Transit signal priority at
intersections
• More shade trees and
landscape areas
• Mid-block controlled crossings
to reduce jaywalking and
improve pedestrian access
• Need for sidewalk safety and
street lighting improvements
December 2025
This workshop will review three
refined design concepts
developed from Workshop 2
input, technical analysis, and
the virtual poll. Community
feedback gathered during this
workshop will be presented to
City Council in early 2026. The
goal is to identify a locally
preferred alternative and move
forward with final engineering
in 2026.
Workshop 2 Workshop 3
Informed by the three-phased workshop process, technical analysis, and results from the preference
survey, we are now advancing concepts that are shaped by the community’s stated priorities.
Key Community Ideas for First Street
○Improve safety and access for people of all abilities.
○Add shade trees to improve sidewalk comfort.
○Provide safer, more comfortable bicycle facilities.
○Calm traffic and reduce vehicle speeds.
○Enhance bus stops with upgraded amenities.
○Improve pedestrian lighting and visibility along
sidewalks.
○Add controlled pedestrian crossings, especially
near schools and businesses, and in areas with
long gaps between existing crosswalks.
Community Input Received at Workshops
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FIRST STREET MULTIMODAL BOULEVARD STUDY
Multi-Use Path Concept
6 travel lanes with shared
pedestrian and bicycle path
on south side of First Street
1 Wider sidewalks support safer pedestrian movement and
allow room for landscaping and streetscape elements.
Added street trees provide essential shade and improve
comfort for people walking or rolling by buffering the
sidewalk from traffic.
Shared pedestrian/bike path provides a wider and safer
space for walking and rolling on the south side.
Six travel lanes are maintained to keep existing traffic
patterns and overall corridor flow.
Raised center median provides a pedestrian refuge at new
mid-block crossings, helps slow and separate traffic, and adds
landscaping that strengthens the corridor’s character.
Curb-lane bus operation keeps existing bus service moving
as it does today.
2
3
4
5
6
6 6
5
Conceptual View Looking east on First St near Shelton St
2
11
1
3 3
4
Shared Pedestrian/
Bicycle Path
Parkway/
Lighting
Zone
Bike
Zone
View
LocationBristol StFlower StMain StGrand AveTustin AveMetrolinkShelton StFirst St
FIRST STREET MULTIMODAL BOULEVARD STUDY
Conceptual View Looking east on First St near Shelton St
Multi-Use Path Concept
○Shared pedestrian/bicycle path creates a
dedicated, predictable zone that increases
separation from roadway traffic, enhancing safety
by supporting more comfortable walking and
rolling on the sidewalk.
○Additional safety improvements (not pictured)
include enhanced pedestrian crossings with
tighter curb radii, improved crosswalk visibility,
and new signalized crossings for safer, more
consistent crossing opportunities. Transit
signal priority will be integrated into signalized
intersections to help improve bus operations and
on-time performance.
Change in Travel Time: Opening Year (AM/PM)
Level of Service: Opening YearBenefit Assessment
FIRST STREET MULTIMODAL BOULEVARD STUDY
Enhanced Pedestrian &
Bicycle Zone Concept
5 travel lanes with a sidewalk and
a separated bikeway on each side
of First Street
5
Conceptual View Looking east on First St near Shelton St
11
22
1
3 3
4
Sidewalk with Separated Bikeway
Parkway/
Lighting
Zone
Separated
Bikeway
View
LocationBristol StFlower StMain StGrand AveTustin AveMetrolinkShelton St1 Extra-wide sidewalks create more room for ADA access
and accommodates a separated bikeway.
Separated bikeway improves safety for pedestrians
and bicyclists by moving faster moving bicycles into a
dedicated space.
Added street trees provide essential shade and improve
comfort for people walking or rolling by buffering the
sidewalk from traffic.
66’ roadway width shortens pedestrian crossing
distances at intersections and controlled crossings.
Raised center median provides a pedestrian refuge at
new mid-block crossings, helps slow and separate traffic,
and adds landscaping that strengthens the corridor’s
character.
Reducing to five travel lanes slows traffic speeds, with
some increased delay and travel time.
Curb-lane bus operation keeps existing bus service
moving as it does today.
2
3
4
5
6
7
67 7
First St
FIRST STREET MULTIMODAL BOULEVARD STUDY
Conceptual View Looking east on First St near Shelton St
Enhanced Pedestrian & Bicycle Zone
○Extra-wide sidewalks with separated bikeways
create dedicated, predictable zones that increase
separation form roadway traffic, enhancing safety
by providing more comfortable ADA access for
walking, and rolling on both sides of First Street.
○Additional safety improvements (not pictured)
include enhanced pedestrian crossings with
tighter curb radii, improved crosswalk visibility,
and new signalized crossings for safer, more
consistent crossing opportunities. Transit
signal priority will be integrated into signalized
intersections to help improve bus operations and
on-time performance.
Change in Travel Time: Opening Year (AM/PM)
Level of Service: Opening YearBenefit Assessment
FIRST STREET MULTIMODAL BOULEVARD STUDY
Bus Lanes &
Bikeway Concept
4 travel lanes and 2 bus lanes with
a sidewalk and bikeway on each
side of First Street
Conceptual View Looking east on First St near Shelton St
1 1
3
1
Sidewalk with
Bikeway
View
LocationBristol StFlower StMain StGrand AveTustin AveMetrolinkShelton St2A
2A
2B
2B
2BShared multi-use path accommodates street trees, parkways
and lighting.
Sidewalk with separated bikeway clearly defines bicycle
and pedestrian zones along the sidewalk, and cannot
accommodate street trees or other pedestrian amenities
given the width constraints.
Raised center median provide a safe pedestrian refuge at
new mid-block crossings, helps slow and separate traffic, and
adds landscaping that strengthens the corridor’s character.
Reducing to four travel lanes slows traffic speeds but
results in higher delays, longer travel times, and some
potential diversion to other routes.
Two dedicated bus lanes enhance transit service reliability
and travel times.
3
4
4
5
5 5
Separated
Bikeway
First St
1 Wider sidewalks support safer pedestrian movement and
allow room for landscaping and streetscape elements.
FIRST STREET MULTIMODAL BOULEVARD STUDY
Conceptual View Looking east on First St near Shelton St
Bus Lanes & Bikeway
○Wide sidewalks with a separated bikeway
improve ADA access and provide safer, more
comfortable space for walking and rolling on
both sides of First Street.
○Additional safety improvements (not
pictured) include enhanced pedestrian
crossings with tighter curb radii, improved
crosswalk visibility, and new signalized crossings
for safer, more consistent crossing opportunities.
Transit signal priority will be integrated into
signalized intersections to help improve bus
operations and on-time performance.
Change in Travel Time: Opening Year (AM/PM)
Level of Service: Opening YearBenefit Assessment
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FIRST STREET MULTIMODAL BOULEVARD STUDY
East Side - 4 Lane
Pedestrian & Bicycle Zone
4 travel lanes with a sidewalk
and a separated bikeway on each
side of First Street
(Zoo Ln to Tustin Ave)
5 5 11
22
3 3
4
Sidewalk with Separated Bikeway
1
Extra-wide sidewalks improve pedestrian access and
create space for upgraded bus stops and amenities, with
flexibility to use any of the three sidewalk concepts shown
for the west corridor.
Note: The four lane concept aligns with the lower traffic volumes and the Public Realm Plan (Mixed Use Overlay
Zone) on the east side of Interstate 5 (I-5). Therefore, one concept was developed for the roadway cross section
on the east side.
Separated bikeway creates clearly defined bicycle and
pedestrian zones at the sidewalk level.
Added street trees provide essential shade and improve
comfort for people walking or rolling by buffering the
sidewalk from traffic.
65’ roadway width shortens pedestrian crossing
distances for at intersections and controlled pedestrian
crossings.
Reducing to four travel lanes slows traffic speeds, with
increased delay and travel time.
2
3
4
5
View
LocationBristol StFlower StMain StGrand AveTustin AveGolden Circle DrMetrolinkFirst St
Conceptual View Looking east on First St near Golden Circle Dr
Separated
Bikeway
Parkway/
Lighting
Zone
1
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FIRST STREET MULTIMODAL BOULEVARD STUDY
East Side Concept
○Extra-wide sidewalks with separated bikeways
create dedicated, predictable zones that increase
separation form roadway traffic, enhancing safety
by providing more comfortable ADA access for
walking, and rolling on both sides of First Street.
○Additional safety improvements (not pictured)
include enhanced pedestrian crossings with
tighter curb radii, improved crosswalk visibility,
and new signalized crossings for safer, more
consistent crossing opportunities. Transit
signal priority will be integrated into signalized
intersections to help improve bus operations and
on-time performance.
Caltrans Conceptual Plan developed for their Freeway Ramp Active Mobility Study recommends
reducing First Street to four lanes east of Zoo Lane and ramp improvements at I-5 SB Ramps
Level of Service: Opening Year