Item No. 9
Town of Atherton
CITY COUNCIL STAFF REPORT – REGULAR AGENDA
TO: HONORABLE MAYOR AND CITY COUNCIL
GEORGE RODERICKS, CITY MANAGER
FROM: ROBERT OVADIA, PUBLIC WORKS DIRECTOR
DATE: APRIL 16, 2025
SUBJECT: EL CAMINO REAL COMPLETE STREETS GAP CLOSURE
STUDY
RECOMMENDATION
It is recommended that the Council receive a presentation on the El Camino Real Complete Streets Study and select both Concept 1 (Added Sidewalks and Striped Bike Lanes) and Concept 2 (Wider Sidewalks & Buffered/Protected Bike Lanes) as preferred alternatives for further evaluation.
Council feedback regarding next step project development and potential grant opportunities is also requested.
Action Request
Staff recommends that the City Council advance Concept 1 (Added Sidewalks and Striped Bike Lanes) and Concept 2 (Wider Sidewalks & Buffered/Protected Bike Lanes) as preferred alternatives that would continue to be evaluated for further design in the next phase of the Caltrans PID process. As requested further in this Report, staff recommends that the Council direct staff to continue engagement with SamTrans, SMCTA and Caltrans regarding their collective efforts in advancing improvements to El Camino Real and seek funding for the improvement of the Selby Lane/El Camino Real intersection.
BACKGROUND
El Camino Real serves as the north-south backbone of in the Countywide transportation system that connects the entire Peninsula. This regional arterial (State Route 82) carries 36,000 average vehicles each day through Atherton. Locally, a December 2024 Caltrans speed survey found critical speeds (85th percentile) for vehicles, the speed at which 85% of vehicles travel under free flow conditions, average 38 miles per hour (mph). However, the corridor lacks consistent sidewalks, accessibility to bus stops, and bicycling infrastructure. Pedestrians and cyclists are required to use the partially paved shoulder to traverse the corridor through Atherton.
Between 2011-2020, the pedestrian fatality rate in Atherton was over 4 deaths per 100,000 ECR Complete Streets Gap Closure Study
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residents: amongst the highest in the Bay Area (according to National Highway Traffic Safety Administration data). Vehicles speeds on the six-lane arterial exacerbate local concerns. At 31 mph, the average risk of severe injury for pedestrians in a motor vehicle crash is 50 percent, and increases to 75 percent at 39 mph.
Consistent with the Complete Streets Policy adopted by the City Council on November 28, 2012, and the Town’s Bicycle and Pedestrian Master Plan, adopted in 2014, which outlined the need and desire for bicycle and pedestrian facilities along El Camino Real, the Town secured grant funding from the San Mateo County Transportation Authority (SMCTA) through its 2023 Pedestrian & Bicycle Program (Cycle 6) to develop and evaluate Complete Streets design options for the 1.5- mile segment of El Camino Real from north of Selby Lane to Valparaiso Avenue. The study included three phases and its recommendations are to serve as the first step in the overall project development process, setting the foundation for more detailed design and engineering to come.
Since El Camino Real is a State Route, Caltrans would have ultimate jurisdiction over the project development process.
The study was initiated in Spring 2024 with staffing and consultant support services from the SMCTA, as well as funding contributions from the Town, City of Menlo Park, and SamTrans.
The study includes the following goals:
• Improved Safety and Quality of Life: Create a plan that prioritizes and enhances safety for all road users, particularly for the most vulnerable (i.e., people walking, riding bicycles), avoiding traffic diversion and impacts to side streets, while addressing seasonal flooding along the corridor.
• Improved Connectivity: Improve connections between key destinations along El Camino Real and create a consistent experience for all modes (i.e., pedestrians, cyclists, drivers). • Enhanced Equity & Access: Prioritize equity and access for all road users and for people of all ages and abilities.
• Expanded Travel Options: Expand active transportation (i.e., walking, cycling) facilities and improve transit access to make it easier or more convenient for people to travel without a car.
On July 23, 2024, the Transportation, Bicycle, and Pedestrian Safety Committee reviewed existing conditions and initial public outreach efforts regarding needs, issues and concerns regarding the roadway, traffic and bicycle and pedestrian mobility. Phase 1 of the study was completed in Fall 2024 and included a safety data assessment, infrastructure inventory, and potential needs grounded in stakeholder input and conversations with the local community.
The City Council received a presentation on the El Camino Real Complete Streets Study and provided feedback on the various alternative cross-sections developed and the alternatives proposed for further evaluation at their November 6, 2024 Study Session.
The following cross sections depict the concepts presented through the second outreach phase for ECR Complete Streets Gap Closure Study
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public comment and feedback:
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On March 25, 2025, the Transportation, Bicycle and Pedestrian Safety Committee received a presentation regarding the results of the technical analysis and the second phase of public input, and recommended that the Council advance Concept 1 (Added Sidewalks and Striped Bike Lanes) and Concept 2 (Wider Sidewalks & Buffered/Protected Bike Lanes) as preferred alternatives for further evaluation.
ANALYSIS
Traffic Analysis:
The traffic analysis conducted confirmed that the corridor serves a substantial amount of regional demand but has potential to better serve local trips. Recent traffic counts show approximately 36,000 average daily trips (ADT) use El Camino Real on a typical weekday. This is within range for either a four-lane (18,600-36,800 ADT) or five-lane roadway (29,100-55,300 ADT).
According to Streetlight data, approximately 54% of trips on El Camino Real are estimated to be pass-through traffic (i.e. begin or end in Census tracts beyond those immediately adjacent).
Moreover, over 50% of the pass-through traffic are trips that are less than five miles long, suggesting an opportunity for a mode shift to bicycling or walking if bicycle and pedestrian facilities were consistent and available.
Streetlight data also reveals that approximately 5% of commuters walked or biked to work for Census tracts surrounding the study segment. For the twelve intersections analyzed in the study, the highest pedestrian volumes were at Fifth Avenue, where 20 and 40 pedestrians used the intersection in the morning and evening peak periods, respectively. The highest bicyclist volumes were at Valparaiso Avenue during the morning peak period (31 bicyclists); and at Atherton Avenue/Fair Oaks Lane during the evening peak period (55 bicyclists).
There were 73 crashes from 2018-2022 along the 1.5-mile study length, with seven involving bicyclists and another seven involving pedestrians. Despite only comprising 5% of the overall mode share, bikes and pedestrians comprised 19% of all collisions. Many of the bike and pedestrian crashes were located near the intersections of Selby, Watkins, and Valparaiso. Two of ECR Complete Streets Gap Closure Study
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the collisions resulted in pedestrian fatalities, including one while crossing mid-block near Watkins Avenue and another walking in the travel lane near Valparaiso Avenue.
The Phase 1 public outreach effort confirmed that pedestrian and bicyclist safety were among the highest priorities for community for the corridor.
The following table illustrates how each conceptual design were initially rated against the six evaluation criteria. The ratings highlight the trade-offs between reducing roadway capacity and improving safety for bicyclists and pedestrians, as well for motorists that navigate the corridor.
Table 1: Evaluation of Concepts for El Camino Real
Evaluation Criterion Concept #1 Concept #2 Concept #3
Bicyclist Safety Low High Medium
Pedestrian Safety Low High Medium
Addresses Flood Impacts Medium Medium Medium
Retains Travel Speed High Medium Medium-High
Minimizes Traffic Diversion to Local Streets High Medium Medium-High Maintains Street Parking Medium Medium Low
The traffic analysis evaluated the impact of reducing vehicle roadway capacity on traffic conditions along this stretch of El Camino Real, as measured by Level of Service (LOS) and travel speeds. The analysis used the County travel demand model to derive traffic volume inputs and analyzed traffic operations using the Highway Capacity Manual in the Synchro 12 model. The model included additional traffic and safety features in all scenarios including:
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• Traffic signal at Selby Lane (desired for pedestrian safety and to better accommodate neighborhood traffic)
• Traffic signal at Watkins Avenue (Peninsula Corridor Electrification Project mitigation measure)
• Pedestrian hybrid (Hawk) beacon at Stockbridge Avenue to facilitate pedestrian crossings • Pedestrian refuge islands in medians to provide a protected area for pedestrians crossing El Camino Real
The travel time analysis indicated that the level of service and traffic delays do not substantially change from “No Build” scenario, as there is no change in the six-lane geometry of the street.
However, under Concepts 2 and 3, roadway conditions would be affected, though the corridor would still operate within acceptable limits (i.e. Level of Service E or better).
Level of Service (LOS)
The modeling indicated that though there are some impacts to Level of Service in the AM peak associated with the proposed lane reductions in Concepts 2 and 3, that they are limited to Selby Lane, Fair Oaks Lane/Atherton Avenue and Valparaiso Avenue as follows:
• Selby Lane Intersection LOS AM: From LOS B (Concept 1) to LOS C (Concepts 2 and 3)
• Fair Oaks Lane/Atherton Avenue Intersection LOS AM: From LOS B (Concept 1) to LOS C (Concepts 2 and 3)
• Valparaiso Avenue Intersection LOS AM: From LOS C (Concepts 1 and 3) to LOS D (Concept 2).
In the PM Peak, the most significant changes are at Oakwood Drive, Fifth Avenue, Fair Oaks Lane/Atherton Avenue, Watkins Avenue and Valparaiso Avenue as follows:
• Oakwood Avenue Intersection LOS PM: From LOS A (Concepts 1 and 3) to LOS C (Concept 2)
• Fifth Avenue Intersection LOS PM: From LOS C (Concepts 1 and 3) to LOS E (Concept 2)
• Fair Oaks Lane/Atherton Avenue Intersection LOS PM: From LOS B (Concept 1) to LOS C (Concepts 2 and 3)
• Watkins Avenue Intersection LOS PM: From LOS A (Concept 1) to LOS D (Concept 2) and LOS B (Concept 3).
• Valparaiso Avenue Intersection LOS AM: From LOS C (Concepts 1 and 3) to LOS D (Concept 2).
Travel Time (Delay)
The overall northbound AM peak experiences a 5% increase in travel time, rising from approximately 5.8 minutes to 6.1 minutes (18 seconds). The southbound AM peak (commute direction) sees the most significant increase in travel time, with an approximate increase of 90 ECR Complete Streets Gap Closure Study
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seconds (27%), reaching 7.0 minutes from 5.5 minutes. During the northbound PM peak (commute direction), travel time increases by 14%, rising from 5.5 minutes to 6.3 minutes (48 seconds), while the southbound PM peak remains unchanged at 5.2 minutes. The intersections with the greatest changes in delay include the following:
• Selby Lane Intersection Delay AM: From 19 Seconds (Concept 1) to 35 Seconds (Concept 2)
• Fair Oaks Lane/Atherton Avenue Intersection Delay AM: From 17 Seconds (Concept 1) to 29 Seconds (Concept 2)
• Watkins Avenue Intersection Delay AM: From 11 Seconds (Concept 1) to 27 Seconds (Concept 3)
• Encinal Avenue Intersection Delay AM: From 23 Seconds (Concept 1) to 33 Seconds (Concept 2)
• Valparaiso Avenue Intersection Delay AM: From 27 Seconds (Concept 1) to 51 Seconds (Concept 2)
• Oakwood Drive Intersection Delay PM: From 10 Seconds (Concept 1) to 23 Seconds (Concept 2)
• Fifth Intersection Delay PM: From 35 Seconds (Concept 1) to 62 Seconds (Concept 2) • Fair Oaks Lane/Atherton Avenue Intersection Delay PM: From 18 Seconds (Concept 1) to 31 Seconds (Concept 2)
• Watkins Avenue Intersection Delay PM: From 6 Seconds (Concept 1) to 50 Seconds (Concept 3)
• Encinal Avenue Intersection Delay PM: From 15 Seconds (Concept 1) to 27 Seconds (Concept 2)
• Valparaiso Avenue Intersection Delay PM: From 24 Seconds (Concept 1) to 52 Seconds (Concept 2)
Arterial Speed:
Consistent with the LOS analysis and forecasted delays, there is an associated reduction in average speed (measured end to end) along the corridor. The northbound AM peak speed sees a nominal decrease of 5%, dropping from 20.3 mph to 19.2 mph. The southbound AM peak (commute direction) speed sees a 21% decline, from 20.7 mph to 16.3 mph. In the northbound PM peak (commute direction), speed decreases by approximately 12%, from 21.2 mph to 18.6 mph, while the southbound PM peak speed increases slightly by 1%, reaching 22.1 mph.
Table 2: AM Peak Hour Delay and LOS by Concept (Delay in Seconds)
INTERSECTION NO BUILD
DELAY
CONCEPT
1 6-LANE
DELAY
CONCEPT
2 4-LANE
DELAY
CONCEPT
3 5-LANE
DELAY
NO BUILD
LOS
CONCEPT
1 6-LANE
LOS
CONCEPT
2 4-LANE
LOS
CONCEPT
3 5-LANE
LOS
Oakwood Dr 26 26 28 28 C C C C
Selby Ln 19 19 35 22 B B C C
Fifth Ave 26 26 28 25 C C C C
Stockbridge Ave 1 1 1 1 A A A A
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Almendral Ave 1 1 1 1 A A A A
Fair Oaks Lane 17 17 29 29 B B C C
Isabella Ave 1 1 1 1 A A A A
Watkins Ave 11 11 15 27 B B B C
Alejandra Ave 1 1 1 1 A A A A
Encinal Ave 23 23 33 23 C C C C
Valparaiso Ave 27 27 51 27 C C D C
Table 3: PM Peak Hour Delay and LOS by Concept (Delay in Seconds)
INTERSECTION NO BUILD
DELAY
CONCEPT
1 6-LANE
DELAY
CONCEPT
2 4-LANE
DELAY
CONCEPT
3 5-LANE
DELAY
NO BUILD
LOS
CONCEPT
1 6-LANE
LOS
CONCEPT
2 4-LANE
LOS
CONCEPT
3 5-LANE
LOS
Oakwood Dr 10 10 23 10 A A C A
Selby Ln 14 14 16 19 B B B B
Fifth Ave 35 35 62 34 C C E C
Stockbridge Ave 1 1 1 1 A A A A
Almendral Ave 1 1 1 1 A A A A
Fair Oaks Lane 18 18 31 26 B B C C
Isabella Ave 1 1 1 1 A A A A
Watkins Ave 6 6 50 14 A A D B
Alejandra Ave 1 1 1 1 A A A A
Encinal Ave 15 15 27 15 B B C B
Valparaiso Ave 24 24 52 33 C C D C
Phase 2: Public Input: Outreach Events
In Phase 2 of the study, a series of community outreach events were conducted to gather input from various stakeholders. The goal was to present the top three design alternatives to a broad spectrum of members of the local community and gather input. The project team organized engagement activities including one technical working group meeting, three pop-up events (Atherton Library, Menlo College, Fair Oaks Community Center), two listening sessions, two focus groups with community-based organization (CBO) partners that included participation from almost 200 members of the public. These events were aimed at engaging corridor users, local residents (Atherton, North Fair Oaks, Menlo Park, etc.), property owners, advocacy groups, and school administrators. In addition, a virtual community meeting was held March 5, 2025 that included 35 participants, 80 percent of whom identified themselves as Atherton residents.
Some of the comment themes that emerged from the outreach events include:
• Safety Concerns: Attendees expressed a strong focus on safety, infrastructure concerns, and balancing different travel modes on El Camino Real.
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• Lane Reduction Concerns & Traffic Flow: Several comments expressed concern that reducing lanes for vehicles would create bottlenecks, increase traffic congestion, and lead to unsafe driving conditions. While there was support for better pedestrian and cyclist facilities, there was also hesitation around trade-offs that might negatively impact traffic flow and vehicle mobility.
• Infrastructure and Design Requests: Participants raised concern about flooding issues and potential costs; and desire for bus stop improvements, raised or vertical barrier separated bikeway design.
• Transit Access: Interest in safer and more convenient access to bus stops.
Feedback on the three design concepts revealed that participants generally agreed with the need for improved biking and walking facilities; but raised concerns about impacts to traffic congestion.
Participants were open-minded to such improvements if there were mitigating factors to relieve potential increased traffic congestion. There was also some insight shared regarding corridor performance beyond the study segment, suggesting the need for additional coordination with neighboring cities to address traffic hotspots experienced by the participants.
Phase 2: Public Input: Online Survey
The primary means of public input was through an online survey conducted from January 13, 2025 through March 7, 2025. The survey was promoted on the Town’s website, through social media posts, shared by funding partners and neighboring cities, promoted at in-person and virtual events, and included in outreach letters to local businesses. The survey was taken by 493 persons, 55 percent of whom identified themselves as Atherton residents. Respondents were asked to rank each concept on a scale of 1 to 5 (1 = Does not meet my needs, 5 = Meets my needs very well).
As illustrated in Table 4, there was nearly equal result between Concept 2, which had the highest average ranking of 3.01, and Concept 1 with an average ranking of 2.99. Among Atherton residents, Concept 1 received the greatest support, 42% finding that it meets their needs. Concepts 2 and 3 received much lower support.
Table 4: Results of Public Survey
All Respondents (493) Atherton Respondents (265)
Average
Score
Does Not
Meet
Needs
(Score: 1)
Does
Meet
Needs
(Score: 5)
Average
Score
Does Not
Meet
Needs
(Score: 1)
Does
Meet
Needs
(Score: 5)
Concept 1 2.99 27% 29% 3.47 21% 42%
Concept 2 3.01 32% 30% 2.19 51% 13%
Concept 3 2.54 31% 9% 2.08 28% 19%
All Respondents (493) Atherton Respondents (265)
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Mostly
Meets
Needs
(Score: 3-5)
Does Not
Meet
Needs
(Score: 1)
Does
Meet
Needs
(Score: 5)
Mostly
Meets
Needs
(Score: 3-5)
Does Not
Meet
Needs (Score:
1)
Does
Meet
Needs
(Score: 5)
Concept 1 278 135 143 185 56 112
Concept 2 281 160 146 91 135 34
Concept 3 241 153 46 84 128 19
• Concept 1 is the preferred alternative for those who are concerned that reducing lanes would create longer wait times, increase congestion during peak hours, and otherwise impact driving conditions.
• Many favored Concept 2 due to its enhanced comfort and safety measures for both cyclists and pedestrians, despite some concerns over its impact on traffic flow. This concept, which includes greater separation from traffic lanes, provides a lower level of traffic stress which is considered important for encouraging higher bike ridership among community members, especially families and inexperienced cyclists. • Concept 3 was seen as a compromise between competing values, but the design may be confusing for drivers, pedestrians, and cyclists. Respondents found that switching from two-lane and three-lane sections in Concept 3 didn’t add real value as compared to the other two concepts.
Specific feedback from residents included concerns about increased corridor travel time, traffic congestion, and connectivity on either end. Atherton residents expressed support for biking and walking safety improvements and were significantly concerned regarding the tradeoff of reducing vehicle travel lanes.
CONCLUSION
The Complete Streets Study provided insight into the community’s views on areas of concern and how to improve the El Camino Real corridor. When considering each design concept’s ability to meet the goals of the study, Concept 2 generally performed the highest among the three alternatives, though Concepts 1 was close behind. The public found that Concepts 1 and 2 best met their needs, though when considering Atherton residents, there was a clear preference towards Concept 1.
As noted earlier, any infrastructure improvements along El Camino Real are controlled by Caltrans’ project development process and is subject to their approval and oversight. Caltrans has the authority to direct improvements that meet their needs, objectives and standards. Caltrans has initiated efforts to develop a Multi-Modal Corridor Plan along El Camino Real in San Mateo County, and SamTrans has re-initiated the Grand Boulevard Initiative to outline a multimodal/complete streets plan for El Camino Real in San Mateo County. Caltrans has also been working on a State Highway Operation and Protection Program (SHOPP) project to improve bicycle access and safety in Redwood City, terminating at Selby Lane. The SHOPP project ECR Complete Streets Gap Closure Study
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envisions the removal of a vehicular lane and/or parking along El Camino Real south of Woodside Road to support the installation of Class IV (separated) bike lanes.
Next Steps and Funding Opportunities
The conclusion of this study is the first step in developing the preferred outline of improvements along the corridor, and selection of preferred alternatives will allow the Town to provide input regarding preferences to both SamTrans and Caltrans for incorporation into their studies. It is important to note that the next step would be to better study the preferred alternatives, develop more detailed concept drawings, further studying potential traffic impacts and other issues related to project development and implementation, through the Project Initiation Document (PID) and Project Approval and Environmental Documentation (PA&ED) phases. The PID process will further evaluate two or more design concepts, including additional public input. SamTrans has initiated the PID process through their efforts reinitiating the Grand Boulevard Initiative. Town staff would continue to work with SamTrans to incorporate the approved alternatives into the Grand Boulevard vision and PID.
SMCTA is anticipated to release their Highway Call for Projects in June 2025. This program can provide funding for further design and public input around the concepts, demonstration projects, or for focused improvements along the corridor. We have been advised that SamTrans intends to pursue funding to facilitate development of the PA&ED phase for the El Camino Real corridor through this program. It is important that the Town stay engaged in the process and help refine proposed improvements as they are further developed. We have also been asked if there are any improvements along El Camino Real that we would want to pursue and apply for through the Highway Call for Projects. Staff recommends developing an application for improvements to the Selby Lane intersection. Such improvements would tentatively include signalization of the intersection to improve pedestrian access, safety and mobility as well as improve traffic flow and safety of vehicles to/from Selby Lane, as well as associated drainage improvements, mitigating localized flooding of the intersection, affecting pedestrian and vehicular traffic, mobility and safety.
Staff recommends that the City Council advance Concept 1 (Added Sidewalks and Striped Bike Lanes) and Concept 2 (Wider Sidewalks & Buffered/Protected Bike Lanes) as preferred alternatives that would continue to be evaluated for further design in the next phase of the Caltrans PID process. Staff further recommends that the Town continue its engagement with SamTrans, SMCTA and Caltrans regarding their collective efforts in advancing improvements to El Camino Real and seek funding for the improvement of the Selby Lane/El Camino Real intersection.
FISCAL IMPACT
None at this time.
GOAL ALIGNMENT
This Report and its contents are in alignment with the following Council Policy Goals:
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• Goal Area A – Preserve Small Town Character and Quality of Life • Goal Area D – Be Forward Thinking
• Goal Area E – Maintain and Improve Public Infrastructure
POLICY FOCUS
Policy focus should be on mobility needs and challenges associated with El Camino Real.
PUBLIC NOTICE
Public notification was achieved by posting the agenda, with this agenda item being listed, at least 72 hours prior to the meeting in print and electronically. Information about the project is also disseminated via the Town’s electronic News Flash and Atherton Online. There are approximately 1,200 subscribers to the Town’s electronic News Flash publications. Subscribers include residents as well as stakeholders –to include, but be not limited to, media outlets, school districts, Menlo Park Fire Protection District, service provides (water, power, and sewer), and regional elected officials.
COMMISSION/COMMITTEE FEEDBACK/REFERRAL
Transportation Committee (meets every other month)
ATTACHMENTS
1. ECR Complete Streets – Conceptual Layouts
2. Design Concepts Summary Memo
3. Caltrans SHOPP Concept Plans
4. ECR Complete Streets – Traffic Analysis
5. ECR Complete Streets – Travel Demand Forecasts
6. ECR Complete Streets – Phase 2 Engagement Summary