HomeMy WebLinkAboutRES-11660 APPROVING GENERAL PLAN AMENDMENT NO. 26-0001 AMENDING THE CIRCULATION AND MOBILITY ELEMENT TO CONFORM WITH OCTA COUNTYWIDE MASTER PLAN OF ARTERIAL HIGHWAYSRESOLUTION NO. 11660
A RESOLUTION OF THE CITY COUNCIL OF
THE CITY OF ORANGE APPROVING
GENERAL PLAN AMENDMENT NO. 26-0001
AMENDING THE CITY OF ORANGE GENERAL
PLAN CIRCULATION AND MOBILITY
ELEMENT TO CONFORM TO THE ORANGE
COUNTY TRANSPORTATION AUTHORITY'S
COUNTYWIDE MASTER PLAN OF ARTERIAL
HIGHWAYS
APPLICANT: CITY OF ORANGE
WHEREAS, the City of Orange adopted a comprehensive update to the General Plan on
March 9, 2010; and
WHEREAS, the City of Orange has prepared General Plan Amendment No. 26-0001 to
amend the Circulation and Mobility Element of the City of Orange General Plan to reclassify
roadway designations for certain segments of Santiago Canyon Road (Villa Park Road) and
Fairhaven Avenue to reflect updated traffic conditions,roadway constraints,and regional planning
efforts; and
WHEREAS,the proposed roadway reclassifications are based on updated traffic analyses
that evaluated long-term growth trends, traffic volumes, safety conditions, roadway design
feasibility, and multimodal considerations, and determined that the existing classifications do not
align with projected demand or right-of-way constraints; and
WHEREAS, the County of Orange and the City of Santa Ana have already adopted the
proposed roadway reclassifications within their respective General Plans, and the Orange County
Transportation Authority (OCTA) has reviewed and conditionally approved the changes as
amendments to the Countywide Master Plan of Arterial Highways; and
WHEREAS, the Planning Commission, having considered the proposed changes to the
General Plan Circulation and Mobility Element contained in Exhibit"A" at a public hearing held
on February 19, 2026, including review of the staff report and receiving public testimony on the
item,has determined that General Plan Amendment No.26-0001 is appropriate and recommended
City Council approval thereof.
NOW,THEREFORE,BE IT RESOLVED that the City Council approves General Plan
Amendment No. 26-0001, amending the City of Orange General Plan Circulation and Mobility
Element as depicted in Exhibit "A" attached hereto and incorporated by this reference based on
the following findings:
SECTION 1 -FINDINGS
The subject General Plan Amendment updates roadway classifications within the Circulation and
Mobility Element to reflect current and projected traffic conditions, roadway constraints, and
multimodal considerations, while maintaining the City's required level of service standards. The
amendment supports orderly growth,promotes a balanced and efficient transportation system,and
ensures consistency between the City's Master Plan of Streets and Highways and regional
transportation planning efforts adopted by neighboring jurisdictions and the Orange County
Transportation Authority.As such,the proposed amendment furthers the intent of the General Plan
by advancing coordinated regional mobility and responsible long-range transportation planning.
SECTION 2 - ENVIRONMENTAL REVIEW
The proposed project is categorically exempt(Common Sense Exemption) from the provisions of
the California Environmental Quality Act (CEQA) per State CEQA Guidelines Section
15061(b)(3)because there is no possibility that the revisions to the roadway designations may have
a significant effect on the environment.
ADOPTED this 10th day of March 2026.
D
iel R. Slater, Mayor, City of Orange
ATTEST:
Pamela Coleman, City Clerk, City of Orange
APPROVED AS TO FORM:
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Nathalie Adourian, ity Attorney, City of Orange
Attachment: Exhibit A
2
STATE OF CALIFORNIA )
COUNTY OF ORANGE )
CITY OF ORANGE
I, PAMELA COLEMAN, City Clerk of the City of Orange, California, do hereby certify
that the foregoing Resolution was duly and regularly adopted by the City Council of the City of
Orange at a regular meeting thereof held on the 10th day of March 2026 by the following vote:
AYES: COUNCILMEMBERS: Bilodeau, Barrios,Dumitru, Tavoularis,
Gutierrez, Gyllenhammer, Slater
NOES: COUNCILMEMBERS: None
ABSENT: COUNCILMEMBERRSS: None
Pamela Coleman, City Clerk, City of Orange
3
EXHIBIT "A"
Amended General Plan Circulation and Mobility Element
CIRcuLATIoN
ANGE MOBILITY
ENERAL PLAN
INTRODUCTION AND VISION FOR THE FUTURE
Orange's circulation system has been influenced by a variety of historical factors, including
the presence of the Santa Fe Railroad,the vision of Alfred B. Chapman and William T. Glassell,
the agricultural history of the area, and alternative transportation modes including a historic
streetcar system.
In 1887, the Santa Fe Railroad came to Orange and built a station four blocks west of the
Plaza.The coming of the railroad set off a real estate boom that brought hundreds of settlers
to the area. The railroad also influenced the City's early economic success by providing a
means to transport goods, especially citrus, to the entire country. Today, the railroad tracks
continue to serve freight trains and provide a critical link to the region via the Metrolink
heavy rail transit system.
In the 187os, Alfred B. Chapman and William T. Glassell subdivided their land into residential
and small farm lots centered on a roundabout known today as Plaza Park. Plaza Park was
dedicated in 1886 and established the City's two main streets—Chapman Avenue and Glassell
Street—as well as the compact street grid of Old Towne Orange.The street grid and railroad
system were supported historically by a streetcar system that connected the small towns and
settlements that make up the City today.
Over time, the small farms on the outer edges of Orange's core district began to disappear.
Two factors influenced this change: the demand for housing after World War II and the
appearance of"Quick Decline" disease that destroyed the local citrus industry. As each farm
was developed independently, the grid system expanded outward and commercial corridors
were established. Orange's roadways began to take on a more suburban pattern of
collectors, connectors, and arterials.As development reached the eastern portion of the City,
the grid gave way to curvilinear street patterns.
The historic roadways and railways that form the basis for the current circulation network
have been complemented over the years by the development of a streetcar system, a transit
service, an emerging and continually expanding bicycle trail and route network, and routes
for equestrian use in the eastern portion of the City. The City will continue to be served by
these multiple modes of transportation and other emerging mobility technologies.
ORANGE GENERAL PLAN
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REV CPA 1074-0001(71/8/r5)
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losilimmmts.xaa CIRCULATION AND MOBILITY
Orange's Vision for the Future, described in the General Plan Introduction, recognizes that
the circulation system is a key component of the quality of life in the City. Accordingly, the
vision includes the following objectives:
Residential areas will be connected to commercial, recreational, and open space areas, as
well as educational and cultural facilities via a balanced, multi-modal circulation network
that accommodates vehicles, pedestrians, cyclists, hikers, and equestrians. This network
will create additional opportunities for walking and biking, enhancing safety and well-
being for neighborhoods and businesses.
The City will work to define neighborhoods through the use of open space areas and a
trail system that provides a source of aesthetic beauty and recreational opportunities.
These open space areas support a healthy and active community.
We will develop a connected multi-modal network for traveling from one end of town to
the other that provides the option for residents from different neighborhoods to access
parks, open spaces, and scenic areas by vehicle, transit, foot, bicycle or, where
appropriate, horse.
Purpose of the Circulation & Mobility Element
California's General Plan Guidelines mandate that the Circulation & Mobility Element fulfill
the following objectives:
Show a direct relationship to the Land Use Element to ensure that any changes to land
use as stated by the Land Use Element and growth occur with adequate circulation and
transportation facilities in mind.
Address relevant issues including the adequacy of"major thoroughfares,transportation
routes,terminals, other local public utilities and facilities."The goal of the Circulation &
Mobility Element is to identify circulation problems related to these facilities in the early
stages and resolve them in local goals and policies without costly delays.
Other relevant issues discussed in the Circulation & Mobility Element include those that
address streets, highways, public transit routes, railroads, bicycle and pedestrian routes,
recreational trails, paratransit, parking, transportation system management, and air
pollution. The hierarchy of streets within the residential areas helps to frame the urban form.
Connections between neighborhoods can be achieved by a comprehensive network of
sidewalks and trails. Also, the commercial corridors can be enhanced with adequate street
capacity, public transit,and pedestrian-friendly environments.
The state also recommends that the Circulation & Mobility Element address coordination
efforts among the local, regional, and state transportation plans to better resolve circulation
issues. Since many transportation concerns are regional, addressing them requires
intergovernmental and regional transportation management plans and policy
implementation. These partnerships ensure the most efficient use of funding, infrastructure,
and other resources. The state also recommends the "preservation of transportation
corridors for future system improvements."
ORANGE GENERAL PLAN
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The Circulation & Mobility Element prioritizes the issues and opportunities that exist within
Orange's transit network. It is directly responsive to proposed changes in land use and
anticipates the impacts of those changes. This Element also seeks to reassure residents and
businesses that the City recognizes the link between transportation and land uses, and
provides a means to mitigate the impacts of growth.
Another goal of the Circulation & Mobility Element is to increase transportation options and
provide increased access to the circulation system for all residents of Orange. This goal
includes improved rail and bus transit connections and frequency, implementation of a
Bikeway Master Plan, and completion of a trails system. Transforming many of Orange's
historically auto-oriented commercial corridors, such as Katella Avenue, Main Street, and
portions of La Veta Avenue, Chapman Avenue, and Glassell Street into more pedestrian-
friendly mixed-use environments is an overarching goal.Where possible, the development of
equestrian trails is also encouraged.
One of the main functions of the Circulation & Mobility Element is to guide and direct
enhancement of the current circulation system for existing and future developments. Thus,
circulation provisions correlate with the Land Use Element to avoid unchecked growth and
unnecessary congestion.
Another key objective of the Element is to work toward a future circulation network that
provides meaningful alternatives for getting around the community by less auto-dependent
means. The City's topography, street and sidewalk system, transit and trail framework, and
land use relationships provide an excellent foundation for pursuit of this objective.
The Circulation & Mobility Element does not simply determine automobile routes. It also
guides the movement of people and goods, directly affecting Orange's physical, social, and
economic environment. Since circulation permits accessibility to places and social amenities,
it can either improve or cause deterioration in quality of life. Circulation efficiency also plays a
major role in progress and development of the City's economy.
Scope and Content of the Circulation & Mobility Element
The Circulation&Mobility Element comprises three sections:
1) Introduction;
2) Issues, Goals,and Policies; and
3)The Circulation&Mobility Plan.
The first section introduces the contents of the Circulation & Mobility Element. The second
section presents issues, goals, and policies for improving circulation. The third section
includes the Circulation & Mobility Plan, which designates locations and standards for
roadways and non-motorized circulation facilities, and states the community's desired level
of transportation service.
Implementation measures designed to promote achievement of the goals and policies are
provided in an Appendix to the General Plan.
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Relationship to other General Plan Elements
California planning law requires that the Circulation & Mobility Element correlate and
maintain consistency with the other General Plan elements. The Circulation & Mobility
Element relates most closely to the Land Use, Natural Resources, Noise, Economic
Development, Housing,and Urban Design Elements.
The Circulation & Mobility Element is linked to the Land Use Element because the General
Plan land use designations identified in the Land Use Element serve as a basis for the
allocation of vehicle trips and establishment of capacity levels for circulation planning. The
Land Use Element also provides land use designations that accommodate mixed commercial
and residential development, which encourage shorter trips and improve the efficiency of
the transportation network. The Circulation & Mobility Plan is established to define and
provide for adequate levels of service and facilities to support future land uses. This Element
recommends roadway and intersection improvements that may require land acquisition.
Location of public transportation facilities will also influence pedestrian activity and transit-
oriented development, and the physical size of streets will affect urban land uses and the
physical appearance of the City.
The Natural Resources Element identifies regional air quality objectives and provides
appropriate mitigation efforts that affect the Circulation & Mobility Element. Improving
access, encouraging alternative modes of travel, and maintaining air quality and conservation
standards are common objectives of the Natural Resources and the Circulation & Mobility
Elements.
The Noise Element addresses future noise levels associated with roadways, rail, and other
transportation facilities. Future volumes of traffic on the circulation system are directly
related to future noise levels and mitigation strategies.
The Economic Development Element identifies desirable economic conditions and land uses
that enhance and promote business activity, employment growth, and economic stability.
The goals and policies of the Circulation & Mobility Element will determine road capacity in
Orange, which will impact the type and location of uses, and parking and access
considerations associated with future uses. Both elements share a common objective of
planning for future transportation infrastructure needs. Maintaining roadways, bikeways and
bus and rail transit facilities is critical to the success of both current and future businesses in
Orange.
The Urban Design Element is a framework for shaping the future form and character of
Orange. The quality of Orange's physical environment contributes to its identity, attracts
new residents, and sets the stage for economic activity. The Urban Design Element builds on
the foundation of Orange's already strong sense of place to preserve and strengthen the
streetscape environment of commercial corridors and landmarks within the city. The Urban
Design Element and Circulation & Mobility Element share a common objective to reinvent
City streets as more functional and walkable public places.
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ISSUES , GOALS , AND POLICIES
The goals, policies, and implementation programs of the Circulation & Mobility Element seek
to achieve a better balance between vehicular, pedestrian, and bicycle travel, and to provide
a wide range of viable transportation options to Orange residents. The following six issues
are addressed: (i) enhancing the local circulation system; (2) maintaining the regional
circulation system; (3) maintaining a viable public transportation network; (4) creating a
comprehensive system of sidewalks, trails, and bikeways; (5) providing adequate parking
facilities;and(6)improving circulation system aesthetics and safety.
Local Circulation System
The local roadway system serves the community's primary needs for mobility and access,and
consists of a hierarchy of City streets to meet those needs. The City's original street system
was established as a grid pattern long before a Master Plan of Arterial Highways(MPAH)was
adopted. The Old Towne area and many postwar neighborhoods were designed in a classic
grid configuration, while in newer parts of the City, physical features such as the Santa Ana
River, Santiago Creek, hilly terrain, freeways and the presence of the City of Villa Park have
resulted in a system without a definitive pattern. Some major roads do not connect the
eastern and western portions of the City and consequently do not provide effective through
circulation. A well-designed roadway system will provide convenient access to activities in
Orange.
GOAL t.o:Provide a safe, efficient, and comprehensive circulation system that serves
local needs, meets forecasted demands, and sustains quality of life in
neighborhoods.
Policy 1.1:Plan, build, and maintain an integrated, hierarchical, and multi-modal system
of roadways, pedestrian walkways,and bicycle paths throughout the City.
Policy 1.2:Identify key intersections and streets with historical or projected traffic
congestion problems and apply creative traffic management measures to
improve overall circulation.
Policy 1.3:Consider various methods to increase safety on City arterials and
neighborhood streets, including landscaping, provision of bike/transit lanes,
and consideration of traffic calming on neighborhood streets in accordance
with the City's Neighborhood Residential Traffic Management Program.
Policy 1.4:Prohibit on-street parking where possible to reduce bicycle/automobile
conflicts in appropriate target areas as recommended by the Bikeways Master
Plan.
Policy 1.5:Address possible safety and noise effects of increased rail activity on grade
crossings throughout the City.
Policy 1.6:Maintain and repair roadways and sidewalks as necessary to improve
circulation and safety.
ORANGE GENERAL PLAN
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Policy 1.7:Consolidate driveways along roadways that provide access to commercial
uses to minimize side street interruption and promote smooth traffic flows.
On-street parking is prohibited on commercial access streets to provide
adequate curb-to-curb width for travel lanes.
Regional Circulation System
Mobility in Orange is directly related to the regional transportation network, as the City lies
at the confluence of several regional freeways: the Santa Ana Freeway(Interstate 5), Orange
Freeway(State Route [SR] 57), Garden Grove Freeway (SR-22), Costa Mesa Freeway (SR-55),
Riverside Freeway (SR-91) and Eastern Transportation Corridor (SR-241). In addition to the
freeways, other connections to the region include the commuter rail system known as
Metrolink, a freight and goods rail transport system, and a regional bikeways system with
connections to the Santa Ana River and other locations. Orange is also connected to the
region via the Orange County Transportation Authority (OCTA) bus system. City
infrastructure must accommodate regional through traffic originating in other communities
in addition to providing local residents access to the regional network.
GOAL 2.0: Provide an effective regional transportation network.
Policy 2.1:Ensure consistency with the County MPAH in order to qualify for funding
programs.
Policy 2.2: Coordinate with adjacent cities to plan and develop major east/west and
north/south arterials and rapid transit to connect the City with the cities of
Anaheim, Tustin, Santa Ana, Garden Grove, and Villa Park, as well as
developing areas within the City's sphere of influence.
Policy 2.3: Cooperate with and support local and regional agencies' efforts to improve
regional arterials and transit in order to address increasing traffic congestion.
Policy 2.4: Coordinate land use planning with anticipated future development of
roadways and other transportation facility improvements as well as the
expansion of commuter rail and bus service.
Policy 2.5: Ensure that transportation facilities and improvements do not degrade the
quality of Orange's commercial and residential areas.
Policy 2.6: Encourage the use of regional rail, transit, bicycling, carpools, and vanpools
for work trips to relieve traffic congestion.
Policy 2.7: Continue to support the use of rail corridors within the City for the movement
of freight and goods, and work with rail operators to minimize associated
traffic delays.
Public Transportation
Public transportation is a crucial component of a comprehensive circulation system. In
addition to reducing air pollution and traffic congestion, a successful public transit system
provides an alternative mode of travel for those with limited mobility, residents who may not
have access to a car, and persons who choose not to drive.
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GOAL 3.o: Connect centers within the City to each other and to the region through
efficient and accessible public transportation.
Policy 3.1:Work with OCTA and other agencies to assess City public transportation
needs and to ensure delivery of services when and where they are needed.
Policy 3.2: Enhance and encourage provision of convenient and attractive transit
amenities and streetscapes to encourage use of public transportation (e.g.,
benches,trash cans,shelters, and lighting).
Policy 3.3: Require incorporation of transit-oriented design features within major
commercial and employment areas as well as in medium density residential
and mixed-use development areas.
Sidewalks , Trails , and Bikeways
In addition to offering recreational and public health benefits, non-vehicular modes of
transportation offer commuting options. Also, the mixed-use environments advocated by
Land Use Element policies will encourage increased pedestrian activity on City sidewalks for
both business and pleasure. An effective pedestrian, bicycle, and equestrian network must
be safe and accessible, and must connect key activity centers within the City with each other
and with the regional trail system. A comprehensive network of on-street bicycle lanes, off-
street bicycle paths, sidewalks, and trails should be developed and maintained to increase
the safety and utility of the system, with a particular focus on the City's sidewalk deficient
industrial areas
GOAL 4.o: Provide efficient and accessible modes of pedestrian, bicycle, and
equestrian transportation and improved facilities and amenities.
Policy 4.1:Create a comprehensive bicycle network that is integrated with other
transportation systems by establishing complementary on-street and off-
street facilities as identified in the City of Orange Bikeways Master Plan and
OCTA Commuter Bikeways Strategic Plan, including Santiago Creek, the Santa
Ana River, and the Tustin Branch Trail.
Policy 4.2: Install racks and safe storage facilities at parking areas for City facilities, as
appropriate, and encourage incorporation of such facilities within privately-
developed projects.
Policy 4.3: Improve citywide awareness of automobile and bicycle safety.
Policy 4.4: Encourage use of the bikeway system by providing adequate signage, trail
markings, and other amenities.
Policy 4.5: Ensure that pedestrian sidewalks, trails, and bikeways are safe environments
through the use of crime prevention-oriented trail design features, lighting
where appropriate, pedestrian and bicycle safety improvements at at-grade
rail crossings, access for emergency vehicles, and links to the roadway signal
system.
Policy 4.6: Explore opportunities to convert abandoned rail corridors into segments of
the City's bikeway and pedestrian trail system.
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Policy 4.7: Provide ADA accessible sidewalks and pedestrian amenities throughout the
City.
Policy 4.8: Expand and maintain an equestrian trail network and provide for appropriate
staging areas and infrastructure.
Parking Facilities
A shortage of parking can cause circulation problems and could lead to a reduction or loss of
business activity. Old Towne Orange has been identified as an area of particular concern. As
the City develops, providing adequate parking adjacent to other activity centers is
increasingly important.
GOAL 5.0: Provide adequate parking to meet the needs of activity centers throughout
the City.
Policy 5.1:Provide adequate parking to protect and support the economic vitality and
diversity of Old Towne.
Policy 5.2:Plan for and design parking facilities throughout the City that are adequate to
meet demand, but also consider land use-parking efficiencies, and the
surrounding natural and built environment.
Policy 5.3: Encourage adjacent businesses to consolidate parking facilities and access
points.
Policy 5.4: Encourage well-designed structured parking in commercial areas where such
features would be economically feasible, safe, and visually integrated with
existing development.
Circulation System Aesthetics
Streets that have been made or modified to include visual and pedestrian amenities can
improve the overall look and feel of City streets, as well as enhancing functionality for all
users. As major commercial corridors are beautified and changed to include a pleasant
pedestrian environment, this will have positive effects on the feelings of safety and security
for pedestrians, bicyclists,and motorists.
GOAL 6.o: Provide roadway corridors that are aesthetically pleasing and contribute to
a feeling of safety, security, and comfort for motorists, bicyclists, and
pedestrians.
Policy 6.1:Supply adequate, clear, and correctly placed signage to direct both motorists
and non-motorists toward destinations and away from hazards.
Policy 6.2: Provide clear indicators in the right-of-way for where pedestrians and
bicyclists are encouraged to walk, bike, or cross safely. These may include
special paving, line stripes, and crosswalks.
Policy 6.3: Provide lighting, landscaping, street trees, and other appropriately scaled
streetscape features that accommodate all users on commercial corridors.
Where appropriate, lighting should be scaled for autos as well as pedestrians.
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CIRCULATION & MOBILITY PLAN
The objective of the Circulation & Mobility Plan is to document existing transportation
facilities in the planning area used for the movement of people and goods. The Element
addresses the desired future condition of these facilities, and their relationship to future land
uses identified in the Land Use Element. The Plan describes the circulation system, including
the arterial network and intersections, the public transit system, bicycle paths, recreation
facilities, parking, and railroad operations. The City's circulation network includes an
extensive system of roadways, bus transit service,commuter rail, and freight rail.
Local Circulation System
A well-designed local arterial roadway system that connects to a well-developed regional
circulation system provides safe and convenient access to employment, housing, recreation,
and commercial areas in Orange. City arterial roadways located on the western side of SR-55
generally follow north-south and east-west orientations. On the eastern side of the freeway,
arterials are characterized by curvilinear streets due to undulating geographical
surroundings. Key north-south arterials include Tustin Street, Glassell Street, Main Street, and
The City Drive. Key east-west arterials include Chapman Avenue, Katella Avenue, Taft
Avenue, and parts of La Veta Avenue. These arterial roadways are in turn supported by a
network of collector and local streets that provide access to homes and businesses
throughout the City.
Roadway Classification System
The City's roadway network is distinguished by a hierarchical classification system that
differentiates roads by size, function, and approximate daily capacity based upon Level of
Service D (LOS D). LOS is a qualitative measure that characterizes traffic congestion on a
scale of A to F with LOS A representing a free-flow condition and LOS F representing extreme
congestion. LOS standards can apply to either intersections or links (a section of street
between two intersections). Generally speaking, LOS represents the ability of a roadway or
an intersection to accommodate traffic.
In the City, intersections are used as actual control points. City roadways consist of both
divided and undivided roadways. Divided roadways generally contain a physical barrier or
buffer, such as a raised median or a continuous two-way left turn lane, between each
direction of travel. Divided roadways remove vehicles making a left turn from the travel lanes
so as not to impede through traffic and constrict roadway capacity. Undivided roadways do
not contain a buffer between each direction of travel, and therefore left-turning traffic can
impede through traffic. Undivided roadways may provide turn movement pockets at
intersections. The eight categories of roadways in Orange are summarized in Table CM-1.
Proposed cross-sections for each type of roadway are shown in Figure CM-1.
The City's policy is to use a link capacity standard of LOS D. The following paragraphs
represent link capacities of each roadway type at LOS D.
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ORANGE GENERAL PLAN
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Table CM-1
Roadway Classifications
Classification Facility Type Characteristics
Smart Street Smart Street 4-8 lane divided,with possible signal coordination,intersection capacity
improvements and/or grade separations
Principal Arterial 8 Lane Divided Primarily serves through traffic with limited local access
Major Arterial 6 Lane Divided Serves mostly through traffic with some local access allowed
Asymmetric Major 5 Lane Divided Serves mostly through traffic with some local access allowed
Arterial
Primary Arterial 4 Lane Divided Serves through and local traffic
Secondary Arterial 4 Lane Undivided Serves through and local traffic
Two-Lane 2 Lane Divided Serves through and local traffic
Secondary Arterial
Collector Street 2 Lane Serves mostly local traffic
Smart Streets are typically four- to eight-lane roadways with enhanced capacity and
smoother traffic flow than standard arterial streets. These streets have enhanced features
such as traffic signal synchronization, bus bays, intersection improvements, and the addition
of travel lanes by removing on-street parking and consolidating driveways. The traffic
carrying capacities of Smart Streets can range from 60,00o to 79,00o vehicles per day,
depending on the number of lanes, degree of access control, peak period loading, and the
configurations of major intersections.
Principal Arterials are typically eight-lane divided roadways with medians or continuous two-
way left turn lanes. They can accommodate up to 67,50o vehicles on an average weekday at
LOS D conditions, depending on the degree of access control, peak period traffic loadings,
and lane configurations at major intersections. Principal arterials prohibit on-street, curbside
parking, and connect directly to freeways.
Major Arterials are six-lane divided roadways with medians or continuous two-way left turn
lanes. They can accommodate up to 50,70o vehicles on an average weekday at LOS D
conditions, depending on the degree of access control, peak period traffic loadings, and lane
configurations at major intersections. Major arterials facilitate traffic circulation within
Orange,and may prohibit on-street,curbside parking.
Asymmetric Major Arterial are five-lane asymmetrical divided roadways with medians or
continuous two-way left turn lanes. They can accommodate up to 42,25o vehicles on an
average weekday at LOS D conditions, depending on the degree of access control, peak
period traffic loadings, and lane configurations at major intersections. Asymmetric major
arterials facilitate traffic circulation within Orange, and may prohibit on-street, curbside
parking. Occasionally, based on projected volumes, it is necessary to have a cross section
with more lanes in one direction than the other (asymmetric lanes) along some Major
arterials. The most typical application would be for arterial segments where adjacent area
land uses result in higher demand in one of the peak periods. Where such demand creates
ORANGE GENERAL PLAN
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the need for an added lane to accommodate the peak surge of traffic, the addition of
through lane(s)in one(asymmetric), rather than both directions of travel, is considered.
Primary Arterials are four-lane divided roadways with medians or continuous two-way left turn
lanes. They can accommodate up to 33,75o vehicles on an average weekday at LOS D
conditions, depending on the degree of access control and peak period loadings. Primary
Arterials provide for easy circulation in the City, and allow for limited on-street, curbside
parking.
Secondary Arterials are four-lane undivided roadways without medians. They can
accommodate up to 21,600 vehicles on an average weekday at LOS D conditions, depending
on the degree of access control and peak period loadings. Secondary arterials allow for on-
street,curbside parking.
Two-Lane Secondary Arterials are two-lane divided roadways with medians or continuous
two-way left turn lanes. They can accommodate up to 17,00o vehicles per average weekday
at LOS D conditions, depending on the degree of access control and peak period loadings.
Two-lane secondary arterials can allow for on-street,curbside parking.
ORANGE GENERAL PLAN
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CIRCULATION AND MOBILITY
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Figure CM-1
Roadway Cross Sections
ORANGE GENERAL PLAN
CM-12
CIRCULATION AND MOBILITY
Collector Streets are typically two-lane roadways without medians that gather and distribute
traffic to higher-capacity arterials. They can accommodate up to io,800 vehicles per average
weekday at LOS D conditions, depending on the degree of access control and peak period
traffic loadings. Centerline striping is typically not provided on collector streets, and on-street
parking is allowed. There are several types of two-lane streets in the City, including divided,
undivided, residential, and collector streets. Each type serves a slightly different purpose and
may have different capacity thresholds based on various factors.
Performance Criteria
Evaluating the ability of the circulation system to serve residents and businesses in Orange
requires establishing performance criteria. Performance criteria have a policy component
that establishes a desired LOS, and a technical component that specifies how traffic forecast
data can be used to measure criteria achievement.
The LOS definition for intersections is based on a volume-to-capacity(V/C)ratio and provides
a more quantitative description of traffic conditions. Table CM-2 presents LOS based on
traffic volumes and the design capacity of intersections.
Table CM-2
Level of Service Definitions for Intersections
Level of Volume-to-Capacity
Service Ratio
Description
A o.00-o.6o Free Flow/Insignificant Delays: No approach phase is fully utilized by traffic and
no vehicle waits longer than one red indication.
B o.6i-o.7o Stable Operation/Minimal Delays: An occasional approach phase is fully
utilized.Many drivers feel somewhat restricted within platoons of vehicles.
C o.7i-o.8o Stable Operation/Acceptable Delays: Major approach phases fully utilized.
Most drivers feel somewhat restricted.
D o.81-0.90 Approaching Unstable/Tolerable Delays: Drivers may have to wait through
more than one red signal indication.Queues may develop but dissipate rapidly,
without excessive delays.
E o.91-i.00 Unstable Operation/Significant Delays: Volumes at or near capacity. Vehicles
may wait through several signal cycles. Long queues form upstream from
intersection.
F N/A Forced Flow/Excessive Delays: Represents jammed conditions. Intersection
operates below capacity with low volumes. Queues may block upstream
intersections.
Source:Highway Capacity Manual,Transportation Research Board,Special Report No.2o9,Washington DC,z000.
Although roadway capacity is generally a function of peak hour intersection performance
and the corresponding peak hour volumes, daily arterial segment capacities (link capacities)
also provide a measure of the overall LOS of the arterial system. Generally, traffic impact
mitigation focuses on peak hour intersection performance, since system performance is
typically a function of intersection performance. The City's policy is to use a link capacity
standard of LOS D.Table CM-3 presents arterial daily capacities at LOS D and LOS E.
ORANGE GENERAL PLAN
CM-13
rat-'"' rs e411111- -eh oattaamonr CIRCULATION AND MOBILITY
4
Table CM-3
Arterial Daily Capacity Threshold Assumptions
Daily Capacity
Street Type LOS D LOS E
Smart Street-6-to 8-lane divided 7i,ioo 79,000
Principal-8-lane divided 67,500 75,000
Major-6-lane divided 50,700 56,300
Asymmetric Major-5-lane divided 42,25o 47,00o
Primary-4-lane divided 33,750 37,500
Secondary-4-lane undivided 21,600 24,000
Two-Lane Secondary-2-lane divided 17,000 i8,75o
Collector-2-lane undivided 10,800 12,000
Source:City of Orange General Plan Update Traffic Report,zoo8.
Various LOS policy standards have been established to evaluate observed traffic conditions,
future development plans, and circulation system modifications.At the local level, the City of
Orange has established LOS D as the lowest acceptable level of service for both roadway
segments and peak-hour signalized intersection movements. At the regional planning level,
Orange County's Congestion Management Plan (CMP) specifies LOS E as the operating
standard for roadways and intersections on the CMP highway system. The CMP Highway
System consists of the Orange County smart street network plus the state highway system.
Thus, the SR-55 northbound and southbound ramps at Katella Avenue are CMP intersections
within the City's jurisdiction. The City does not have an adopted LOS standard for
unsignalized intersections. Performance of unsignalized intersections is evaluated on a case-
by-case basis.
In addition to the LOS standards for roadways and intersections, the California
Environmental Quality Act (CEQA) Guidelines (Section 15064.3), require "vehicle miles
traveled" (VMT), to measure transportation impacts on the community. VMT refers to the
amount and distance of automobile travel attributable to a project.
For purposes of compliance with CEQA, a significant impact would occur if the baseline
and/or cumulative project-generated VMT per service population (population plus
employment) exceeds the anticipated City of Orange General Plan Buildout VMT per service
population. One vehicle traveling one mile would generate one VMT. Additionally, the
project's effect on VMT would be considered significant if it resulted in the baseline and/or
cumulative link-level boundary citywide VMT per service population increases under the plus
project condition compared to the no project condition. Link-level boundary VMT is
calculated by summing all weekday VMT on a roadway network within the City boundary and
includes all trips including trips that pass through the City's roadway network but do not
start and end with in City.
ORANGE GENERAL PLAN
CM-14
CIRCULATION AND MOBILITY
i j
These thresholds are designed to reduce the number of miles traveled by automobiles, and
are implemented within the City of Orange Traffic Impact Analysis Guidelines.
In order to maximize the efficiency of its circulation system, the City will look at where
physical improvements to the circulation infrastructure can be made to expand capacity and
increase traffic flow. To maximize efficiency of the road system, the City will support traffic
signal coordination and spacing, and
will also discourage on-street parking r
along arterials. In addition, the City will
explore ways to reduce the demand
for vehicular transportation,
4 at —1111specificallythroughtheprovisionand
maintenance of bike lanes, bikeways,
and trails, and will also encourage ss,N1,
additional regional transit services and
support facilities. The City's ii+•• .- t
Transportation Demand Management
TDM) ordinance (Chapter 10.83 of the s:.
Municipal Code) further specifies a
y
variety of techniques available to
employers with goo or more
employees to advance the goals of efficiently utilizing the existing and planned
transportation system and reducing vehicle emissions.
City Master Plan of Streets and Highways
Land Use Element policy will allow land use changes and intensification to occur in specific
focus areas within the City. The City's Master Plan of Streets and Highways displayed in
Figure CM-2 has been developed in close coordination with land use policy to ensure that
traffic generated by new development will not compromise the City's goal to ensure that
intersections and roadway segments operate efficiently. The map identifies components of
the City's roadway circulation system. The map also indicates where augmented roads are
needed, and pinpoints locations for enhanced intersections, including the future Meats
Avenue interchange at SR-55. Although most of Orange is already built out, most remaining
developable land is located in the eastern part of the City. New development in east Orange
will require construction of new roads to provide circulation and traffic flow to residents and
businesses. Land Use Element policies enabling reuse and redevelopment within established
portions of the City, particularly within the focus areas, may also necessitate roadway
widening and intersection enhancements. The City will continue to collect funds for
necessary circulation system capital improvements through a program that sets up a fee
structure for all new development and redevelopment projects. This program will require
developers to pay their fair share for transportation system improvements required by new
projects. The City will use the annual seven-year Capital Improvement Program (CIP) process
to prioritize, fund, and complete improvements required to achieve build-out of the
proposed roadway system identified in Figure CM-2.
ORANGE GENERAL PLAN
CM-15
6,;.waaiq CIRCULATION AND MOBILITY
4
Roadway Widening
Roadway widening in specific locations will be necessary to obtain new travel lanes.
Additional travel lanes may be acquired either by obtaining additional rights-of-way as
necessary or by constructing new lanes within existing rights-of-way. Parking restrictions
may be applied to allow additional lanes to be provided within existing rights-of-way.
Old Towne Street Network
The Old Towne street network is a clear example of Orange's grid street pattern. Parallel
roadways have been established in both the north-south and east-west direction to
distribute traffic evenly. The Plaza area at Glassell Street and Chapman Avenue is a unique
feature that creates discontinuous traffic flows along these two primary roadways. However,
no plans have been made to modify the National Register-listed Historic Plaza to increase its
traffic carrying capacity.
ORANGE GENERAL PLAN
CM-16
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NbaiMMINIIMMOMMEIMM k `r CIRCULAT1ON AND MOBILITY
In light of these conditions, parallel roadways such as Almond Avenue, Palmyra Avenue,
Lemon Street, Olive Street, Shaffer Street, Grand Street, Palm Avenue, and Maple Avenue
will continue to serve as local collectors around The Plaza.
Metropolitan Drive Extension
Extending Metropolitan Drive behind the University of California, Irvine (UCI) Medical Center
will help facilitate the movement of north-south traffic near The Outlets at Orange shopping
area, improve access to Interstate 5 (1-5), and relieve congestion on The City Drive.
Metropolitan Drive will be extended from The City Drive/State College Boulevard to the
Metropolitan Drive/Rampart Street connection.
Critical Intersection Program
Intersections serve as traffic control points for the circulation system, regulating the flow of
vehicles along City streets and sometimes limiting the capacity of the system. In the long
term, system capacity and efficiency can both be increased if intersections are designed to
handle future anticipated traffic volumes. Typically, the design of the roadways forming an
intersection dictates the intersection configuration. Department of Public Works standards
indicate that a left-turn pocket may or may not be provided, depending on traffic volumes
through the intersection. However, one pocket may not be adequate to handle vehicles
during peak hours. Traffic may back up into a through travel lane, resulting in congestion at
the intersection and at other locations along the roadway.
One way of providing additional intersection capacity at critical locations is through the use
of special intersection configurations known as "critical intersections." Critical intersections
deviate from typical City design standards by increasing the number of lanes at an
intersection beyond what typically would be required. By increasing capacity at the
intersection,the circulation link increases overall system capacity.
The Master Plan of Streets and Highways (Figure CM-2) identifies the locations of critical
intersections within Orange. A list of these intersections and diagrams depicting their
geometries are on file in the Public Works Department.
Regional Roadway System
The City's local circulation network is connected to an efficient regional circulation system.
Figure CM-2 shows the freeways that traverse the Orange planning area. The Santa Ana
Freeway (1-5) provides interstate and regional access to the City. In addition, SR-57, SR-55,
and SR-22 all provide connections to the City from northern Orange County and neighboring
Los Angeles County, San Diego County, Riverside County, and San Bernardino County. SR-91
and SR-241 provide additional, more limited freeway access. SR-241 is a toll facility controlled
by the Transportation Corridor Agency(TCA).
ORANGE GENERAL PLAN
CM-19
I
CIRCULATION AND MOBILITY
1-5 is a northwest-southeast freeway that passes through the southwest corner of the City,
and provides direct access to Los Angeles County to the north and San Diego County to the
south. 1-5 has two interchanges within Orange—one located at its junction with SR-57 and
SR-22 (commonly known as the Orange Crush) and the other at State College Boulevard/The
City Drive.The junction at the Orange Crush currently has the most severe congestion,which
directly affects the roadway system in the City. With projected future growth in Orange and
in the region, traffic flow at this junction is expected to worsen. The City will continue to
work with and support the efforts of local and regional agencies to mitigate the increased
traffic congestion in this area.
SR-91 is an east-west freeway that provides access to key arterial facilities in Orange,
including interchanges at Tustin Street and Glassell Street. SR-91 also provides regional
access through interchanges with SR-55 and SR-57 and SR-241.
SR-22 is an east-west freeway that crosses through the southern portion of the City. Five SR-
22 interchanges are located in the City, at Tustin Street, Glassell Street, Main Street/La Veta
Avenue, Bristol Street,and The City Drive.
SR-55 is a north-south freeway that passes through the center of Orange, and provides
access to the coastal communities of Orange County. SR-55 has four interchanges in Orange,
located at Lincoln Avenue, Katella Avenue, Chapman Avenue, and SR-22. An additional future
interchange at Meats Avenue is contemplated within this General Plan.
SR-57 is a north-south freeway that originates at the junction of 1-5 and SR-22 and extends to
San Dimas in Los Angeles County. It provides access for the eastern parts of Los Angeles
County, and central and northern parts of Orange County. SR-57 has three interchanges in
Orange, at Chapman Avenue,Orangewood Avenue,and the junctions of 1-5 and SR-22.
The Eastern Transportation Corridor (SR-241) is a north-south toll facility located in the
eastern portion of the planning area. This facility provides direct access to east Orange. SR-
241 has three toll lanes in each direction and provides regional access through an interchange
at Santiago Canyon Road.
Consistency with County Master Plan of Arterial Highways
Maintaining consistency with the County's Master Plan of Arterial Highways (MPAH) is
required in order to ensure that the City's circulation system develops in a manner that
promotes regional mobility. At a practical level, consistency is also required in order for the
City to receive transportation funding under Measure M, also known as OC Go. Orange's
Master Plan of Streets and Highways (Figure CM-2)is generally consistent with the MPAH.
While the City's Master Plan of Streets and Highways has been consistent with the County
MPAH to maintain funding eligibility, both the City of Orange and OCTA have the goal of a
realistic and implementable MPAH. A desire of the City is to work with OCTA to downgrade
La Veta Avenue between Glassell Street and Cambridge Street from a Secondary Arterial to a
ORANGE GENERAL PLAN
CM-2o
CIRCULATION AND MOBILITY
111
Collector Street to reflect physical constraints related to historic buildings and features in the
Old Towne National Register Historic District.
To initiate the MPAH amendment process, a local agency must submit a written request to
OCTA describing the amendment requested and provide documentation to support the basis
for the request. A copy of the request must be submitted concurrently to the City Managers
of adjoining cities. For the facilities under consideration, this would require a letter to be
forwarded to the City of Santa Ana.
Once the initial request is forwarded to OCTA, a conference between the City of Orange,
OCTA, and potential affected jurisdictions is held to determine whether mutual agreement
exists for the MPAH amendment. If mutual agreement exists, then Orange is expected to
proceed with adopting this revision to the Circulation & Mobility Element. Upon adoption,
the City of Orange would submit the Circulation & Mobility Element to OCTA and request
OCTA Board approval of the Orange County MPAH amendment.
Public Transportation
Effective regional transportation strategies are required to successfully implement City and
County plans for accommodating future growth. Such strategies must link the City of Orange
with other regional employment and commercial centers, as well as airports and other
transportation hubs, and should fully integrate alternatives to the automobile. Alternative
modes of transportation, including public transportation, bicycling, and walking, are
important components of a comprehensive circulation system. These modes of
transportation also help reduce air pollution and road congestion.
Public transportation plays a key role in future land use development and mobility. As the
roadway system reaches capacity, alternative modes of transportation provide additional
capacity as well as an enhanced degree of mobility for residents, workers, and visitors.
Existing services are expected to continue while enhancements, many of them currently in
the planning stages, will increase the viability of alternative modes of travel.The integration
into the circulation system of alternative modes of transportation, such as bus, rail, bicycle,
and pedestrian, is essential to maximizing mobility opportunities for residents, workers, and
visitors.
Bus Service
OCTA provides public bus service for the City of Orange. In addition, the Riverside Transit
Agency (RTA) provides long-distance service between The Village at Orange and the
Downtown Terminal in Riverside.Table CM-4 identifies local bus routes that connect various
activity centers in Orange to each other and to the region.
Table CM-5 shows the different community,station link, and inter-or intra-County routes that
serve Orange. Community routes are express bus routes that provide faster connections to
activity centers within and outside Orange County. Station link shuttles provide services
between the Orange Transportation Center(OTC) and Orange. Both community and station
link routes operate only at peak commuter times.
ORANGE GENERAL PLAN
CM-s,
r>
t
CIRCULA1l0N AND MOBILITY40.
In addition to the fixed-route service, OCTA also offers several types of specialized
community transportation services, such as standard service (curb-to-curb service), door-to-
door service, subscription service, and same-day taxi service. Some of these services cater to
senior citizens and people with disabilities residing in the City.
OCTA has forecast bus ridership to increase by approximately 75 percent by 2o3o. Some of
this ridership increase will be the result of enhanced services, including express bus routes
and introduction of bus rapid transit service. Much of the increase will be driven by increased
arterial and freeway congestion levels in conjunction with improved local bus service.
Convenient, accessible, frequent, and easy-to-use public transit is a cornerstone element of
the proposed land use plan. Planned mixed-use residential and commercial areas and
intensified commercial and professional office corridors must be coupled with increases in
transit service. Orange's land use plan features mixed-use districts that strategically
concentrate population density near alternative transit facilities, such as the OTC in Old
Towne, transit hubs at The Outlets at Orange and South Main Street, and the Anaheim
Regional Transportation Intermodal Center (ARTIC) station in Anaheim near the City's
western boundary at Katella Avenue.
Table CM-4
Local Bus Routes
Route# Route Type Route Service Service Corridors Key Orange Activity Centers Served
24 Local Fullerton-Orange Malvern Ave./ The Village at Orange
Chapman Ave.I Lincoln Park and Ride
Tustin St..
42 Local Orange-Seal Beach Lincoln Ave./ The Village at Orange
Los Alamitos Blvd./ Lincoln Park and Ride
Seal Beach Blvd.
46 Local Los Alamitos-Orange Ball Rd./ The Village at Orange
Taft Ave. Lincoln Park and Ride
47 Local Brea-Newport Beach Brea Blvd./ Theo Lacy Jail
Anaheim Blvd./ Orangewood Children's Home
Fairview St. UCI Medical Center
The Block at Orange
5o Local Long Beach-Orange Katella Ave. The Village at Orange
Lincoln Park and Ride
53 Local Brea-Irvine Main St. Batavia Industrial Parks
Children's Hospital-CHOC
St.Joseph's Hospital
OCTA Offices
54 Local Garden Grove-Orange Chapman Ave. Orange Civic Center
Orange Transportation Center
The Plaza
UCI Medical Center
The Block at Orange
Rancho Santiago Community College
ORANGE GENERAL PLAN
CM-zz
mok.4.-w11111r. " ..ill.i01.111. a.r
4
C1RCUUlT1ON AND MOBILITY
Table CM-4
Local Bus Routes
Route# Route Type Route Service Service Corridors Key Orange Activity Centers Served
56 Local Garden Grove-Orange Garden Grove Blvd. Orange Transportation Center
OCTA Offices
Children's Hospital-CHOC
St.Joseph's Hospital
57 Local Brea-Newport Beach State College Blvd./ The Block at Orange
Bristol St.UCI Medical Center
Theo Lacy Jail
Orangewood Children's Home
59 Local Brea-Irvine Kraemer Blvd./ Orange Transportation Center
Glassell St./ Chapman University
Grand Ave./ Orange Plaza
Von Karman Ave.
71 Local Yorba Linda-Balboa Tustin St./ The Village at Orange
Red Hill Ave./ Lincoln Park and Ride
Newport Blvd.
Source:Orange County Transportation Authority,zoo6
Table CM-5
Community,Station Link,Intra-and Inter-County Bus Routes
Route# Type Route Service Service Corridors Key Orange Activity Centers Served
131 Community Yorba Linda-Orange Lakeview Ave./ The Village at Orange
Riverdale Ave./ Lincoln Park and Ride
Tustin St.
147 Community Brea-Santa Ana Raiit St./UCI Medical Center
Greenville St./ The Block at Orange
Fairview St. OCTA Offices
St.Joseph's Hospital
Children's Hospital-CHOC
167 Community Anaheim-Irvine Santiago Blvd./ The Village at Orange
Hewes St./ Lincoln Park and Ride
Bryan Ave.
453 Station Link
Orange Transportation
Chapman Ave./Orange Transportation Center
Center
St.Joseph's Hospital Main St./ Children's Hospital-CHOC
La Veta Ave. St.Joseph's Hospital
OCTA Offices
ORANGE GENERAL PLAN
CM-s3
CIRCULATION AND MOBILITY
Table CM-5
Community,Station Link,Intra-and Inter-County Bus Routes
Route#
Route
Route Service Service Corridors Key Orange Activity Centers Served
213 Intra County Brea—Irvine Express SR-55 Lincoln Park and Ride
The Village at Orange
757 Inter County Diamond Bar SR-57 UCI Medical Center
Santa Ana Express The Block at Orange
RTA 149 Inter County Riverside—Orange SR-91 The Village at Orange
Operated by RTA) Downtown Riverside
Source:Orange County Transportation Authority and Riverside Transit Agency,2006.
The City recognizes that ridership of both the bus and rail transit systems will increase, and
has designed a land use plan that both enables and accommodates increased transit use. A
large part of the City's role in accommodating additional transit use includes providing
convenient and attractive transit amenities and streetscape features that improve user
comfort and perception of safety, thus encouraging transit use. Transit-oriented
Development (TOD) design features will be encouraged in major commercial and
employment areas within the City, such as the Town and Country Road corridor, South Main
Street, Katella Avenue, Uptown Orange, and Old Towne. Such TOD features may consist of
streetscape measures such as bus turn-outs, benches, trash receptacles, shelters from wind
and rain, and lighting. TOD features may also be more fundamental to the permitted uses
and design within projects, such as incorporating child care centers, convenience stores, or
personal services within the retail component of mixed-use projects, or near professional
office concentrations. These and other measures help to make the transit system more
accessible to a wide range of people.
The City will continue to work with OCTA to pursue expanded community circulators, such as
the current Station Link service, that will connect people to rail transit, employment centers,
residential areas, and commercial corridors. Additional options, such as jitney services that
function as group taxis,will also be explored.
The City will also continue to support OCTA initiatives and services that promote the mobility
of Orange's senior, disabled, and youth populations. To accommodate the needs of these
groups, the City will continue to work with OCTA to offer para-transit services, and will seek
ways to improve mobility for Orange youth through transit.
The City of Orange will continue to cooperate with OCTA and other regional providers to
establish new bus routes and stops, and to provide transit amenities. New subdivision plans
will be reviewed by OCTA to assess impacts on bus services, and to examine the need to
provide bus stops or bays. Orange will also work with OCTA to maintain and, if needed,
expand successful transfer stations in Old Towne, the Village at Orange, and The Outlets at
Orange.
ORANGE GENERAL PLAN
CM-24
4C1RCULAT10N AND MOBILITY
Rail Transit
Many current passenger and commuter fixed-rail transit options in the City will be expanded
in the future, offering significant alternatives to automobile transit for many individuals who
commute to or from the City for housing or employment. Rail transit now has a proven track
record in Orange, and Metrolink seeks to expand rail services in support of land use
transformations near current and future rail stations.
Metrolink
Metrolink operates seven commuter rail lines in Southern California, two of which pass
through Orange. The Orange County Line offers direct connections to Union Station in Los
Angeles to the north and to Oceanside to the south. The Inland Empire-Orange County Line
provides direct connections to Riverside/San Bernardino to the east and San Juan Capistrano
to the south. Roughly 3o Metrolink trains pass through the City on a daily basis. The
Metrolink station in Orange is located three blocks from The Plaza at the OTC, close to a
variety of stores and civic uses in Old Towne.
A much-anticipated rail service improvement is intra-county rail service along the County's
core transit corridor. This service, which will be provided by Metrolink on behalf of OCTA, is
an attempt to provide intra-county trips with a high degree of reliability. This 3o-minute
service is planned to operate between the Irvine Transportation Center(and possibly Laguna
Niguel) and the Fullerton Transportation Center throughout the day to supplement
Metrolink's peak period commuter service.
The City recognizes that plans to increase daily service on the current Metrolink lines,
improvements to the OTC, and future expansion of Metrolink services to new destinations
would be beneficial to Orange by providing multi-modal transportation options for people
living and working in the community,thus reducing auto dependence for business and leisure
purposes.
Anaheim Regional Transportation Intermodal Center
The Platinum Triangle, which borders Angel
Stadium in the City of Anaheim, proposes a
tivarietyofhigh-density multiple-family high-rise Ilk 41IP)
housing, office space, and commercial uses. !t„ 4,4
ARTIC is located adjacent to the proposed ' 11 11development, between Angel Stadium and the 7,N
Honda Center. ARTIC is a major regional
transportation center similar in scale to Union
Station in Los Angeles and Ontario
International Airport in Ontario. The
intermodal center is be a stopping point for
Amtrak, Metrolink, buses, and future high-
speed rail systems that connect to Ontario
ignimos-
ORANGE GENERAL PLAN
CM-25
c ..rs.. .
j CIRCULATION AND MOBILITY
Airport, Las Vegas, and the Bay Area.
The City of Orange will coordinate with the City of Anaheim, OCTA, and others to ensure that
the City is able to take full advantage of the regional mobility benefits offered by ARTIC.
Potential benefits offered to the City by ARTIC include:
a dynamic mixed-use commercial and residential center at the westernmost end of
Katella Avenue; and
bicycle and pedestrian connections to the Santa Ana River.
California High Speed Rail Corridor
The California High-Speed Rail Authority was established as a state agency in 1996 to direct
the planning, design, construction, and operation of a future high-speed train system
extending from Sacramento, San Francisco, and Oakland in the north to Los Angeles and San
Diego in the south. This high-speed train is proposed to stop at ARTIC. OCTA estimates that
by 2025, the California High Speed Rail Corridor will serve between 150,00o and 230,000
passengers each week.
Sidewalks , Trails and Bikeways
Walking and biking contribute to a healthy community, and play increasingly significant roles
as alternatives to the automobile. The City recognizes this by providing and maintaining
sidewalks,trails,and bikeways to support pedestrians and cyclists.
Pedestrian Facilities
In addition to providing basic transportation routes, sidewalks and pathways offer the
opportunity to create appealing public spaces that reflect community pride and invite people
to walk. Proposed mixed-use areas and reinvigorated commercial areas throughout the City
will provide new and reinvented spaces for people to walk and shop. Walkability and access
are essential components of a circulation system that easily and specifically accommodates
pedestrians. Features that contribute to walkability include wide sidewalks, safe street
crossings, design elements that encourage cautious driving, and a pleasant and safe walking
environment. Sidewalks, walkways, well-designed pedestrian crossings, pathways, and
pedestrian short-cuts allow people to get from one destination point to another with ease.
Dedicated pedestrian paths can provide access between residential and activity areas,
especially if streets do not connect.Access strategies for school children,seniors, and people
with disabilities should also be incorporated into street and sidewalk plans.The City supports
proactive integration of pedestrian improvements and amenities within the circulation
system to improve walkability.
The City will create and implement a pedestrian-oriented streetscape master plan addressing
key commercial corridors, including Tustin Street, Chapman Avenue, Main Street, Lincoln
Avenue, and Katella Avenue. The master plan will address all functional aspects of the
pedestrian environment. It will identify pedestrian links that need improvement and
ORANGE GENERA.PLAN
CM-26
ENE,
C1RCUlATION AND MOBILITY
strengthening, determine new pedestrian links to underserved areas, ensure adequate
sidewalk widths to accommodate lighting and street trees, develop sidewalks in the
industrial area that create links between bus stops, encourage safe routes to schools and
recreation facilities, and minimize barriers to pedestrian and bicycle access.
Recreational Trails and Bikeways
A comprehensive network of recreational trails and bikeways greatly benefits Orange
residents and visitors by providing popular modes of transportation for recreation. In
addition to recreation activities, the City also supports walking and bicycling as viable
commute alternatives to the automobile. The City's plan for recreational trails and bikeways
is shown in Figure CM-3.
The plan includes trails maintained by the County and private homeowners associations, and
is consistent with the OCTA Commuter Bikeways Strategic Plan. It is also consistent with the
County's major riding and hiking trails and off-road paved bikeways. As described in the
Vision for the Future, the plan will enable the City to connect parks to activity centers and
residential areas using a combination of recreational trails and bikeways that truly allows
people to travel from place to place within the City without needing an automobile.
Recreational Trails
As shown in Figure CM-3, over 7o miles of existing recreational trails are located within the
City, connecting a large number of neighborhoods and community parks. In addition, 104
miles of proposed future trails are planned throughout Orange on land currently utilized for a
variety of purposes, including flood control, railroad rights-of-way, and roadways.
The City will use the annual five-year Capital Improvement Program (CIP) process to
prioritize,fund, and build proposed trail segments identified in Figure CM-3. These trails have
been and will continue to be constructed and administered through cooperative efforts of
the City, County,developers, and private homeowner associations.
Desired cross-sections for recreational trails are identified in Figure CM-4. The City may
require construction of portions of proposed trails identified in Figure CM-3 as a condition of
development approval for projects located adjacent to the proposed trail alignments.
Funding for recreational trails and associated restoration projects comes from a variety of
federal, state,and regional sources. Priority for funding of trail improvements will be given to
projects that complete loops within the system, provide missing links for regional and local
trail systems, or serve as destination links to schools, parks, retail businesses, or regional
trails.
Priorities for the recreational trail system include:
trail connections to the Santiago Oaks Regional Park extension west of Cannon Street,
consisting of a connection between Calle Grande and Cannon Street, and the Jamestown
trail from the Orange Park Acres equestrian arena to Cannon Street;
amommmisi-
ORANGE GENERAL PLAN
CM-27
C1RCUlATION AND MOBILITY
trail connection from Serrano Avenue near Fred Barrera Park to Santiago Oaks Regional
Park;
Mabury Ranch Trail connection from the proposed Cerro Villa Park to the Santiago Oaks
Regional Park;
Serrano Avenue connection near Cannon Street; and
Additional trail connection into Santiago Oaks Regional Park from Orange Park Acres.
To increase the number of people using non-vehicular means of transportation, the City will
encourage putting in place a safe network of crosswalks,grade separations,and walkways to
ensure the safety of pedestrians, bicyclists, and equestrians. Where appropriate, traffic
calming devices and methods such as median landscaping and provision of bike or transit
lanes should be used to slow traffic, improve roadway capacity, and address potential safety
issues. The City will continue to work towards improving the overall condition, appearance,
and safety of both medians and sidewalks in Orange.
Bikeways
Orange's relatively mild climate
permits bicycle riding year-round, and P•
the growing popularity of bicycling has
drawn enthusiasts onto the streets
and bike trails throughout the City.The
plan for recreational trails and
bikeways (Figure CM-3) shows the
planned system of bikeways within the
City. The Orange Bikeway Master Plan
4
has established three classes of bicycle r
routes that adhere to California
Department of Transportation
Caltrans)standards: i
Class I Off-road bike paths are located on vacated rail lines,water corridors,or areas
otherwise separated from streets.
Class II On-road bike lanes are located along arterial roadways that are delineated by
painted stripes and other features.
Class III On-road bike routes share use with motor vehicle traffic.They provide a route
that is signed but not striped.
ems e L.--
ORANGE GENERAL PLAN
CM-28
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Figure CM-4
Trail Standards
Cross-sections for each type of route are shown in Figure CM-5.
As shown in Figure CM-3, several future bike routes are planned within Orange, including the
following high-priority projects:
Completing Class I bike routes along Santiago Creek and the Tustin Branch Trail
Establishing Class II bike lanes, including:
ORANGE GENERAL PLAN
CM-3,
CIRCULATION AND MOBILITY
1)714
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2'MIN
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pT BECAUSE PARKING IS LIGHT)BUT THERE IS
5'MIN CONCERN THAT MOTORISTS MAY MISCONSTRUE
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Bikeway Standards
ORANGE GENERAL PLAN
CM-32
CIRCULATION AND MOBILITY
o An east/west corridor on Walnut Avenue from the western City limits to
Santiago Boulevard
o North/south corridors on Main Street from Taft Street to Palm Street, on
Batavia Street from Chapman Avenue to La Veta Avenue, and on Parker
Street from La Veta Avenue to the City limits
Establishing Class III routes along Almond Avenue, Feldner Street, and Bedford Street
The City has completed a paved bike trail along Santiago Creek from Tustin Street to the
western City limit that continues on to Main Place Mall and the Discovery Science Center as
well as two additional segments to the bike trail,which extends the Santiago Creek Trail from
Tustin Street to Grijalva Park, and also connect Grijalva Park at Santiago Creek to Collins
Avenue along the City-owned portion of the Tustin Branch Trail right-of-way between Walnut
and Collins Avenues. The Santiago Creek trail is planned to extend through and beyond the
City, connecting the regional Santa Ana River Trail to Santiago Oaks Regional Park and
wilderness areas east of Orange. The City will continue to work towards designing a
comprehensive bike trail system that is highly accessible and safe for those who wish to use
it.
The City has proposed Class II and III routes along many north-south and east-west arterials,
all of which connect to pedestrian trails and Class I routes. The City responds to the need to
provide safe and efficient bike travel by making every effort to provide bikeways separate
from the roadway. When bicyclists must share the road with automobiles, the City will work
to improve overall safety.
Currently, two bicycle parking facilities are located in Orange, at the OTC (Metrolink station)
and the Old Towne West Metrolink Parking Structure. The City will work to provide greater
bike amenities including delineated bike lanes and clear signage along bike trails.The City will
also install bicycle racks and safe storage facilities at parking areas for City facilities, as
appropriate, and will require privately developed projects to incorporate on-site bicycle
facilities in accordance with the City's Zoning Code(Title.7 of the Orange Municipal Code).
Parking Facilities
Although parking is often considered a separate issue from vehicle circulation, it is important
to address on-street parking because it
I I has a direct effect on roadway capacity.
In order to facilitate improved traffic
V441
flow along Orange's major arterials, the
City generally plans to permit on-street
parking only on streets classified as
Primary or Secondary Arterials orI
o. Collector Streets.
Y rim
Off-street parking deficiencies can
reduce business activity, and can cause
ate `
ORANGE GENERAL PLAN
CM-33
4 . , CIRCULATION AND MOBILITY
vehicles to re-circulate on public streets, which increases traffic volumes and congestion by
reducing capacity for through traffic. The City's Zoning Code includes parking requirements
to ensure that an adequate number of spaces are provided on-site for most uses. The Code
also establishes minimum stall dimensions consistent with current standards for other
jurisdictions.These regulations apply to all new developments,and may be applied to current
uses that are modified or expanded.
Particular concern has been expressed within the community regarding current and
expected future parking shortages in Old Towne. Figure CM-6 identifies the location of
existing public parking lots in Old Towne. Most Old Towne parking lots have a maximum time
limit of three hours, with or without a permit. However, some parking lots, such as the OTC
parking located off Chapman Avenue, have no time limit.
Orange will continue to provide sufficient parking to meet community demands. In Old
Towne, the City will study the benefits of creating a parking district and the feasibility of
developing underutilized parking lots surrounding The Plaza as public parking facilities. The
City may encourage the use of shared parking, consolidated parking facilities, and
underground parking or parking structures to provide additional off-street parking to meet
future demands in areas throughout the City with higher concentrations of commercial uses.
Circulation System Aesthetics
The City has determined that it is necessary and desirable to improve certain roadways and
their rights-of-way to enhance the experience for all users of these corridors. Major
commercial corridors have been designated within the Urban Design Element to be improved
with pedestrian-scale enhancements. Enhancements could include street trees, sidewalk
improvements, lighting, bus shelters, and crosswalks. These improvements not only offer a
more aesthetically-pleasing experience for all users in these corridors, they also may offer
increased safety and security.
Streetscape improvements offer safety and security to both motorists and non-motorists
through increased visual cues, better visibility, and increased activity. Many streetscape
enhancements provide not only a comfortable environment for the pedestrian and bicyclist,
but also offer drivers visual cues that a non-motorist could be expected in an area.
Improvements such as striping, bus shelters, and pedestrian-scaled signage guide the non-
motorist towards areas that are most appropriate for their use. These same cues help the
motorist to see where the presence of pedestrians and bicyclists is most likely to occur. For
example, a well-marked crosswalk guides the pedestrian towards the location in the right-of-
way most appropriate for crossing, while also alerting the motorist to slow down and look
out for pedestrian traffic.
Visibility offered by pedestrian-scaled lighting benefits non-motorists and motorists alike.
Pedestrians and bicyclists are better able to see their way, which increases their feelings of
security. Improvements that create a sense of security for pedestrians encourage increased
use and activity. This increased activity, in turn, leads to a greater feeling of safety. The City
has acknowledged the importance of improving the experience of users on many of its major
commercial corridors.
ORANGE GENERAL f L4N
CM-34
misem 10,_pasimism. CIRCULATION AND MOBILITY
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Figure CM-6
Public Parking Lots in Old Towne Orange
Note: Possession of City issued parking permit enables holder to exceed specified time limit
GPA 2010-0001(8/1oho)
ORANGE GENERAL PLAN
CM-33
CIRCULATION AND MOBILITY
CIRCULATION & MOBILITY IMPLEMENTATION
The goals, policies, and plans identified in this Element are implemented through a variety of
City plans, ordinances, development requirements, capital improvements, and ongoing
collaboration with regional agencies and neighboring jurisdictions. Specific implementation
measures for this Element are contained in the General Plan Appendix.
ORANGE GENERAL Pwv
CM-36