RES-11242 Amendment to General Plan Circulation and Mobility Element and Implementation PlanRESOLUTION NO. 11242
A RESOLUTION OF THE CITY COUNCIL OF THE
CITY OF ORANGE APPROVING GENERAL PLAN
AMENDMENT NO. 2020-0001 AMENDING THE CITY
OF ORANGE GENERAL PLAN CIRCULATION AND
MOBILITY ELEMENT AND IMPLEMENTATION
PLAN TO ESTABLISH CONSISTENCY WITH THE
CALIFORNIA ENVIRONMENTAL QUALITY ACT
STATUTE AND CITY PRACTICE.
APPLICANT: CITY OF ORANGE
WHEREAS, the California Legislature has amended the California Environmental
Quality Act (CEQA) (Public Resources Code Section 21000 et seq.), the California Natural
Resources Agency has amended the State CEQA Guidelines (California Code of Regulations,
Title 14, Section 15000 et seq.), including changing the metric for measuring development-
related transportation impacts to "vehicle miles traveled;" and California courts have provided
additional interpretations of specific provisions of CEQA; and
WHEREAS, the State CEQA Guidelines require local agencies to adopt "objectives,
criteria and procedures" to implement the requirements of the State CEQA Statute and the State
CEQA Guidelines (CEQA Guidelines Section 15022); and
WHEREAS, the current City of Orange General Plan and associated Implementation
Plan identify the metric to measure development-related transportation impacts as Level of
Service (LOS); and
WHEREAS, an amendment to the City of Orange General Plan was deemed necessary to
keep the City's General Plan consistent with the State CEQA Statute and local practice,
including implementation of Senate Bill 743 with the adoption of a methodology and thresholds
to analyze transportation impacts; and
WHEREAS, the Planning Commission has authority per Orange Municipal Code
Section 17.08.020 to hold a public hearing to make a finding by resolution stating its
recommendation to the City Council on amendments to the General Plan and to make fmdings
with respect to amendments to the Local CEQA Guidelines; and
WHEREAS, the Planning Commission, having considered the proposed changes to the
General Plan contained herein at a public hearing held on May 18, 2020, including review of the
staff report and receiving public testimony on the item, has determined that General Plan
Amendment No. 2020-0001 is justified and recommended City Council approval thereof by a
vote of 5-0; and
NOW, THEREFORE, BE IT RESOLVED that the City Council adopt the General
Plan Amendment contained in Attachment A, attached hereto, based on the following findings:
SECTION 1-FINDINGS
1. The General Plan Amendment implements the goals of the General Plan Land Use,
Circulation and Mobility, Growth Management and Natural Resources elements to
promote compact "infill" future development, focusing on introducing urban-scale
mixed-use projects located at locations near transportation corridors and transit, and
creating additional retail and employment opportunities within the City that increase
the range of goods and services available to residents and improve the community's
job-housing balance.
2. The General Plan Amendment implements Senate Bill 743 by adopting an updated
methodology and thresholds to analyze transportation impacts under CEQA and to be
consistent with State law.
SECTION 2-ENVIRONMENTAL REVIEW
The General Plan Amendment is categorically exempt from the provisions of the
California Environmental QualiTy Act per CEQA Guidelines Section 15308 (Class 8 — Class 8,
Actions by Regulatory Agencies for Protection of the Environment) because it involves an
amendment to the City of Orange General Plan to make it consistent with the current provisions
and interpretations of CEQA and the State CEQA Guidelines. It does not involve a specific site,
development project, or focused geographic area, does not change permitted land use or density
and does not otherwise result in a physical change that could cause an impact to the environment.
ADOPTED this 14th day of July 2020.
Mark Murphy, Mayor, o Orange
ATTEST:
Pamela Coleman, City Clerk, City of Orange
Resolution No. 11242 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 14th day of July 2020,by the following vote:
AYES:COiJNCILMEMBERS: Alvarez, Murphy,Nichols, Monaco
NOES:COITNCILMEMBERS: None
ABSENT: COUNCILMEMBERS: None
ABSTAIN: COUNCILMEMBERS: None
Pamela Coleman, City Clerk, City of Orange
Resolution No. 11242 3
C t o v
l o L I T
1
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 887, the Santa Fe Railcoad 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 87os, 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 886 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.
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Rev. GPA 2014-0001 (12/8/15)
Rev. GPA 2010-0001 (8/10/10)
CIRCULATION AND MOBILITY
Orange's Vision for the Future, described in the Generai Plan Introduction,recognizes `that
the circulation system is a key component of the quality of Jife in the City. Accordingiy, the
vision,includes the following objec#ives:
Residential areas tirill be connected to commercial, recreational,and open space areas, as
well as educational and cultural facilities via a balanced, multi-modal°circulation networ.k
that accomrnodates vehicles, pedestrians, cyclists, hikers,_and equestrians.This network
will create additional opportunities`for wal,king and`biking, enhancing safety and well-
being for neighborhoods and businesses.
The City will work to_define neighborhoods through.fhe use of open space areas and a
trail system that provides a source of aesthetic beauty and recr.eational-opportunities.
These open space areas support.a healfhy 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 ar.eas 6y vehicle, transit,- foot; bieycle or, _where
appropriate,horse. -
Purpose of the Circulation & Mobility Element
California's General Plan Guidelines mandate that the Circulation & Mobility Element fulfill
fhe 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 thocoughfares,transportation
routes,tecminals, other local public utilities and facilities:"The goal of the Circulation&
IVlobility Element is to identify circulation problems related to these facilities in_the early
stages and resolve them in local goals and policies withoutcostly delays.
Other relevant issues discussed in. the Circulation & Mobility Element include those that
adclress 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 tlie residential areas helps to#rame the urban#orm.
Connections between neighborhoo.ds can be achieved by a comprehensive network of
sidewalks and trails. Also, the eommereial 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 tocal, regional, and state transportation plansto better resolve circulation
issues. Since many transportation concerns are regional, addressing_ them .requires
intergovernmental and regional transportation management plans and. poliey
implementation. These partnerships ensure the most efficient use of funding, infrastructure,
and other resources. The state .also recommends the "preservation of transportation
cor.ridors for future system improvements."
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CIRCULATION AND .MOBILITY
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 rnore pedestrian-
friencJly 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
econ.omic 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:
Introduction;
z) Issues, Goals, and Policies; and
3)The Circulation &Mobility Plan.
The first section introduces tlie contents of the Circulation & Mobilify 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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CIRCULATION AND MOBILITY
Relationship to othe.r General Plan Elements
California planning law requires that the Circulation & Mobility Element correlate and
maintain consistency with the other Gener.al Plan elements. The Circulation & Mobility
Element relates most closely to the Land Use, Natural Resour.ces; Noise, Economic
Development, Housing, and Urban Design Elements.
The Circulafion & Mobility Element is linked to the Land Use Element b.ecause 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 defirie 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 IVatural .Resour.ces .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 cornmon 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 mitigat on strategies.
The Economic Development Element identifies desirable economic conditions and land uses
that enhance.and promote business aetivity, 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 futur.e transportation.infrastructure.needs. Maintaining roadways, bikeways and.
bus and rail transit facilities is cr-itical to the success of both cur.rent 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 physieal environment contributes to its identity, attracts
new residents, and.sets the stage for eeonomic 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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CIRCULATION AND MOBILITY
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 wiiie.range of viable transportation options to Orange residents. The following six issues
are addressed: () enhancing the local circulation system; (z) 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 gricl 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.:Plan, build, and maintain an integrated, hierarchical, and multi-modal system
of roadways,pedestrian walkways,and bicycle paths throughout the City.
Policy.z:Identify key intersections and streets with historical or projected traffic
congestion problems and apply creative traffic management measures .to
improve.overall circulation.
Policy.3:Consider various methods to increase safety on City arterials and
neighborhoocl 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.4:Prohibit on-street parking where possible to reduce bicycle/automobile
conflicts in appropriate target areas as recommended by the Bikeways Master
Plan.
Policy,5:Address possible safety and noise effects of increased rail activity on grade
crossings throughout the City.
Policy.6:Maintain and repair roadways and sidewalks as necessary to improve
circulation and safety.
Policy.7:Consolidate driveways along roadways that provide access to commercial
uses to minimize side street interruption ancl promote smooth traffic flows.
ORANGE GENERAL PLAN.
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CIRCULATION AND MOBILITY
On-street par-king is prohibited on commercial access streets to provide
adequate curb-to-curb width for travel Ianes.
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-zi), Costa Mesa Freeway(SR-55),
Riverside Freeway (SR-g).and Eastern Transpoctation Corridor (SR-z4)..In .addition to the
freeways, other .connections to #he region include the commuter rail system known as
Metrolink,.a freight and goods raif 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 z.o: Provide an effective regional transportation network:
Policy z.:Ensure consistency with the County MPAH in order to qualif.y for funding
programs.
Policy Z.z: Coordinate with adjacent cities to plan and develop major east west and
north/south arterials and.rapid transit to connect-the City with the citie5 of
Anaheim, Tustin, Santa Ana, Garden Grove, and Villa Park, as well as
developing areas within the City's sphere of influence.
Policy z.3: Cooperate with and support local and regional agencies' efforts to improve
regional arterials and transit in order to acldress increasing traffic congestion.
Policy z.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 z.5:Ensure that transportation facilities and improvements do not degrade the
quality of Orange's commercial and residential areas.
Policy z.6: Encourage the use of regional rail, transit, bicycling, carpools, and vanpools
for work trips to relieve traffic congestion.
Policy z,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 pwblic transit system
pr.ovides an alternative mode of tra el.for those with limited mobility,residents who may not
have access to a car.,and persons who choose not to drive.
GOAL 3.0: Connect centers within the City to each otlier and to the region through
efficient and accessible public transportation.
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CIRCULATION AND MOBILITY
Policy 3.:Work with OCTA and other agencies to assess City public transportation
needs and to ensure delivery of services when and where they ace needed.
Policy 3.z: Enhance .and encourage provision of convenient ancl 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 ar.eas as well as in medium density residential
and mixed-wse 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 polieies will encourage increased pedestrian activity on City sidewalks for
6oth business.and pleasure. An effective pedestrian, bicycle, and equestrian network must
be safe and aceessible, and must connect key activity centers within theCity with each other
and with the regional trail system. A comprehensive network of on-street bicycle lanes, off-
street bicycle paths,.siclewalks,.and trails should be developed and maintained to incr.ease
the safety and utility. of the system, with a particular focus.on the City's sidewalk deficient
iridustrial areas
GOAL 4.0: Provide efficient and accessible modes of pedestrian, bicycle, and
equestrian transportation and improved facilities and amenities.
Policy 4.: reate 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.z: 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: Eneourage 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.
Folicy 4.6: Explore opportunities to convert aba,ndoned rail corridors into segments of
the City's bikeway and pedestrian trail system.
Policy 4.7: Provide ADA accessible sidewalks and ,pedestrian amenities throughout the
City. _
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CIRCULATION AND MOBILITY
Policy 4.8: Expand and maintain an equestrian trail network and pr-ovide for appropriate
staging areas and infrastructure.
Parking Facilities
A shortage of parking can cause circulation problems and could Iead 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.:Provide adequate parking to protect and support the economic vitality and
diversity of Olcl Towne.
Policy 5.z: Plan for and design parking facilities throughout the Gity tfiat are aclequate 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, saf.e, and visually integrated with
existing development.
Girculation 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 6.0: Provide roadway corridors that are aesthetically pleasing and contribute to
a feeling of safety, security, and comfort for motorists, bicyclists, .and
pedestrians.
Policy 6.:Supply adequate, clear, and correctly placed signage to direct both motorists
and non=motorists toward destinations and,away from hazards:
Policy 6.z: Provide clear indicators in the right-of-way for where pedestrians _and
bicyclists are encouraged to walk, bike, or cross safely. Tliese may include
special paving, line stripes,and crosswalks.
Policy 6.3: Provide ligliting, landscaping, street trees, and other appropriately scaled
sfireetscape features that.aceommodate all users on commercial corr.idors.
Where appropriate, lighting should be scaled for autos as well as pedestrians.
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CIRCULATION AND MOBILITY
CIRCULATION & MOBILITY PLAN
The objective of the Circulation & IVlobility Plan is to document .existing transportation
facilities in.the planning area used for the movement of people and goods. .The Element. . .
addr.esses the desired futur.e 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
irculation 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 Av.enue, 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 Cify.
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 up.on 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 LO5 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 aecommodate traffic.
In the City, intersections are used as actual control points. City roadways consist of both
divid.ed 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, ancJ therefore left-turning tra.ffic can
impede through traffic. Undivided roadways rnay provide turn movement pockets at
intersections. The six .categories of roadways in Orange are summarized in Table CM-.
Froposed cross-sections for.each type of roadway are shown in Figure CM-.
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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CIRCULATION AND MOBILITY
Table CM-t
Roadway Classifications
Classification Facility l'ype Characteristics
Smart Street Smart Street 4-8 lane divided,with possible signal coordination,intersectiorrcepacity
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
Frimary Arterial 4 Lane Divided Serves through and local traffic
Secondary Arterial 4.Lane Undivided Serves through and local traffic
Collector Street z Lane Serves mostly local traffic
Smart Streets are typically four- to eight-lane roadways with enhanced capacity and
smoother traffic flow than standard arte ial streets. These streets have enhanced features
such as traff. ic 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.
Pcincipal Arterials.are typically eight-lane divided roaclways with_medians or continuous two-
way left turn lanes.They can accommodate.up to 67;goo vehicles on an average weekday at
LO5 D conditions, depending on the degree of access confrol, peak period traffic loadings,
and lane configurations at major intersections. Principal arterials prohibit on-street, curbside
parking,and connect.directly to freeways.
Major Acterials 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 weekclay 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 also prohibit on-street,eurbside parking.
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. Frimary
Arterials provide for easy circulation in the City, and allow for limited on-street, curbside
parking.
Secondary Arterials are f.owr-lane undivided roadways without medians. They can
accommodate up to zi,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.
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CIRCULATION AND MOBILITY
r;'
33' 33'
d' 23' 23' 1 ' •
5,
cenleAi e
Collector Street
86'
43' 43'
35' 3 '
Centedine
Secondary i4rterial
100'
5Q' 50'
8' 42' 42' S'
I I
CemeRne
Raisotl Median Optlonol .
Primary Arterial
120'
60' 60'
52' S2'
CanloAina
Re sea Maalan Optianat Major Arte[ial
134'(Variable to 144')
6T 67'
8' S9' 59' 8,
7' 7'
Centetline
Ralsatl MeClatrOptlonal
Principal Arterial and Smart Street
Variable Cross Section)
Figure CM-
Roadway Cr.oss Sections
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CIRCULATION AND MOBILITY
Collector Streets are typically two-lane roadways without medians that.gather and distribute
traffic to liigher-capacity arterials. They can accommodate up to 0,80o vehicies per average
weekday at L05 D conditions, depending on the degree of access control and peak period
traffic loadings.Centerline striping is typically not provided on colleetor streets:,and on-street
parking is allowed. There are_several types of two-lane streets in the City, including divided,
undivided,r.esidential,.and collector streets. Each type serves a slightly.diff. erent purpose and
may have different.capaeity 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. Ferformance criteria have a policy component
that establishes a de5ired LOS, and a technical component that specifies how traffic forecast
data can be used to measure criteria achievement.
The LOS definition for inter.sections is based on a volume-to-capacity(V/C)ratio and provides
a more quantitative description of traffic conditions. l'able CM-z presents LOS based on
traffic volumes and the design capacityof intersections.
Table CM-z
Level of Service Definitions for Intersections
Level of Volume-to-Capacity
Senrice Ratio
Description
A o.00-0.6o Free Flow/Insignificant Delays:No approach phase is fully utilized by traffic and
no vehicle waits longer than one red indication:
B o.6-0.7o Stable Operation/Minimal Delays: _An occasional approach phase is fully
utilized.Many drivers feel somewhat restricted withirrplatoons of vehicles.
C o:7-0.8o Stable Operation/Acceptable Delays: Major approach phases fully utilized.
Most drivers feel somewhat restricted.
D o.8-o.go 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.g-.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: Repr.esents jammed conditions. Intersection
operates below capacity with low volumes. Queues may block upstream
intersections.
Source:Highway Capacity Manual,Transportation Research Board,Special Report No.zo9,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 pe .rformance 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 GENERAI, PLAN
GM-12
L
CIRCULATION AND MOBILITY
Table CM-3
Arterial Daily CapacityThreshold Assumptions
Daily Capacity
Street Type LOS D LOS E
Smart Street-.6-to.8-lane divided 7,too 79;000
Principal-8-lane divided 67,500 75,000
Major-6-lane divided 50,700 56,300
Primary-4-lane divided 33 750 37,500
Secondary-.4-lane undivided zi,600 z4,000
Collector-z-lane undivided io,800 iz,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
with'in the City's jurisdiction. The City does not ha e an adopted LOS standard for
unsignalized intersections. Pe .rformance of unsignalized intersections.is evaluated on a case-
by-case basis.
In addition to the LOS standards for roadways and intersections, tfie California .
Environmentaf Quality _Act_ (CEQA) Guidelines (Section 5064:3), require "vehicle .miles
traveled" (VMT), to measure transportation.impacts.on the community. VMl" 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 vehiele. traveling one mile woulcl generate one VMT. _Additionally, the
project's efFeet 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.
These thresholds are designed to reduce the number of miles traveled by automobiles, and
are implemented within the City of Orange Tra ffic Impact Analysis Guidelines.
Ox GE GErrEt,x, Pr,r,rt
CM-13
CIRCULATION AND MOBILITY
In order to maximize the efficiency of its cir.culation system,. tlie City will look at where
physical improvements to tlie circulation infrastracture can be.made to_exparid.capacity and
increase.traffic flow. To maximize e .fficiency of the road system, the City will support traffic
signal coordination and spacing; and will
also discourage on-street parking along ''`
arterials. In addition, the City will
explore ways.to reduce the demand for
vehicular transportation, specifically
through the provision and maintenance
of bike lanes, bikeways, and trails, and
will also encourage additionaG regional
transit services and support facilities. .
The City's Transportation Demand
Management(TDM}ordinance(Chapter .
0.83 of the Municipal Code) further J,_ _y_ e...
specifies a variety of techniques ...
available to employers with oo.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-z 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 fo ensure that
intersections and coadway 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 enhaneed intersections, including the future Meats
Avenue interchange at SR-55. Although most of Orange is.alceady 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 tfie 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 tr.ansportation system improvemenfis 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-z.
Roadway Widening
Roadway widening in specific locations will be necessary to obtain new travel Ianes.
Adclitional travel lanes may be acquired eitber by obtaining additional rights-of-way as
necessary or by constructing new lanes within existing rights-of-way. Parking restrictions
maybe applied to allow additional lanes to be provided within existing rights-of-way.
ORArrGE GErrE P
CM-14
t
CIRCULATION AND MOBILITY
r
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 cr-eates 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-15
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Ri 3.7 C- .E )_..1' tf t,' P3 C
CIRCULATION AND MOBILITY
In light of these conditions, parallel roadways such as Almond Avenue, :Palmyra Avenue,
Lemon Street, Olive Street, Shaffer.5treet, Grand Street, Palm Avenue, and Maple.Street.will
continue to serve as local collectors around.Tlie.Plaza.
Metropolitan Drive Extension
Extending Metropolitan Dr.ive behind the University of California, Irvine(UCI) Medical Center
will help facilitate the movement of.north-south traffie near The Block at Orange shopping
area, .impr.ove access to Interstate 5 (I-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 systern, regulating the flow of
vehicles along City streets and sometimes limiting the.capacity of. the system. In the Iong
term, system capacity and efficiency can both be increased if intersections are.designed_to
handle futur.e anticipated traffic volumes. Typically, the design of the roadways forming an
intersection dictates the intersection configuration. Department of Public V1lorks standards
indicate that a left-turn pocket may or may not be provided; depending on.fraffic volumes
through the intersection. .However, one pocket may not 6e 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.addifional 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-z) 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 networ.k is connected to an efficient regional circulation system.
Figure.CM-z shows the freeways that traverse the Orange planning area. The Santa Ana
Freeway (I-5) provides interstate and regional access to the City. In addition, 5R-g7, SR=55,
and SR-zz all pr.ovide co.nnections to the.City from northern Orange County and neighboring
Los Angeles County, San Diego County, Riverside County, and 5an Bernardino County. SR-g
and SR-z4 provide additional, more limited freeway access. SR-z4 is a toll facility controlled
by.the Transportation Corridor Agency(TCA).
I-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: I-5 has two interchanges within Orange—one located at its junction with SR-57 and
SR-zz(commonly known as the Orange Crush)and the other at State College Boulevard The
ORANGE GENERAL PLAN
CM-17
CIRCULATION AND MOBILITY
City Drive.The junction at the Orange Crush currently has the most severe congestion,which
directly affects the roadway system in the City. With projecfed future growth in Orange and
in the region, traffic fiow at this.junction is expected to .worsen, Tlie 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-g is an east-west freeway that provides access to key arter.iaf facilities in Orange,
including interchanges at Tustin Street and Glassell Street. SR-g also provides regional
access through interchanges with SR-55 and SR-57 and SR-z4.
SR-2z is.an.east-west#reeway that crosses through the souther-n portion of the City. Five SR-
zz interchanges are located in the City, at Tustin Street, Glassell Street, Main Street La Veta
Avenue, Bristbl Street; and.The City.Drive.
SR-S5 is a north-south freeway that passes through the center of Orange, and provides
access to tlie coastal communities of Orange County. SR-55 has four interchanges in Orange,
located at-L.incoln Avenue, Katella Avenue, Chapman Avenue, and SR-zz.An additional future
interchange at Meats Avenue.is contemplated within tliis General Plan.
SR=57 is a north-south freewa.y that.originates at the junction of 1-5 and SR-zz.and extends to
San Dimas in Los Angeles County. .It provides access foc the eastem parts of Los Angeles
County, and central and northern parts of Orange County. SR-57 has three interehanges in
Orange,at Chapman Avenue;Orangewood Avenue,and the junctions of I-5 and SR-zz.
The Eastern Transportation Corridor (SR-z4) is a north-south toll:facility located in the
eastern portion of the planning area. This facility provides.direct access to east Orange. SR-
z4 has three toll lanes in each direction and provides regional access through an ihterchange
at Santiagb 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 pcactical level, consistency is also required in order for the
City to receive transportation funding under Measure M. Orange's IVlaster Plan.of Streets and
Highways(Figure CM=z).is generally.consistent with the MPAH.
V1/hile 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
cealistic and implementable MPAH. In keeping with this spirit, in zoio as a follow up to
adoption of this General Flan,the City worked with OCTA on amendments to the MPAH and
Master Plan of Streets ancl Highways that downgraded the long-standing classification.of
Chapman Avenue and Glassell Street from 4-lane Primary Arterials to z=lane.Collector Streets,
and removed the ritical lntersection classification of the Plaza. A remaining desire of the
City is to work with OGTA to downgrade La Veta Avenue between Glassell Street and
Cambridge Street from a Secondary Arterial to a Collector Street to reflect physical
constraints related to historic buildings and features. in the Old Towne National Register
Historic District.
Ox,rtGE GEr Rar. PLarr
CM-18
d
CIRCULATION AND MOBILITY
i
To initiate the.MPAH amendment process, a local.agency must submit a written request to
OCTA describing.the arnendment requested and provide.documentation to support the basis
for fhe request.A copy of the request must be submitted concurrently to the City Managers
of adjoining cities. For the facilities.under eonsideration, 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. Up.on adoption,
the City of Orange would submit the Circulation & Mobility Element to OCl'A and request
OCTA Board approval of the Orange County MPAH amendment.
Public Transportation
Effective regional transportation strategies are required to successfully. implement ity and
County plans for accommodating future growth. Such strategies must-link the.City of Orange
with other regional em,ployment 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. eompr.ehensive 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 enhaneements, 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 l"ransit,
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
aetivity 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
aetivity centers within and outside Orange County. Station link shuttles provide services
between.the Orange Transportation Center(OTC) and Orange. Both community-and station
link coutes operate.only at peak commuter times.
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.
ORANGE GENERAL PLAN
CM-19.
CIRCULATION AND MOBILITY
a
OCTA has forecast bus ridership to increase by approximately 75 percent by zo3o. Some of
this ridership increas.e will be the result of enhanced services, inclucling express bus routes
and introduction.of bus rapid transit service. Much of the increase will be driven byincreased
arterial and freeway congestion levels in conjunction with improved local bus service:OCTA
is planning to introduce bus rapid transit (BRT) services by zo i on the B istol Street-State
College Boulevard, Harbor Boulevard;and Westminster Avenue corridors:Thisservice would
include planned BRT stops in Orange on State College Boulevard.south of Orangewood
Avenue and on The.City.Drive south of Chapman Avenue. With the projected success of this
service, which is comparable to the Los Angeles Metro Rapid-service, it is-likely that BRl'will
be implemented on other key corridors. Corridors that have been considered fo potential
future application include Katella Avenue.
Convenient,.accessible, fr.equent,_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 tie coupled with increases in
transit service. Orange's land use plan features mixed-use districts that strategically
concentrate population density near alternative transit faeilities, such as the OTC in Old
Towne, transit hubs at The Block at Orange and South Main Street, and the future Ariaheirri
Regional Transportation Intermodal Center 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
z4 Local Fullerton—Orange Malvern Ave./ The Village at Orange
Chapman Ave./ Lincoln Park and Ride
Tustin St..
4z L.ocal 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. Batayia lndustrial.Parks
Children's Hospital—CHOC
St.Joseph's Hospital
OCTA Offices
54 tocal Garden Grove=0range 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-2U
CIRCULATION AND MOBILITY
Table M-4
Local Bus Routes
Route# Route Type Route Service Service Corridors Key Orange Activity Centers Senred
56 Local Garden Grove-Orange Garden Grove Bivd. 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.
7i Local Yorba Cinda-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
3t Community Yorba Linda=0range Lakeview Ave./ The Village at Orange
Riverdale Ave./ Lincoln Park and Ride
Tustin St.
47 Community Brea-Santa Ana Raiit St./UCI Medical Center
Greenville St./ The Block at Orange
Fairview St. OCTA Offices
St.Joseph's Nospital
Children's Hospital-CHOC
67 Community Anaheim-Irvine Santiago Blvd./The Village at Orange
Hewes St./ Lincoln Park and Ride
Bryan Ave.
Orange Transportation
453 Station Link
Genter
Chapman Ave./Orange Transportation Center
St.Joseph's Hospital Main St./ Children's Hospital-CHOC
La Veta Ave. St.Joseph's Hospital
OCTA Of.fices
Orange Transportation
454 Station Link
Center
Chapman Ave./ Orange Transportation Center
The Block at Orange Metropolitan Dr. UCI Medical Center
The Block at Orange
Bergen Brunswig
Nexus
ORA1dGE GENERAL PLAN
CM-21
CTRCULATION AND MOBILITY
Tabie CM-5
Community,Station Link,.lntra-and Inter-County Bus Routes
Route#. TyPe Route Service Service Corridors Key Orange Activity Centers Served
z 3 Intra County Brea-Irvine Express SR-55 Lincoln Park and Ride
Th.e Village at Orange
757 Inter County Diamond Bar SR-57 UCI Medical Center
Santa Ana Express The Block at Orange
RTA 49 Inter County Riverside-Orange SR-9 The Village at Orange
Operated by RTA) Downtown Riverside
Source:Orange County Transportation Authority and Riverside Transit Agency,zoo6.
The City recognizes that ridership of both the bus and rail transit systems will incr.ease, and
has design.ed a Iand use plan that both.enables and accommodates increased fransit.use. A
large part of the City's role in aecommodating.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, sueh as the Town and Country Road corriclor, South Main
Street, Katella:Avenue;.Uptown Orange, and Old Towne. Such TOD features ma,y.consist of
streetscape measures_such as bus turn-outs, benehes, trash receptacles, shelters from wind
and rain; and Iighting. TOD features may also be more fundamental to the permitted uses
and design within.projects,such as in.corpor.ating child car.e.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 exparided communitycirculators, 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 ex.plored.
The City will also continue to supp.ort 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 proviclers 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 Ocange, and The Block at
Orange.
Rail Transit
Many current passenger and commuter fixed-rail transit options in the City will be expanded
irrthe future; offering significant alternatives.to automobife transit for.many individuals who
Ox xGE GErtExrw Pr x
CM-22
CIRCULATION AND MOBILITY
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 cail 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 5tation in Los
Angeles to.the north and to-Oceanside to the south. The Inland Empire-0range 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. l'he
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..Amtrak and Metrolink operate a cooperative
program called "Rai1-z-Rail",-which allows all Metrolink monthly pass holders to use Amtrak
within the limits specified on the pass.
Another much-anticipated rail serVice .improvement is intra-eounty 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_30-
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.
1'he 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 Flatinurri Triangle, which borders Angel
Stadium in the City .of Anaheim, proposes a
yariety of high-density multiple-family high-rise
housing,, office space, and commercial uses.
The Anaheim Regional Transportation r''
Intermodal Center (ARTIC) is located adjacent
to the proposed development, between Angel
Stadium and the Honda Center.ARTIC will be a
major regional transportation center similar in
scale to Union Station in Los Angeles and
Ontario International Airport in Ontario. The
intermoclal center will be a stopping point for
Amtrak, Metrolink, buses, and future high-
speed rail systems that connect to Ontario 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 abie to take full advantage of the regional mobility benefits ofFered by ARTIC.
Potential benefits offered to the City by ARTIC include:
ORANGE GENERAL PLAN
CM-23.: . .
CIRCULATION AND MOBILITY
BRT service along.Katella Avenue;
a dynarnic mixed-use commercial and r.esidential center at the westernmost end of
Katella Avenue;and
bitycle and pedestrian connections tothe Santa Ana River.
Cali fornia High Speed Rdil:Corridor
The California High=Speed Rail Authority was established as_a state agency in .gg6 to direct
the planning, design, construction, and operation of a future high-speed train system
extending from 5acramento,.San Francisco, and Oakland irrthe nortli to Los.Angeles ancl San
Diego in tlie south. This high-speed train is proposed to stop.at ARTIC. OCl'A.estimates that
by zoz5, the.California High Speed Rail Corridor will serve between .50,00o and z3o,000
passengers each week.
Magnetic Levitation Train
A magnetic levitation train is being planned that would connect Anaheim to Ontar.io,
Victorville, Barstow, Primm,.and .Las Vegas. The California-Nevada Super Speed Train.{SST)
will use Magnetic Levitation Systems(Maglev), a type of transportation technology that uses
electric power and non-contact electromagnetic levitation to sustain speeds in excess of 300
mph:
The trip from ARTIC to Las Vegas on the California-Nevada SST will take about go minutes;
with an estimated 4o:q.milliorr annual riders.A key future benefit offered by the Maglev train
is a high-sPeed connection to Ontario International Airport, which is planned to gcow
substantially and to expand international service in coming decades. The City will support
efforts of the California High-Speed.Rail.Authority, OCTA,and Southern California Association
of. Governments to construct these important rail. corridors, and will cooPerate with all
parties involved in any #uture studies conducted to examine the noise and other impacts
associated with the corridors within Orange.
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 provicling and maintaining
sidewalks,trails, and bikeways to support p.edestrians and cyclists.
Pedestrian Facilities
In addition to. providing basic transportation .routes, sidewalks and pathways offer the
opportunity to create appealing publie 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_ pedestr.ian crossings, pathways, and
pedestrian short-cuts allow people to get from one destination point.to another with.ease.
ORANGE GENERAI, PLAN
CM-24
CIRCULATION AND MOBILITY
Dedicated pedestrian .paths can provide access. between residentiaF and .activify.areas,
especially if str.eets do no.t connect.Access strategiesfor.schooLchildren,seniors, and peoPle
witti disabilities should also be i.ncorpor.ated 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 environrnent. It will identify pedestrian links that need improvement and
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
r-ecreation facilities,and minimize barriers to pedestrian and bicycle access.
Recreational T.rails and Bikeways
A comprehensive network. bf recr.eational trails and bikeways greatly benefits Orange
residents and visitors by providing popular .rnodes of transportation for.recreation. .In
addition to recreation actiyities, the City also supports. walKing and bicycling as viable
commute alternatives to-the automobile. The.ity'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, 04
miles of proposed future trails are planned throughout Orange on land currently utilizecl for a
variety of purposes, including flood control, railroad rights-of-way,and roadways.
The City will use the.annual seven-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 coopecative eff.orts 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
feder.al,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
Ox aGE GErrExa,. Pr.x
CM-25
CIRCULATION AND MOBILTTY
trail systems, or serve as des.tination links to. schools, parks, retail businesses, or regional
trails.
Priorities for the recreational trail system include:
trail connectionsto the Santiago 0aks Regional Park extension west of.Cannon.Street,
consisting of a connection between Calle Grande and Cannon Street, and the Jamestown
trail from the O.range Park Acres equestrian arena to Cannon 5treet;
trail conneetion fcom Serrano Avenue near Fred Barrera Fark to Santiago Oaks Regional
Park;
Mabury Ranch Trail connection fr.om 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.peo.ple 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 e.questrians. Where appropriafe, traffic
calming devices and methods such as.median.landscaping and .provision of bike oc 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 ov.erall condition, appearance,
and safety.of both-medians.and sidewalks in Orange.
Bikeways
Orange's relatively mild climate
permits bicycle riding year-round, and
the growing popularity of bicycling has
drawn enthusiasts onto the streets
and bike trails throughout the City.The . r -
plan for recreational trails and
bikeways (Figure CM-3) shows the "
planned system of bikeways within the
City..The Orange Bikeway Master Plan .
has established three.classes of bicyele '""
routes tFiat adhere to California
Department of p
R
Trans ortation '' `= "" I ` - n
Caltrans)standards:
F-
1
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 str.ipes and other features,.
Class III On-road bike routes shar.e use with motor vehicle traffic.They pcovide a coute
that is signed tiut not striped.
ORataGE GEtdERAL PzAL t
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CIRCULATION AND MOBILITY
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Figure CM-4
Trail.5tandards
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 lass I bike routes along Santiago Creek.and the Tustin Branch Trail
Establishing Class II bike lanes,including:
O,riGE.GE Rai. Pr,ari
CM-29
CIRCULATION AND MOBILITY
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ON.ROAD
Figure M-5
Bikeway Standards
Ox r GE GEt x,r. Pr x
CM-30
CIRCULATION AND MOBILITY
o An east/west corridor on Walnut Avenue from the western City lirnits 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 l l l routes along Almond Street, Feldner Street,and Bedford Street
The City has recently 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 will extend 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
Pack 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.arid effieient bike travel b,y 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, only one bicycle parking facility is located in Orange, at the OTC (Metrolink
station). 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 has a direct effect on roadway capacity._In order to
facilitate improued traffic flow along Orange's major acterials, the City generally plans to
Permit on-street parking only on streets
classified as Primary or Secondary
Arterials or Collector Streets.
f
OfF-street parking deficiencies can
I reduce business activity, and can cause
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
O a vGE GEr xr,r. P x
GM-31
CIRCULATION AND MOBILITY
provided on-sife for most uses. The Code also es.tablishes minimum stall dimensions
consistent with current standards for other jurisdictions. These regulations aPply.to all.new
developments, and may be applied to curr.ent uses that are modified or expanded.
Particular concern has been expressed within the community .regarding current and
expected future parking shortages in Old l'owne. Figure CM-6 identifies the location of
existing public parking lots in Old Towne. Most OId Towne parking lots have a maximum time
limit of three hours, with or without a permit. However, sorne 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
undergr.ound 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.
Circula.tion 3:ystem Aesthetics
The City has determined that it is necessary and desirable to improve certain roadways and
their rights-of-way to enhance. the exper.ience for all users of these corridors. Major
commereial corridors have been designated within the Urban Design Element to be improved
with pedestrian-scale enhancements. Enhancements could include street trees, siclewalk
impr.ovements, lighting, bus shelters, and crosswalks. These improvements not only off.er a
more aesthetically-pleasing experience for all users in these corridors, they also may offer
increasecl safety and security.
Streetscape improvements offer safety and security to both:motorists and non-motorists
through increased visual cues,. better visi6ility, and increased activity. Many streetscape
enhancements provide not only a comfortable enviconment.for the pedestrian and bieyclist;
but also offer drivers visual cues that a non-motorist could be expected in an area.
Improvements such as striping, bus. shelters, and,ped:estrian-scaled signage.guide the non-
motorist tovirards areas that are most appropriate for their use. These same cues.help fhe
motorist to see where:tlie 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.a
Visibility offered by .pedestrian-scaled lighting benefits non-motorists and motorists alike.
Pedestrians and bieyclists 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 rnajor
commercial corridors.
ORANGE GEr x x Pi.t rt
CM-32
CIRCULATION AND MOBILITY
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GPA 2ot0-00o1(8/t0/0)
Figure CM-6
Public Parking Lots in Old Towne Orange
OxaNGE GErtEttAI. Pr AN
CM-33
xi
CIRCULATION AND MOBILITY
CIRCULATION & MOBILITY IMPLEMENTATION
The goals, policies, and plans identified in this Element are implemented through a variety of
City .plans, o.rdinances, 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.
On aGE GErtE. Pi.aN
CM-34
IMPLENIENTATION
III . Conditions or Requirements Placed upon Applicants
during Development Review
Program III-1 California Environment:al Quality Act
Comp.ly with ali provisions of EQA. In addition to thresholds that may be establisliecl or
adopted by the City in the future, .use the follbwing thresholds and procedares for CEQA
analysis of proposed projects;consistent with policies adopted within the General Plan:
Circulation&-Mobility
o In accordance with.CEQA Guidelines Section a5o64.3, the City shall utilize vehicle
miles.traveled(VMT),to measure transportation impacts.
o A project woulcl result in a significant project-generated VMT impact if the baseline
and/or cumulative project-generated VMT per service population exceeds the City of
Orange General Plan Buildout VMT per service population.
o The project's effect on VMT would be considered significant if it resulted in baseline
and/or cumulative link-level boundary citywide MT per senrice population increases
under the plus project condition compared to the no project eondition.
Parks and Recreation
o The City shall require dedication of parkland at .a rate of 3.o acres per ,000
anticipated residents or payment of in-lieu fees for new residential projects.
Noise
o The City shall apply the noise standards specified in Tables N-3 and N-4 of the Noise
Element to proposed projects analyzed under CEQA.
o In addition to the foregoing; an increase in ambient noise levels is assumed to be a
significant noise impact if a proposed project causes am6ient noise levels.to exceed.
the following:
Where the existing ambient noise level is less than.65 dBA, a project related
permanent increase in ambient noise levels of 5 dBA CNEL or greater.
Where the existing ambient noise level is greater than 65 dBA, a project related
permanent increase in ambient noise levels of 3 dBA CNEL or greater.
Historic.and Cultural Resources
o "Historical resource" for the purposes of CEQA shall mean "historic district" in the
case of a contributor to a historic district.
o Historic .resources listed in the Historic Register shall have a presumption of
significance pursuant to .CEQA Section zio84. and shall. be treated as historical
resources under CEQA.
o The historical significance of an archaeological historic resource is evaluated using
the criteria of Public Resources Code Section 5oz4. and Section i5o64.5 et seq: of
the state CEQA Guidelines.
ORANGE GENERAL PLAN
IMP=28 GPA 2010-0001 (8/10/10)
IMPLEMENTAT ION
All #uture development proposals shall be reviewed. by the City for potential regional and
local: air quality impacts per CEQA. If potential impacts are identified, mitigation will be
required to reduce the impact to a level less than significant, where technically and
econoniically feasible.
Agency/Department: Community Development Department, Publie Works
Department, Community Services Department
Funding Source: General Fund, development fees
Time Frame: Ongoing
Related Policies:
Circulation&Mobility: .,.z
Natural Resources: z.z, z.8, 5.6
Cultural Resources&
Historic Preservation: ., .3
Noise: 4
Growth Management: ., z.
Program III-2 Site Development Review
Comply with all City.procedures in the review of.proposed development projects,and use the
site plan-review process to ensure that applicable General Plan policies and City standards
and regulations are applied to proposals for specific development projects.
Agency/Department: Community Development D.epartment, Public Works
Department, Police Department, Fire Department,
Community Services Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Land Use: 6,.7,z.5,Z•7, z•8,3•,3•4,4•3 4•5,6., 6.z, 6.g, 6.0,6.2
Circulation.&Mobility: .,i.7, 5•,5•2
Natural Resources 3, z.3, z.6, z.3, z:4, z.5, i.6, 4•3, 4•4, 4•5, 5•4, 5•6, S•7,
6.6,7.5
Cultural Resources&
Historic Preservation: .3, •4,•5,•6,4•,4•Z,4•3; 4•4, 4•5
Rublic Safety: 2•5,3•3,3•5,4•z,4•3, 6•2 7•2,7•3,7•4, 9•
Noise: Z, .3,.4,.5,.6, Z.,z:.2, 5•;5•2, 5•3, 6:,6.z
Urban Design: 2.4;2•5, Z•6,3•4,3•5, 6•i
Infrastructure: 4,.5
Program III-3 Commission/Committee Review
Orange has several commissions and one committee whose.purpose is to advise and assist
the City Council in dealing with issues related to each commission's or committee's area of
concern. The commissions and committee gather pertinent information, .hear arguments,
ORANGE GENERAL PLAN
IMP-29
IMPLEN NTATION
weigh values, and make recommendations to the Couneil. Several.of the commissions also
have some administrative powers.
The City will continue to use the commission/committee structure to inform the public
decision-making process.
The:City will; also consider expanding the authority of the Design Review Committee and "
Community Development Department's staff fo administer the Orange Historic Resources
Inventory, Hisforic Register listings, and design review procedures for projects involving
architectural anii archaeological resources.
Agency/Department: City Council; Community Development Department,
Community Services Department
Funding Source: General Fund
Time Frame: Ongoing
Related Policies:
Land Use: z.5, z.6, z.7, z.8, 3•, 3•Z, 4,5, 5•5, 5 8, 5•9; 6., 6.Z, 6.3, 6.4,
6.7, 6.11, 8.1, 8.2, 8:3
Circulation&Mobility: .3,2•3,3•2,4•, 6.
Cultural Resources&
Historic Preservation: .,.3,•4,4•5,4•6
Urban Design: 6.
Public Safety: 3 5, 4•3,7•4
Economic Development: .z,z.5,3•3,4•5, 5•, 5•2, 53, 5•4, 5•5
Program III-4 Traffic Impact Analyses
Require preparation of traffic impact analyses for new discretionary development projects.
A traffic impact analysis.which includes VMT assessment shall be required for a proposed
project that does not satisfy the project screening criteria. For projects that increase V C by
o.o or more on affected roadway segments or intersections experiencing LOS E or LOS F
conditions without the proposed project, #raffic impact analyses must propose binding
reduction strategies to be incorporated within the project.
Continue to update guidelines for the preparation of traffic impact.analyses to reflect local
conditions and industry standards.
Agency Department: Public Works Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Land Use: z.5,6.io
Circulation&Mobility: .
Growth Management: .z,.6
ORANGE GENERAL PLAN
IMP-30 GPA 201 D-0001 a/10/10
IMPLENIENTATION
Program II.I-5 Transportation D.emand Management Plans
Require major employers of oo persons or more to institute transportation demand
management (TDM) plans. Such plans establish incentives to encourage employees to
carpool, take public transportation, bicycle, or use some means other than private
automobiles to get to and from work.
Agency/Department: Community Development Department, .Public Works
Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Circulation&Mobility: z.6
Natural Resources: z.,z.z
Growth Nlanagement: . .z
Program III-6 National Pollutant Discharge
Elimination System Compliance
Bef.ore making land use decisions,the City will utilize availa6le.methods to estirnate incr.eases
in Pollutant loads and flows resulting from projected future development.
The.City will follow the most.current.NPDES permit and countywide Model V1/QMP and the
City Local Implementation Plan to ensure that the City complies with applicable federal ancl
state regulations:Applicants for new development and redevelopment projects shall prepare
and submit plans to the ity, as well as implement plans demonstrating accomplishment of
the following:.
Emphasize the need to implement and prioritize the use of low impact development
BMPs that provide onsite inf.iltration.and.retention;
Use biotreatment systems such as flow through planters,_wetlands and 6ioswales where.
infiltration;evapotranspi ation,and harvest and reuse are not feasible;
L:imit areas of irnpervious surFaees and preserve natural areas;
Limit directly connected areas of impervious surfaces;
Limit disturbance of natucal water.bodies, natural drainage systems, and highly erodable
areas;
Use stcuetural and.nonstructural best management practices;(BMPs).to miti.gate
projected increases in pollutant loads and flows;
Use pollution prevention methods,source controls,and treatment with small collection
strategies located at or as close.as.p.ossible to the source;
Control the velocity of pollutant loading flows during and after construction;and
Implement erosion protection during construction.
ORANGE GENERAL PLAN
IMP-31
IMPLENIENTATION
In adclition,applicants#or large development projeets are required to prepar.e and implement
plans that meet site predevelopment hydrologic conditions and to control. runoff on-site
where technically feasible.
Agency Department: Public Works Department, Community Development
Department
Funding Source; Development fees
Time Frame: Ongoing
Related Policies:
Land.U.se; . 4•3, 6.5
Natural Resources: z.z,z.3, z.4, z.5,z.6, z.7
Public Safety: z.3
Program III-7 Water Services and Supplies
As needed, require studies .to determine water infrastructure requirements for future
development projects, and require that any recommendations be incorporated into. the
design of projects. Require the dedication of necessary right-of-way and construction of
water infrastructure improvements for development projects as needed. Developers shall
also be required to pay the cost of providing new and improved water.services..to project
sites.
For projects that satisfy the criteria set forth in Sections og o—io9 5 of the California Water
Code and Section .66473.7 of the Government Code, a water supply assessment or water
supply verification demonstrating available water supplies ezist to support development
shall also be prepared.
Agency Department: Community Development Department, Public Works
Department
Funding Source: Developrnent fees, General Fund
Time Frarne: Ongoing
Related Policies:
Infrastructure: 1,1.4,.6
Program III-8 Adequate Public Safety and Emergency
Response
During the development aPplication process, consult with Fire.and Police Departm.ents.to
evaluate the need. for additio.nal fire and police facilities or resources to serve new
development projects and infill development areas. During updates to the Capital
Improvement Program.pr.ocess, coordinate with service providers to evaluate the level of fire
and police service provided to the community..Require adequate street.widths and clearance
for emergency access. Provide all appcopriate safety features. Continue to use state-of=the-
art techniques and technology to enhance public safety.
OF;ANGE GENERAL PLAN
IMP-32 GPA 2010-0001 (8/10/10)
IMPLEMENTATION
Adhere to requirements in the Municipal Code for adequate street widths and clearance for
emergency access.- Integrate CPTED techniques into development projects and practice
active surveillance measures in high-risk areas such as parking lots..
The City shall use open space easements and other regulatory techniques to prohibit
development and avoid public safety hazards where the threat from seismic hazards cannot
be mitigated.
Agency Department: Community Development Department, .Fublic Works
Department, Police Department; Fire Department
Funding Source: Development fees, General Fund
Time Frame: Ongoing
Related Folicies:
Public Safety: 3•4,4•4, 6., 6.z, 6.3, 6.4
Program III-9 Geologic Hazard Assessments
Pursuant to state law, geologic and/or geotechnical studies ace required for proposed.new
development projects located in areas identified as susceptible to landslides and liquefaction
and binding mitigation strategies must lie adopted. Compliance with the recommendations
set forth in site-specific geologic and/or geotechnical studies will be made a condition of
approval for new development. In addition,.the City may require.applicants to incorporate
measures to stabilize and maintain slopes on a site-by-site basis, such as proper planting,
irrigation, retaining walls,and benching.
Agency Department: Community Development Department, Fublic Vllorks
Department
Funding Sour.ce: Dev.elopment fees
Time Frame: Ongoing
Related Policies:
Land Use: 6.g, 6.0
Public Safety:
Program III-1.0 Cultural Resources Inventories
Require cultural resources inventories of all new-develo.pment projects in areas identified
with medium or high pofential for archeological, paleontological,.or cultural resources based
on resource sensitivity maps prepared in conjunction with the General Plan.
Where a:preliminary site survey finds medium to high potential for substantial archaeological
remains, the City shall require a mitigation plan to protect the resource before issuance of
permits. Mitigation may include:
Ensuring that a gualified archaeologist:is present cluring initial grading or trenching
monitoring),
Redesigning the project to avoid areliaeological resources(this is considered tlie
strongest tool for preserving archaeological resources);
ORANGE GENERPiI, PLAN
IMP-33
IMPLENIENTATION
C.apping the site with a layer of fill, and or .
Excavating and removing the archaeological resources(recovery)and implementing
curation in an appropriate facility under the direction of a qualified archaeologist
interpretation).
Alert applicants for permits within early settlement areas to the potential sensitivity. If an
archaeological inventory survey is required, the final stage is the preparation of a
professional report detailing the findings and recommendations of the records search and
field survey.The final report containing site forms, site significance, and mitigation measures
should be submitted immediately to the Community Development Department. All
information regarding site locations, Native American human remains, and associated
funerary objects should be in a separate confidential addendum, and not be made available
for public disclosure.
If significant archaeological resoucces are discovered during construction or gcading
activities, such activities shall. cease in.the immediate area of the find until_ a qualified
archaeologist can determine the significance of the resource and recommend alternative
mitigation. The final written report should be submitted to the appropriate regional
archaeological Information Center within three months after work has been completed.The
City shall ensure that project applicants contact the Native American Heritage Commission
for a Sacrecl Lands File Check and a list of appropriate Native American contacts for
consultation concerning the project site and to assist in crafting the mitigation measures.
Agency Department: Gommunity Development Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Land.Use: 6.11
Cultural Resources.&
Historic Preservation: 4 L 4•5
Program III-11 Green Building, Energy Conservation,
and Sustainable Development
The City strongly encourages new development and major renovation projects to employ
green building techniques and materials. Encourage prop.osed development projects
throughout the City to use Leaclership in Energy and Environmental Design(LEED) standar.ds
developed .by the U:S.. Green Building Council or a similar third-party verified program.
Encourage building orientations and landscaping that enhance natural lighting and sun
exposure. Prepare guide]ines for sustainable development to encourage incorporation of
these practices in new develoPment.Tliese guidelines will include measures to rnaximize soil
permeability to address related stormwater and surface-water runoff issues.
Require compliance with state Title z4- building construction standards and Energy Star
conservation standards for all development projects.
O xGE GE,x P x
IMP-34 GPA 2010-0001 e/1o/1oJ
IMPLEMENTATION
Prepare and adopt an ordinance that requir.es and/or pr.ovicles incentives for: () specified
new residential development to compiy with a specified green building program _or show
that its development provides comparable effectiveness to such a program; and(z)specified
non-residential. development of a specified size comply with a specified green building
program or show that its development provides comparable effectiveness to such a
program:
Agency Department: Community Development Department, Public Works
Department
Funding Source: Development fees
Time Frame: Ongoing; December 3, Zoi (For-ordinance)
Related Policies:
Natural Resources: z.6,z.7
Program III-12 Mixed-Use Noise Property Notification
When the City exercises discretionary review, provides financial assistance, or otherwise
facilitates residential development within a mixed-use area, make providing written warnings
to potential residents about noise intrusion a condition of that approval, assistanee, or
facilitation.The.following languag.e is provided as an example:
All potential buyers and/or renters of resideritial pr.operty within mixecl-use districts in the City
of.Orange are hereby notified that they may be subject to audible noise levels generated by
business and entertainment related operations common to such areas, including amplified
sound; music, delivery and passenger vehicles, mechanical noise, pedestrians, and other urban
noise sources."
Agency Department: Community Development Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Noise: 5•, 5•3
Urtian Design: z.5
Pro,gram III-13 Ecological and Biological Resource
Assessments
Analyze development proposals for potential impacts on significant ecological and biological
resources. Require appropriate mitigation for all significant impacts if.impact.avoidance is
not possible. Mitigation measures for habitat and species may include but are not limited to
avoidance, enhancement;restoration,.compensatory mitigation,or a.combination of these.
Agency/Department: Community:Development Department
Funding Sour.ce: Development.fees
Time Frame: Ongoing
ORAZtGE GExERAL P7 r
IMP-35
IblPLENIENTATION
a
Related Folicies:
Land Use: 6.4, 6.
Natural Resources: 4•,4•3,4•4,4•5
Program III-14 Archaeological Resources Management
Report (ARMR Preservation Bulletin)
Establish the Archaeological Resources Management Report(ARMR Preservation.Bulletin)as
the standard report format for all documentation and accept reports only from registered
professional archaeologists knowledgeable in Native Amer.ican cultures and or historical
archaeology(qualified archaeologists).
Agency Department: Community Development Department
Funding 5ource: Development fees
Time.Frame: Ongoing
Related Policies:
Cultural Resources&
Historic Preservation: 4.
Program III-15 Historic Resources Design Review
C.ontinue to use the Secretary of the Interior's Standards for the Treatment of Historic
Properties and Guiclelines.for Preserving; Rehabilitating, Restoring and Reeonstructing Flistoric
Buildings as a basis for design review and incorporate them by r.eference into the Old Towne
Design.Standards and other hisforic preservation design standards. Any approved:demolition
permit for historic resources listed in the City's Historic Register will be automatieally subject
to a delay of 8o days before the permit for demolition may be issued. The property owner
will strive to develop alternatives to demolition that will preserve the historic resources.
The Design Review Committee oc Historic Preservation Commission at such time-such a
commission is established, shall serve as the review body for projects involving historic
resources.
Agency Department: Community Development Department, City Council
Funding Source: General Fund
Time Frame: Ongoing
Related Policies:
Cultural Resources-&
Histocic Pr.eservation: .,.z., .3,•4,•5,2•3,3•2
Program. III-16 : Public Access to Santiago Creek and
Santa Ana River Public Interface
Ensure that new development does not preclude access to Santiago Creek and the Santa Ana
River and associated trails. Development review should ensure that_commer-cial and retail
development in these areas support public access.
ORANGE 'GENERAL PLAN
IMP-3G GPA 2010-0001 (8/10/10)
IMPLEN NTATION
Agency Department: Community Development Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Land Use: 6.4, 6.6
Circulation&Mobility: 4.
Natural Resources: 3, 5•5,7•,7•Z,7•3,7•4,7•5
Urban Design: z.6
Program III-17 : Office Condominium Con ersions
Evaluate ap.plications for conversion of industrial properties to office condominiums to
determine tlie impact on the available fialance of larger and smaller properties available for
industrial use.
Agency De.partment: ommunity Development Departmen.t, Economic
Development Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Land Use: 4•,4•Z, 4•3,4•4,4•5
Economic Development: 3., 6.i, 6.z
Program III-18 : Noise Reduction in New Construction
Require construction_contractors to implement the following measures during construction
activities through contract provisions and/or conditions of.approval as appropriate:
Construction equipment sfiall be properly maintained per manufaeturecs'.specifications
and fitted with th.e best available noise suppression deviees (i.e., mufflers, silencers,
wraps, etc).
Shroud or shield all impact tools, and muffle .or shield•all intake and exhaust ports on
power equipment.
Construction_operations and related-activities associated.with the proposed project shall
comply_wifh the.operational hours outlined in the City of Orange Municipal Code Noise
Ordinance, or mitigate noise at sensitive land uses to belbw Orange Municipal Co.de
standards.
Construction equipment should not be idled for extended periods_of time in fhe vicinity
of noise sensitive receptors.
Locate. fixed and or stationary. equipment as far. as :possible. from noise sensitive
receptors (e.g., generators, compressors, rock crushers, cement mixers). Shroud or
ORANGE GENERAL PLAN
IMP-37
IMPLENIENTATION
shield all impact tools, and muffle or shield all intake and exhaust ports on powered
construction equipment.
Where feasible,temporary barriers shall be placed as close to the noise source or as close
to the receptor as possible and break the line of sight between the source and receptor
where modeled levels exceed applicable standards. Acoustical barriers shall be
construeted material having a minimum surface weight of z pounds per square foot or
greater, and a demonstrated Sound Transmission Class (STC) rating of z5 or greater as
defined by American Society for Testing and Materials (ASTM) .Test Method Ego. ,
Placement, orientation, size,.and. density of acoustical .bar.r.iers shall. be specified -by- a
qualified acoustical consultant.
Agency Department: Cornmunity Development Department, Rublic Works
Department,.Community 5ervices Department
Funding Source: Development fees
Time Frame: Ongoing
Related Policies:
Noise: z,.4, •5,7•Z
Program III-.19 : Groundborne Noise and Vibration
Implement the following measures to reduce.the potential .for human annoyance and
architectural/structural damage resulting from elevated groundborne.noise and vibration
levels.
Construction-Induced Vibration. The City shall implement or require implementation of
the following measures through contract provisions and/or conditions of approval :as
appropriate:
o Pile driving required within a 50-foot radius of historic structures shall utilize
alternative installation methods where possible(e.g., pile cushioning;jetting, pr.e-
drilling, cast-in-place systems, resonance-fr.ee vibratory pile drivers). Specifically,
geo pier style cast=in-place systems or equivalent shall be used where feasible as
an alternative to pile driving to reduce the number and amplitude of impacts
required for seating the pile.
o l"he preexisting condition of all buildings within a 50-foot radius and of historic
buildings within the immediate vicinity of proposed construction-induced
vibration activities shall be recorded in the form of a preconstruction.survey. The
preconstruction survey shall determine conditions that exist before construction
begins for use in evaluating damage caused by construction activities. Fixtures
and finishes within a 50-foot radius of construction activities susceptible to
damage shall be documented (photographically and in writing) prior to
construction.All damage will.be repaired back to its preexisting condition:
ORANGE GENERAL PLAN
IMP-38 GPA 2010-0001 (8/10/10)
IMPLENIENTATION
o Vibration monitoring shall .be conducted prioc to and during pile ciriving
operations occurring within oo feet of the historic structures. Eve.ry-attempt
shall be made to limit construction-generated vibration levels in accordance with
Caltrans recommendations during pile driving and impact activities in the vicinity
of the historic structures.
o Provide protective coverings.or temporary shoring of on-site or adjacent historic
features as necessary, in consultation wifh the Community Development Director
or designee.
Railroad-lnduced Vibration:
o Vibra.tion.sensitive uses shall be located a minimum of oo feet.from the railroad
centerline, where feasible. To ensure .compliance wifh .FTA and Caltrans
recommended guidelines, a site-specific groundborne noise and vibration
assesment should be eonducted. For sensitive uses located within ioo feet of the
railroad centerline, the acoustieal noise and vibration assessment shall
demontrate that potential impacts .will be below the level of significance. If
specific project-level impacts are identified, mitigation -measures reducing the
impacts to below the level of significance will be requir.ed.
o A groundborne vibration assessment shall be conducted at proposed building
pad locations within zoo feet of.railroad.right-of-ways; prior.to pr-oject approval.
Vibration monitoring and assessment shall be conducted by a qualified acoustical
consultant. The assessment will demonstrate that rail-associatecl groundborne
vibration and noise levels.comply with recommended F"i'A and.Caltrans guidance
of 8o VdB and o.z in/sec PPV (or equivalent), respectively, or propose project-
specific mitigation measures such as site design, building isolation,etc.to achieve
that standard.
AgencyJDepartment:ommunity Development Department, Public Works
Department
Funding Source: General Fund, Dev.elopment fees
Time Frame: Ongoing
Related Policies:
Noise: i.i,3.,3:z, 6.,7.z
Program III-20 : Toxic Air Contaminant Exposure
Require each project applicant.to implement the following measures to reduce the exposure
of sensitive receptors to TACs from.mobile sourees, as project design features or a condition
of project approval:
Activities involving idling trucks shall. be oriented as .far away from and downwind of
existing or.proposed sensitive receptors as feasible.
O tGE GErtE. Pr
IMP-39
IMPLENIENTATION
Strategies shall be incorporated to reduce.the idling time of main propulsion engines
through alternative technologies such as IdleAire, electrification of truck parking, and
alternative energy,sources for TRUs to allow diesel engines to be completely turned off.
Proposed developments shall incorporate site plans that move sensitive receptors as far
as feasibly possible from.major roadways(oo,000+average daily trips).
Projects containing sensitive receptors (such as residences, schools, day care center.s,
and medical facilifies)on sites within 50o feet of a freeway must demonstrate that health
risks relating.to diesel particulates would not exceed acceptable liealth risk standards
prior to project approval.
Agency Depactment:Community Development Department, Public Wor.ks.
Department
Funding Source: Development.fees
Time Frame:. Ongoing
Related Policies
Natural Resources: z.
ORANGE GENERAL PLAN
IMP-4O GPA 2010-0001 (8/10/10).