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City of Brisbane
City Council Special Meeting Agenda
Tuesday, October 6, 2026 at 5:30 PM ● Hybrid Meeting ● 50 Park Place, Brisbane, CA The public may observe/participate in City Council meetings using remote public comment options or by attending in person. The City Council may take action on any item listed in the agenda.
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October 6, 2026 -2- 5:30 PM
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Call to Order – Pledge of Allegiance
Roll Call
A. Remote Attendance Under the Just Cause Provisions of the Brown Act Adoption of Agenda
Continued Public Hearings
B. Consideration of proposed Baylands Specific Plan and related actions, including amendments to the Brisbane General Plan Land Use and Circulation Elements, amendments to TitleSection 17 of the Brisbane Municipal Code to establish zoning regulations, adoption of theBayshore Mobility Plan, and certification of the Final Environmental Impact Report (FEIR)prepared for this project in accordance with the California Environmental Quality Act (CEQA).
Adjournment
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CITY COUNCIL AGENDA REPORT
Meeting Date: October 6, 2026
From: Kevin Gardiner, Interim Community Development Director Subject: Baylands Subarea; Environmental Review 2021-ER-1, Specific Plan 2021-SP-1, Zoning Amendment 2021-RZ-3, General Plan Amendment 2021-GPA-2; Proposed Baylands Specific Plan including 2,200 residential units; 6.5 million square feet of commercial, office, retail, conference, life science, and office campus uses; 500,000 square feet of hotel use (approximately 800 rooms); a grade 6–8 middle school; 157 acres of open space/open area, parks, and trails; water, recycled water, sewer, drainage, electrical, and other utilities improvements on approximately 680.1 acres generally situated easterly of Bayshore Boulevard and west of Highway 101; Related actions include amending the Brisbane General Plan Land Use and Circulation Elements, Amending Title Section 17 of the Brisbane Municipal Code to establish zoning regulations, and adopting the Bayshore Mobility Plan. A Final Environmental Impact Report (FEIR) has been prepared for this project in accordance with the California Environmental Quality Act (CEQA).
Baylands Development Inc., applicant; Sunquest Properties, majority owner; see Attachment 1 for a complete list of owners.
Recommendation
Staff recommends that the City Council certify that the Final Environmental Impact Report for the Brisbane Baylands Specific Plan has been prepared in accordance with California Environmental Quality Act (CEQA) Guidelines section 15090 and that the Council approve the project entitlements, which include:
• Amend the General Plan Land Use Element in accordance with Government Code sections 65350 to 65362.
• Amend the General Plan Circulation Element in accordance with Government Code sections 65350 to 65362.
• Adopt the Staff-Recommended Baylands Specific Plan, dated May 2026, with clarifying edits, in accordance with Government Code sections 65450 and 65850 as a zoning ordinance. • Amend Title 17, Zoning, of the Brisbane Municipal Code (BMC) to implement the Baylands Specific Plan for Modified Alternative 1, in accordance with Government Code sections 65800 to 65912. • Approve the Bayshore Mobility Plan, which will enhance mobility of Brisbane residents along the corridor within the City of Brisbane, consistent with the Brisbane General Plan Circulation Element.
Introduction
Tonight is the third meeting in a series of meetings the Council is anticipated to hold on the Brisbane Baylands Specific Plan, Final Environmental Impact Report (FEIR), and related approvals that began on September 14, 2026. The Council will continue to consider the project materials through a structured series of hearings organized around Measure JJ requirements and the major components of the Baylands Specific Plan and FEIR,
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allowing both the Council and the public to review the material in manageable segments while tracking how the project is consistent with Measure JJ’s various requirements.
After concluding the discussion of the Land Use Plan and Design Topics that began on September 29, 2026, tonight's new topics include:
• Circulation, including:
o Transportation and Transit Topics (Measure JJ Topic 3.D); o Street sections;
o The Plan’s interface with the regional transportation network; o The Geneva Avenue extension; and
• The Bayshore Mobility Plan.
Background
The September 14, 2026, and September 29, 2026, staff reports (Attachments 1 and 2) are attached for reference and include a summary of the project’s history, the Planning Commission’s review process and recommendations, and the Council’s discussion to date, which the Council should refer to for the complete analysis and record on the topics discussed at those hearings; staff does not repeat that analysis here.
The Council concluded its discussion of air quality, greenhouse gas (GHG) emissions, and energy impacts on September 29, 2026, and then began its review of the Land Use Plan (Measure JJ Topics 1, 2, 3.H, and
3.J) and the Design Topics, including the Objective Standards, Design Guidelines, and the Roundhouse (Measure JJ Topic 3.I). After presentations by staff and the applicant, Baylands Development Inc. (BDI), the Council received public testimony and questions but did not conclude its discussion on these topics. The Council will resume that discussion tonight before beginning the additional topics noted above.
At its July 23, 2026, meeting, the Planning Commission adopted Resolution PC-01-26, 1 recommending City
Council approval of the Bayshore Mobility Plan (BMP) with two modifications: (1) limiting recommended BMP improvements to those necessary to implement Mitigation Measures TRA-2a, 3f, 3i, and 3n of the Specific Plan FEIR, and excluding other proposed measures including the four-to-two lane “road diet” on Bayshore Boulevard; and (2) recommending further engineering study of a continuous Class I bikeway or comparable sidewalk improvement along the full length of Bayshore Boulevard without a road diet. This modified recommendation – rather than the original BMP included in the FEIR – is what the Planning Commission forwarded to the Council, and it influences the discussion below.
Discussion
Circulation
Transportation and Transit Topics (Measure JJ Topic 3.D) Specific Plan Chapter 6 (Circulation) establishes a street network hierarchy (freeways, regional arterials, minor arterials, collectors, local streets, green shared streets, and access roads), an active transportation network of protected bicycle facilities and pedestrian paths, and transit connections to Caltrain, SamTrans, 1 July 23, 2026, Planning Commission Memorandum, Attachment 6 to the September 14, 2026, City Council staff report; Planning Commission Resolution PC-01-26, Attachment 11 to the September 14, 2026, City Council staff report (both included in this report as part of Attachment 1).
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Muni, and the future Geneva–Harney Bus Rapid Transit (BRT) line, supported by an internal shuttle and five mobility hubs offering bike/scooter share, car share, EV charging, and pick-up/drop-off zones. A comprehensive Transportation Demand Management (TDM) program – aligned with Brisbane Municipal Code Chapter 10.52 – targets a 30% reduction in trip generation and vehicle miles traveled (VMT), and caps off-street parking sitewide at 11,000 spaces.
2 The 2026 Staff-Recommended Specific Plan reorganized
this chapter for clearer implementation and added the Commute.org Certified Development Program along with a Homeowner Association or Property Owner Association (HOA/POA) role in sustaining TDM participation over time.
Street Sections
The Plan defines street cross-sections and streetscape typologies for each roadway classification, expanded in the 2026 version to reframe sidewalks as broader public realm spaces with more clearly defined standard widths, and to add off-site pedestrian connections through Icehouse Hill. The “Green Shared Street” typology – a new short-block, low-speed, pedestrian-oriented local street type – is also newly defined and designed to Federal Highway Administration/Caltrans standards for vehicle access and deliveries.
Interface with Regional Transportation Network
Bayshore Boulevard has historically functioned as a regional through-route rather than a local-serving street. General Plan Circulation Element Policy C.1/Program C.1.b, adopted in 2019 (General Plan Amendment GP-1-19, following Measure JJ), directs the City to address the effects of regional throughtraffic on Bayshore Boulevard – where 60–80% of vehicles have no origin or destination in Brisbane – and to evaluate shifting a portion of that traffic onto other routes; the General Plan identifies the Sierra Point Parkway extension and the Geneva Avenue extension (discussed below) as complementary strategies working alongside the Bayshore Mobility Plan (BMP, discussed below), rather than alternative strategies. 3 Geneva Avenue Extension
The Specific Plan proposes extending Geneva Avenue as a new regional arterial from Bayshore Boulevard to Beatty Avenue/Alana Way, including a new bridge over the Caltrain tracks, consistent with the General Plan Circulation Element. The 2025 applicant plan included dedicated transit-only lanes for future BRT service on the approach roadways but omitted them from the bridge crossing itself — a gap identified during review. The 2026 Staff-Recommended Specific Plan closes this gap by adding the transit-only lanes to the Geneva Avenue Bridge itself, for a consistent six-lane (four mixed-flow, two transit-only) crosssection across the corridor, and simplifies the frontage road configuration on the west side of Caltrain to remove hazardous movements and signal-timing conflicts identified in the applicant’s 2025 design.
Bayshore Mobility Plan
The Bayshore Mobility Plan, prepared by Fehr & Peers, implements General Plan Circulation Element Policy C.1/Program C.1.b and is based on two technical foundations: (1) the City’s 2022 SafeTREC Complete Streets Safety Assessment – prepared by Fehr & Peers and UC Berkeley’s SafeTREC and presented to the Complete Streets Safety Committee in February 2024 and to the City Council in October 2 2026 Staff-Recommended Specific Plan, Chapter 6 (Circulation), Attachment 1 to the September 14, 2026, City Council staff report (included in this report as part of Attachment 1). 3 General Plan Circulation Element, Policy C.1/Program C.1.b; General Plan Amendment GP-1-19.
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2023 – and (2) the Specific Plan’s FEIR traffic modeling.4 Additionally, the City's own Local Road Safety Plan identifies Bayshore Boulevard as being on the High Injury Network: higher vehicle speeds reduce driver reaction time and increase both the frequency and severity of crashes,5 which is the safety case for the BMP's proposed changes.
The BMP establishes five goals, informed by these studies:
• Improve local connections along Bayshore Boulevard;
• Better connect the Baylands to existing Brisbane;
• Reduce Bayshore's role as a regional cut-through route; • Create a safer, more comfortable multimodal corridor; and • Improve the corridor's overall look and identity.
To achieve these goals, the BMP proposes two primary categories of improvements:
• Lane reduction. Reducing Bayshore Boulevard south of Geneva Avenue from four through-lanes to two, adding a median and turn pockets while maintaining vehicle access at key intersections. This reduces travel speeds and discourages regional cut-through traffic, and frees up right-of-way to support the protected walking and biking improvements below; and • Protected walking and biking. A continuous Class I multi-use path and intersection crossing improvements to close existing gaps and connect the Baylands, existing Brisbane neighborhoods, and Daly City. These improvements are explicitly tied to Safe Routes to School access and improved connections to SamTrans and Caltrain.
Beyond these two principal improvement categories, the BMP includes a broader set of physical improvements such as the median, turn pockets, and Class I multi-use path described above, along with upgraded pedestrian crossings, protected turn phases, improved lighting, updated striping and signage, and speed-feedback features.6 FEIR traffic modeling found that local Brisbane and Baylands trips remain well under roadway capacity whether or not the BMP is implemented; the underlying problem is regional traffic growth, which is projected to consume all available roadway capacity and more, with the added capacity tending to induce additional regional traffic rather than serve local trips. The BMP’s lane reduction does not reduce that regional growth but shifts where it lands: FEIR modeling projected the change would reduce regional through-traffic on Bayshore Boulevard by roughly 40%, shifting those trips back to US 101, while maintaining adequate capacity for local and Baylands-generated trips.
Staff recommends adoption of the Bayshore Mobility Plan as published, as it is consistent with General Plan Circulation Element Policy C.1/Program C.1.b and the goals described above. As noted in the Background section, the Planning Commission's Resolution PC-01-26 recommended the Council adopt only the BMP components necessary to implement EIR Mitigation Measures TRA-2a, 3f, 3i, and 3n, which would exclude the road diet and other elements of the BMP. If Council follows the Planning Commission’s 4 2022 Complete Streets Safety Assessment, Fehr & Peers/SafeTREC (UC Berkeley). 5 City of Brisbane Local Road Safety Plan (Bayshore Boulevard High Injury Network designation); Institute of Transportation Engineers (speed/crash-risk relationship); presented in the June 11, 2026 Planning Commission workshop presentation, Attachment 8 to the September 14, 2026 City Council staff report (included in this report as part of Attachment 1).
6 Bayshore Mobility Plan, FEIR Appendix F, Attachment 2 to the September 14, 2026 City Council staff report (included in this report as part of Attachment 1).
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recommendation and adopts the components of the BMP that implement the identified mitigation measures, adoption of the full BMP is not required in order to approve the Specific Plan. In addition to recommending against the adoption of the “road diet” portion of the BMP, the Planning Commission recommended the City conduct a further engineering study of bikeway and sidewalk improvements that would not require a lane reduction along Bayshore Boulevard. The Council may elect to act on the BMP separately from the Specific Plan and FEIR or revisit other components of the BMP and Planning Commission’s recommended study separately in the future.
Additionally, the Planning Commission recommended that the Council also consider restricting the use and/or design of Class I facilities to reduce potential conflicts between pedestrians and cyclists and users of e-bikes and e-scooters, and to consider upgrading the Baylands-Central Brisbane shuttle schedule to provide service during the afternoon and later evening hours.7 Fiscal Impact
Measure JJ requires that Baylands development be revenue positive to the City on an annual basis, where all City costs are exceeded by Project‑generated revenues during all phases of development and upon final buildout (Measure JJ Topic 3.E). The applicant has prepared a fiscal impact analysis for the project, which is currently under peer review by the City’s consultant, Keyser Marston Associates, and will be discussed at a future meeting as the hearing is continued.
Environmental Impact
A Final Environmental Impact Report (FEIR) (SCH #2006022136) has been prepared for this project in accordance with the California Environmental Quality Act (CEQA). The FEIR includes the Draft EIR (DEIR), revisions to the DEIR, comments received on the DEIR, a list of commenters, the City’s responses to significant environmental points raised during the DEIR comment period, and any other information added by the City.
Should the Council act to certify the Final EIR, it will need to make Findings and Statements of Overriding Considerations, as well as adopt a Mitigation Monitoring and Reporting Program, consistent with CEQA statutory requirements.
Attachments
1. September 14, 2026, City Council Staff Report (link)
2. September 29, 2026, City Council Staff Report (link) ___________________________________ ________________________________ Kevin Gardiner Jeremy Dennis, City Manager
Interim Community Development Director
7 September 14, 2026 City Council staff report, Background, Planning Commission recommendation on Circulation (included in this report as part of Attachment 1).
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ATTACHMENT 1
Attachment 1: September 14, 2026 City Council Agenda Report September 14, 2026 City Council Agenda Report
https://brisbaneca.portal.civicclerk.com/event/6965/files/report/3249 1
Baylands Specific Plan and EIR - Meeting 3
ATTACHMENT 2
Attachment 2: September 29, 2026 City Council Agenda Report September 29, 2026 City Council Agenda Report
https://brisbaneca.portal.civicclerk.com/event/6995/files/report/3270 1