Item No. 3
Town of Atherton
SPECIAL MEETING – CITY COUNCIL AND TRANSPORTATION, BICYCLE AND
PEDESTRIAN SAFETY COMMITTEE STAFF REPORT
TO: HONORABLE MAYOR AND CITY COUNCIL
TRANSPORTATION, BYCYCLE AND PEDESTRIAN SAFETY
COMMITTEE MEMBERS
FROM: ROBERT OVADIA, PUBLIC WORKS DIRECTOR
DATE: JULY 1, 2026
SUBJECT: ACTIVE TRANSPORTATION PLAN (BICYCLE AND
PEDESTRIAN MASTER PLAN) UPDATE
RECOMMENDATION
It is recommended that the City Council and Transportation, Bicycle and Pedestrian Safety Committee (Committee) receive a continued presentation on the Active Transportation Plan (ATP) including network and policy recommendations; discuss the proposed bicycle and pedestrian networks, and intersection improvements, as well as policy and program recommendations; and provide directed feedback to finalize the recommendations for incorporation into the final draft document that will return for formal review and adoption.
BACKGROUND
The Town’s Bicycle and Pedestrian Master Plan serves as the primary policy making and planning document outlining the needs and priorities as they relate to active transportation needs, for physical improvements as well as in setting policies and programs needed to support active transportation. The policies and priorities listed in the Master Plan, as adopted by Council, set policy direction for staff and create the prioritized list of projects for future implementation through the Town’s Capital Improvement Program. The Master Plan is used to communicate needs and priorities with our community, neighboring jurisdictions, the County, MTC and the State. The improvements outlined in local master plans are used and often reflected in county, regional, and state planning documents.
Eligibility for various funding opportunities, require that the Town have a Bicycle and Pedestrian Master Plan, Active Transportation Plan, or similar document outlining community needs and priorities, and that projects be listed in the plan to be eligible for funding. Similarly, the staff uses the Master Plan document and references as supporting documentation when applying for grants and other funding opportunities.
Active Transportation Plan
JULY 1, 2026
1 3
5 0
These Master Plans are living documents and are required to be updated regularly. These updates are needed to recognize accomplishments, implemented improvements, to revisit and confirm community needs that may have changed, and update priorities. Best practices indicate that Bicycle and Pedestrian Master Plans should be updated approximately every 5 years. This is consistent with the San Mateo County Grand Jury report titled “Bike Safety in San Mateo County: Making Bicycling Safer in the County,” which recommended that each city, town, and unincorporated SMC update or generate a new Bicycle and Pedestrian Master Plan (or Active Transportation Plan) if their plan was older than five years.
Atherton adopted its first Bicycle and Pedestrian Master Plan in November 2014. In January 2025, the Town executed a contract with Alta Planning + Design, Inc. (Alta) to begin work on an update to the Bicycle and Pedestrian Master Plan, now called the Atherton Active Transportation Plan (ATP).
The development of the Active Transportation Plan began with a review and analysis of existing conditions and documents, as well as public outreach to understand community needs, issues and concerns. The initial (Phase 1) public outreach efforts consisted of tabling at the Town’s Earth Day Festival, development of an online survey and interactive webmap, as well as direct emails from members of the public. Based on the results of this Phase 1 public outreach effort, the project team developed draft network recommendations and alternatives. These results were presented to the Transportation, Bicycle and Pedestrian Safety Committee meeting on September 30, 2025, along with a summary of Phase 1 activities prior to initiation of the Phase 2 of public outreach.
Following the September 2025 Committee meeting, the project team initiated Phase 2 of outreach. This included a pop-up at the Town’s Halloween Spooktacular, three neighborhoodfocused meetings held at Town Hall, an online survey, and emails from the public. The project team analyzed the input received and developed updated network recommendations. Additionally, the team developed policies and programs as well as recommended prioritization methodology for proposed improvements.
On March 24, 2026, the Committee received a report and presentation of the Phase 2 public engagement efforts, feedback received, and had an opportunity to review and discuss the results of the engagement efforts, the network recommendations, and recommended policies and programs.
On June 4, 2026, the Council and Committee received a presentation on public outreach efforts and recommendations on the proposed bicycle and pedestrian networks to be included in the Active Transportations plan. Following questions, public comments and deliberation, the Council provided direction regarding the bicycle and pedestrian network including the following:
Bikeways:
• Class I – Shared Use Path:
o Marsh Road
Active Transportation Plan
JULY 1, 2026
1 3
5 0
• Class IV – Separated Bike Lanes:
o Portions of Middlefield Road
• Class IIB – Buffered Bike Lanes:
o Alameda de las Pulgas (under design)
• Class II - Bike Lanes
o Atherton Avenue – removed from Class II Bike Lane network – retained as a Class III bike route
o Glenwood Avenue – Class II Bike Lanes removed and shifted to Class III Bike Route
• Class III – Bike Routes (signage and sharrow markings) o Stockbridge Avenue
o Atherton Avenue – removed from Class II Bike Lane network – retained as a Class III bike route
o Lindenwood Neighborhood
▪ Class III Bike Routes on Greenoaks Avenue were recommended for removal, with the direction to retain bike route between Frederick Avenue and Oak Grove Avenue
o Glenwood Avenue – Class II Bike Lanes removed and shifted to Class III Bike Route
o Polhemus Avenue – removed from Class III Bike Routes network o Almendral Avenue – removed from Class III Bike Routes network • El Camino Real – Class II, IIB, or IV, (final configuration to be based on ongoing studies)
Pedestrian Facilities:
• Walkways on one side of the street:
o Selby Lane was removed. Recommendation to reevaluate with a future walk audit with Adelante-Selby School before the next update to the Active Transportation Plan
o Alameda de las Pulgas
o Atherton Avenue
▪ Inglewood Avenue to Alameda de las Pulgas was included ▪ El Camino Real to Inglewood Avenue noted as desired, with additional studies required due to limited right-of-way
o Fair Oaks Lane
o Middlefield Road
o Dinkelspiel Station Lane
o Watkins Avenue
o Oak Grove Avenue – Middlefield Road to Edge Road was added o Almendral Avenue
o Park Lane
o Emilie Avenue
o Elena Avenue
o Valparaiso Avenue was removed
• Shared Use Pathway:
Active Transportation Plan
JULY 1, 2026
1 3
5 0
o Marsh Road
• Sidewalks on One Side:
o Multi-Family zoning areas – included, contingent on multifamily development • Sidewalk on Two Sides:
o El Camino Real (final configuration to be based on ongoing studies) The remaining items relating to recommendations for intersections, policies and programs were continued to a subsequent meeting to be held on July 1, 2026.
ANALYSIS
As noted above, feedback and direction are requested to finalize the finalize the recommendations to be incorporated into the final draft document that will return for formal review and adoption. The remaining items from the June 4, 2026, meeting are related to recommendations for intersections, programs and policies.
Recommended Intersection Improvements
The project team recommends several intersection improvements to increase accessibility (such as at Alameda de las Pulgas and Atherton Avenue) and improve safety at high-injury locations (such as El Camino Real at Selby Lane and at Valparaiso Avenue).
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Recommended Intersection Improvements
ID Cross Street 1 Cross Street 2 Proposed Recommendation Details
Existing Traffic
Control Type
1 Alameda de las
Pulgas Stockbridge Ave A: High-visibility crosswalk B: Curb ramps 2-way STOP 2 Atherton Ave Alameda de las
Pulgas
A: High-visibility crosswalks
B: Curb ramps
C: Traffic circle
4-way STOP
3 Alameda de las
Pulgas Camino al Lago
A: High-visibility crosswalk
B: Curb ramps
C: New signal
2-way STOP
4 Atherton Ave Selby Ln A: High-visibility crosswalk
B: Curb ramps 1-way STOP
5 Park Ln Elena Ave A: High-visibility crosswalk
B: Curb ramps 4-way STOP
6 Valparaiso Ave* Elena Ave
A: Advanced yield bar
B: Curb ramps
C: RRFB
1-way STOP
Active Transportation Plan
JULY 1, 2026
1 3
5 0
ID Cross Street 1 Cross Street 2 Proposed Recommendation Details
Existing Traffic
Control Type
7 Valparaiso Ave* Emilie Ave
A: Advanced yield bar, high-visibility
crosswalk
B: Curb ramps
C: RRFB
1-Way STOP
8 Valparaiso Ave* Hoover St
A: Advanced yield bar, high-visibility
crosswalk
B: Pedestrian refuge island
1-way STOP
RRFB
9 El Camino Real** Valparaiso Ave
A: High-visibility crosswalk, advanced
stop bar
B: Curb ramps, pedestrian refuge
island
Signal
10 El Camino Real** Encinal Ave
A: Advanced stop bar, high-visibility
crosswalk (east side)
B: Curb ramps, pedestrian refuge
island
Signal
11 El Camino Real** Alejandra Ave
A: High-visibility crosswalk (west side
of intersection)
B: Curb ramps
1-way STOP
PHB
12 El Camino Real** Watkins Ave
A: High-visibility crosswalk
B: Curb ramps
C: New signal
1-way STOP
13 Watkins Ave Dinkelspiel
Station Ln
A: High-visibility crosswalk B: Curb
ramps
1-way STOP
Rail crossing
14 El Camino Real** Isabella Ave
A: High-visibility crosswalk (move to
west side of intersection)
B: Curb ramps, pedestrian refuge
island
1-way STOP
PHB
15 El Camino Real** Fair Oaks Lane A: High-visibility crosswalk B: Curb ramps
Signal (Atherton
Ave)
16 El Camino Real** Atherton Ave
A: Advanced stop bar, high-visibility
crosswalk
B: Curb ramps, pedestrian refuge
island
Signal
(Fair Oaks Ln)
17 El Camino Real** Tuscaloosa Ave
A: High-visibility crosswalk
B: Curb ramp C: PHB 1-way STOP
18 El Camino Real** Almendral Ave
A: High-visibility crosswalk (west
side)
B: Curb ramps, pedestrian refuge
island (west side)
1-way STOP
PHB
19 El Camino Real** Stockbridge Ave
A: High-visibility crosswalks
B: Curb ramp C: PHB 1-way STOP
20 El Camino Real** Fifth Ave
A: Advanced stop bar, high-visibility
crosswalk B: Pedestrian refuge
island, curb ramps
Signal
Active Transportation Plan
JULY 1, 2026
1 3
5 0
ID Cross Street 1 Cross Street 2 Proposed Recommendation Details
Existing Traffic
Control Type
21 El Camino Real** Selby Ln
A: Improved lighting, high-visibility
crosswalks, advanced stop bar
B: Pedestrian refuge island
C: New traffic signal or PHB
1-way STOP
22 Fair Oaks Ln Middlefield Rd C: RRFB
2-way STOP
(Palmer Ave)
23 Middlefield Rd Holbrook Ln A: High-visibility crosswalk B: Curb ramps 1-way STOP
24 Middlefield Rd Watkins Ave
A: Improved lighting
B: Curb extensions/ramps
C: RRFB
1-way STOP
25 Middlefield Rd*** Ravenswood Ave
Remove the channelized right-turn,
install right-turn signal phase, install a
crosswalk with cross-bike markings
on the north Middlefield Rd leg, install
a bike signal, and construct a
“jughandle” bicycle left-turn on the
east side of Middlefield Rd to
facilitate bicycle left-turns onto
Ravenswood Ave.
Signal
26 Prior Ln Middlefield Rd
Continue bike lane to Prior Ln with a
protected corner using a vertical curb
or delineator. Bike conflict markings
through the intersection.
1-way STOP
27 Middlefield Rd Encinal Ave
Continue bike lane buffer to
intersection. Reduce turning radii.
Protected intersection/corner to
reduce conflicts with turning vehicles.
Signal
28 Middlefield Rd Glenwood Ave
Protected intersection/corner to
create more separation between all
road users at the southwest corner.
2-way STOP
RRFB
* Valparaiso Avenue is shared with the City of Meno Park and any proposed improvements would need to be coordinated.
** El Camino Real is a State Highway, under the jurisdiction of Caltrans. Improvement recommendations are preliminary and further evaluation would be included in further active transportation studies, both on-going and planned, along El Camino Real *** Middlefield Road at Ravenswood Avenue is shared with the City of Meno Park and any proposed improvements would need to be coordinated. Menlo Park has identified future improvement to be completed with redevelopment in the vicinity.
In addition to the notes above, items #22 and #24 were discussed at the June 17, 2026, City Council meeting. At this meeting, it was presented that neither of these intersections met the warrants for either a High Intensity Activated Crosswalk (HAWK) Beacon or Rectangular Rapid Flashing Active Transportation Plan
JULY 1, 2026
1 3
5 0
Beacon (RRFB), and traffic signals were recommended for these locations.
Confirmation of these recommendations is requested from the Council.
PROGRAMS AND POLICIES
The project team has also developed DRAFT non-infrastructure recommendations that support and complement the engineering and infrastructure improvements of the Town of Atherton’s Active Transportation Plan. These program and policy recommendations are included as an attachment to this staff report as Attachment 4, Programs and Policies.
These programs and policies can help make biking and walking more accessible to residents and visitors in Atherton, as well as provide ongoing evaluation of these programs and new infrastructure. Recommendations are based on input received from the public as well as best practices and proven records of effectiveness and incorporate equity principles. The programs and policies include several programs retained from the 2014 Town of Atherton Bicycle and Pedestrian Master Plan as well as new programs and policies.
Each of the six new programs is provided in the table below with a brief description, a related plan goal, and at least one successful example from a neighboring jurisdiction (provided as a hyperlink in the table below).
Recommended Programs
Program Description Plan Goal Examples
Mini Main
Street and other
Education
Events (SRTS)
Coordinate with local
schools to host mini
main street safety
education events, Bike
Rodeos and e-bike
safety education events.
Roadway
Safety
Improved
Health
Mountain View,
CA
Atherton Police
Department EBike Safety
Education Class
Atherton Bike
Rodeo
New
Infrastructure
Education
Campaign
When new
improvements are
implemented, coordinate
an education campaign
to provide materials for
local residents to
increase awareness
about how to use and
travel through traffic
control and active
transportation
Network
Cohesiveness
and
Connectivity
Roadway
Safety
SFMTA
Education
Campaign: Get
Your Right Turns
Right
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Program Description Plan Goal Examples
improvements, which
may be new to the area
and which residents may
not be familiar with.
City Level
Safe Routes to
School
Programs and
Coordination
Dedicate Atherton staff
time to work with
existing Safe Routes to
School Programs, San
Mateo County and
Menlo Park and the
broader school
community (i.e.,
teachers, administrators,
students, parents/
caregivers, and
neighbors) to enhance
the safety of students
accessing all schools that
serve Atherton residents.
The dedicated staffing
will support San Mateo
County Safe Routes to
School Programming
and collaboration with
schools and
neighborhoods to offer
more consistent bike and
walk safety education as
well as Track progress
on the implementation of
all recently completed
Safe Routes to School
walk audit report
recommendations.
Complete walk audits
and reports for all
schools within Atherton.
Roadway
Safety
Improved
Health
Menlo Park Safe
Routes to School
Program
Palo Alto Safe
Routes to School
Program
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Program Description Plan Goal Examples
Annual
Bicycle and
Pedestrian
Collision
Reports
Conduct annual
assessments of bicycle
and pedestrian collisions
to understand traffic
safety issues and track
progress toward a safer
community for people
walking and biking.
Through the annual
assessment, monitor and
install safety
countermeasures based on
best practices to improve
the conditions for people
walking and biking.
Roadway
Safety
Funding and
Implementation
Network
Cohesiveness
and
Connectivity
SFMTA
Collision Report
UC Berkeley
SafeTREC’s
Community
Pedestrian and
Bicycle Safety
Program
Bike Lane and
Parking
Enforcement
Coordinate with Traffic
Safety officers to enforce
no parking in a bike lane
and in a "no parking"
zone, especially near
schools and with reported
issues, such as Valparaiso
Avenue and along
Middlefield Road.
Roadway
Safety
San Francisco,
CA
Oakland, CA
End of Year
Workplan
Reporting
Catalog all finished
projects from the previous
fiscal year and calculate
the number of miles of
new and/or upgraded
bicycle and pedestrian
facilities installed. This
will help keep Town staff
and the public informed
on progress towards
implementing the Active
Transportation Plan, as
Funding and
Implementation
Network
Cohesiveness
and
Connectivity
City of Alameda
2024 Annual
Report & 2025
Work Plan
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Program Description Plan Goal Examples
well as identify potential
new projects.
Policies serve to support Town staff in implementing programs and adjusting to new development trends or funding opportunities. There are three recommended new policies, each provided in the table below with a brief description, a related plan goal, and at least one successful example from a neighboring jurisdiction (provided as a hyperlink).
Program Description Plan Goal Examples
Frontage
Improvements
& Developer
Fees
Ordinance
Review and update
planning documents,
building codes,
development permit
requirements and
ordinances to require
development projects to
construct or contribute to
bicycle and pedestrian
facilities through the
development permitting
process, particularly along
key routes, accessing
schools, multi-family
areas and supporting key
transit stops. To maintain
the Town’s semi-rural
character, consider
adopting ordinances that
collect developer fees
toward active
transportation
improvements, such as
accessible walking paths
and biking facilities,
where appropriate.
Network
Cohesiveness and
Connectivity
Transit OrientedDevelopment
Funding and
Implementation
Improved
Health
San Bruno
Development
Impact Fees &
Capacity
Charges
Menlo Park
Frontage
Improvement
Requirements
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Program Description Plan Goal Examples
Update Street
Design
Standards
To ensure maintenance of
the Town’s semi- rural
character, develop Town
design standards for
bicycle and pedestrian
infrastructure. The design
standards could provide
consistency of
requirements related to the
various neighborhoods,
routes, street designations,
and zoning districts.
Once developed, establish
a five-year cycle for
reviewing and updating
the Town’s design
standards for bicycle and
pedestrian infrastructure,
incorporating best
practices from Caltrans,
Federal Highway
Administration
(FHWA), National
Association of City
Transportation Officials
(NACTO), and other
leading agencies to ensure
safe, modern, and effective
facilities.
Network
Cohesiveness and
Connectivity
Funding and
Implementation
Improved
Health
Small Town
and Rural
Design Guide
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Program Description Plan Goal Examples
Daylighting In compliance with the
California Vehicle Codes
Section 22500 that
prohibits people from
parking, stopping, or
leaving a motor vehicle
unattended within 20 feet
of the vehicle approach
side of any marked or
unmarked crosswalk
or within 15 feet of any
crosswalk where a curb
extension is present. The
Town can improve
enforcement of the
California Vehicle Code by
installing a red-painted
curb, curb extensions,
bicycle parking or other
space activation, and/or
signage, where appropriate.
Roadway Safety
Network
Cohesiveness and
Connectivity
Fremont, CA
Confirmation of these policy and program recommendations is requested from the Council.
Standard Drawings and Frontage Requirements
As noted above, staff will be updating and developing standard drawings and details associated with various improvements including but not limited to:
• Pervious Walkways
• Sidewalks and Driveways
o Single-Family frontages (Lloyden Park Neighborhood)
o Multi-Family frontages (RM10, RM20, SB79)
• Intersection and driveway clearance zones
• Curbside bio-retention basins and curb inlets
• Pedestrian scale streetlights
• Speed cushions
Staff also requested Council feedback on potential changes to the Town’s frontage improvement guidelines including but not limited to:
• Requiring a clear zone between the improved roadway and any landscaping • Providing a clear zone for mailbox access by postal service Active Transportation Plan
JULY 1, 2026
1 3
5 0
• Landscape height restrictions in the right-of-way
Following review and discussion, the Transportation, Bicycle and Pedestrian Safety Committee generally agreed that development of standard drawings and details would be beneficial and recommended revising the Town’s requirements and allowances regarding frontage improvements, including the provision of a clear zone along the edge of roadways.
Concurrence of these recommendations by the Council will allow staff to begin development of these standards for future review and consideration by the Council.
Prioritization Methodology
In addition to the recommendations above, the project team has prepared a DRAFT prioritization methodology to weigh the value potential projects bring to the Town. The approach provided in Attachment 5, Prioritization Methodology serves to enhance Atherton’s active transportation network balancing what is realistic (given historic and anticipated funding) while providing the Town with flexibility to respond to changing conditions and opportunities that may arise in the future. This prioritization also balances community feedback received on the proposed network with how the network addresses safety and internal connectivity for people walking and bicycling.
NEXT STEPS
The project team will take the input received from this meeting and fold it into ongoing work on cost estimates and project prioritization later this spring. The project team will then continue its work on Concept Designs for select projects as well as develop a draft plan for public review in late summer to early fall. The project team is aiming for Council adoption in Fall 2026.
GOAL ALIGNMENT
This Report and its contents are in alignment with the following Council Policy Goals:
• Goal A - Preserve Small Town Character & Quality of Life • Goal D - Be Forward Thinking
• Goal E - Maintain and Improve Public Infrastructure
CONCLUSION
Staff requests that the City Council and the Committee review the various recommendations presented and discussed at the Transportation, Bicycle and Pedestrian Safety Committee meeting on March 24, 2026, and at the June 4, 2026, Joint Study Session and provide feedback on the recommendation intersection improvements as well as the programs and policies.
POLICY FOCUS
Active Transportation Plan
JULY 1, 2026
1 3
5 0
Policy focus of this item relates to forward planning of the desired Active Transportation Plan Network in the Town of Atherton.
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. June 4, 2026, Staff Report
2. Network Recommendations
3. Programs and Policies
4. Prioritization Methodology
5. AMC Section 12.06.100 - Standards for work