CITY OF GLENDALE, CALIFORNIA
REPORT TO THE CITY COUNCIL
AGENDA ITEM
Report: Pilot Program for Deployment and Operation of Personal Delivery Devices (PDDs) on Public Rights-of-Way Pursuant to Operating Agreements
1. Motion to approve the proposed one-year pilot program in the form of operating agreements with two PDD operators, and authorize the City Manager to execute the agreements; and
2. Introduction of Ordinance Prohibiting the Deployment and Operation of Personal Delivery Devices on Public Rights-of-Way Except Pursuant to an Operating Agreement with the City.
COUNCIL ACTION
Item Type: Action Item
Approved for September 22, 2026 calendar
EXECUTIVE SUMMARY
On March 31, 2026, the City Council directed staff to conduct additional research and stakeholder outreach regarding the operation of PDDs within the city. Staff subsequently met with PDD operators, conducted outreach with local businesses, and reviewed regulatory frameworks implemented by neighboring jurisdictions. On July 14, 2026, staff presented its findings to the City Council, and Council directed staff to prepare an ordinance and operating agreement for a pilot program.
This report presents the proposed regulatory framework developed in response to Council's direction. The proposed ordinance prohibits the deployment and operation of PDDs on public rights-of-way except pursuant to an operating agreement with the City.
In turn, the proposed operating agreement establishes operational requirements intended to promote pedestrian safety, maintain accessibility within the public right-of-way, provide operator accountability, and enable the City to monitor program performance. Staff recommends implementing the program as a one-year pilot to evaluate its effectiveness before considering a permanent regulatory framework.
Throughout the pilot, participating operators will be required to provide operational data to assist staff in evaluating program performance. Staff will provide a mid-year update to the City Council during the pilot; and, upon its conclusion, staff will return with a comprehensive evaluation and recommendations regarding the future of the program. 2 7
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3 RECOMMENDATION
That the City Council pass a motion to approve the proposed one-year pilot program in the form of operating agreements with two PDD operators, and authorize the City Manager to execute the agreements; and introduce the Ordinance Prohibiting the Deployment and Operation of Personal Delivery Devices on Public Rights-of-Way Except Pursuant to an Operating Agreement with the City.
ANALYSIS
Background
PDDs are electrically powered devices designed to transport goods using sidewalks and pedestrian facilities. These devices are mostly used for food, grocery, and retail deliveries, and have become increasingly common throughout Southern California.
On March 31, 2026, the City Council received a report regarding PDDs, commonly referred to as delivery robots. At that meeting, Council directed staff to continue monitoring regional developments, coordinate with neighboring jurisdictions, conduct additional outreach, and return with updated information to inform a potential regulatory framework.
Staff returned to the City Council on July 14, 2026, and presented the results of its research, including business outreach, operator meetings, regional regulatory practices, and potential policy considerations. After discussion, Council directed staff to work with the City Attorney's Office to prepare a pilot program establishing a one-year regulatory framework for PDD operations through an ordinance and operating agreements, and to return with the final documents for Council consideration.
Pilot Program Overview
The proposed framework incorporates operational best practices identified through staff's review of programs established by neighboring jurisdictions, including the cities of Los Angeles, Santa Monica, and West Hollywood, while reflecting Council's policy direction for Glendale.
The proposed one-year pilot is intended to evaluate PDD operations within the city while promoting pedestrian safety, preserving accessibility within the public right-of-way, establishing operator accountability, and providing the data necessary to assess program performance before considering a permanent regulatory framework.
The pilot consists of two regulatory components:
An ordinance prohibiting the deployment and operation of PDDs on public rights- of-way except pursuant to an operating agreement with the City; and Individual operating agreements establishing specific obligations executed by and between the City each PDD operator.
Subject to reevaluation after six months, as many as two PDD operators may each enter into an operating agreement with the City that:
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3 Allows for the deployment of PDDs with Level 4 or less automation pursuant to the National Highway Traffic Safety Administration’s definition for autonomous vehicles adapted to PDDs (¶ 3.1);
oLevel 4 means “High Automation.” When engaged, the system is fully responsible for operation within limited service areas (i.e., specific mapping zones). A human is not needed to operate the device (though remote oversight may monitor fleet progress). Level 4 automation is distinguished from Level 5, “Full Automation,” in which the system is fully responsible for operation under all conditions (without human intervention or remote backup). Limits the operator’s fleet size to 30 PDDs (¶ 3.1) and disperses PDDs by providing that no more than 4 devices may be deployed or parked on a City block at any time (¶ 5.1(B));
Does not limit hours of operation (¶ 3.3);
Prohibits parking or storage on sidewalks, in crosswalks, on curb ramps, at transit stops, on Americans with Disabilities Act (ADA) routes, along red curbs, in driveways, or in other areas that obstruct pedestrian access (¶¶ 3.6, 5.2); Requires standard insurance, with the City named as an additional insured, in a form approved by Risk Management and the City Attorney (¶ 11.0), and indemnification (¶ 12.0);
Requires reporting on a monthly basis, or upon request of the City, regarding fleet size, trips, operating areas, complaints, incidents, disabled devices, response times, and participating businesses (¶ 3.10);
Requires an accessible path of travel at all times, no obstruction of ADA facilities, and priority response for ADA-related complaints (¶¶ 3.6–3.9); Permits City-approved static advertising at a charge of $4 per device per day (¶¶
6.1, 6.4);
Requires affixed visible device numeration, operator name, phone number/email, 24-hour contract information, and complaint procedures (¶ 4.1); Prescribes escalating liquidated damages (i.e., monetary payments) for violation of the service requests, accessibility, idling, and geofencing requirements; suspension or termination for default, and termination for convenience (¶ 13.0); Requires response to malfunctions within 1 hour, or 25 minutes if a malfunction occurs in a crosswalk or vehicular traffic right-of-way (¶ 3.9(A)); Requires response to service requests within 30 minutes during the operator’s normal business hours or if service is requested due to an ADA obstruction; otherwise, requires response to service requests when the operator reopens for business (¶ 3.9(B));
Prohibits the conveyance of contraband, cannabis, dry ice, hazardous materials, animals, and any other items prohibited by law (¶ 3.2); Prescribes a maximum speed limit of 5 MPH (¶ 4.6) and prohibits idling (i.e., parking for more than 2 hours) (¶ 3.6); and
Prescribes payment for operation of PDDs on public rights-of-way in the amount of $2,500 annually for 1-10 PPDs, $5,000 for 11-20 PDDs, and $7,500 for 21-30 PDDs (¶ 7.1).
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3 Staff recommends implementing the proposed framework as a one-year pilot to evaluate program performance, monitor compliance with the operational requirements, assess impacts to the public right-of-way, and identify any necessary modifications before considering a permanent regulatory program.
Participating operators will be required to provide operational data throughout the pilot.
Staff will provide a mid-year update to the City Council and, upon completion of the pilot, return with a comprehensive evaluation and recommendations regarding the future of the program.
STAKEHOLDERS/OUTREACH
Staff coordinated with the City Attorney's Office, Community Development Department, Economic Development Division, Public Works Department, Police Department, and other City departments regarding PDD operations and regulatory considerations.
In addition, staff met with PDD operators and conducted outreach to the business community regarding potential deployment within Glendale.
FISCAL IMPACT
Pursuant to the draft Operating Agreement, each operator will pay an annual operating charge of $2,500 for every 10 PDDs deployed. During the one-year pilot, staff will evaluate the resources and staffing necessary to administer and enforce the operating agreements. If additional resources are identified, staff will return to the City Council for consideration as part of the mid-year evaluation or upon completion of the pilot program.
ENVIRONMENTAL REVIEW (CEQA/NEPA)
The action being considered does not constitute a “project” within the meaning of CEQA pursuant to CEQA Guidelines section 15378(b)(2) as it constitutes continuing administrative and maintenance activities, including general policy or procedure making; thus, it is not subject to CEQA pursuant to CEQA Guidelines section 15060(c)(3). Even if it is a “project,” the action is categorically exempt from CEQA pursuant to CEQA Guidelines Section 15301 in that it consists of the operation of existing public facilities or topographical features, namely, existing highways and streets, sidewalks and similar facilities, involving negligible or no expansion of existing or former use. Moreover, it can be seen with certainty that there is no possibility that the activity in question may have a significant effect on the environment; thus, it is exempt from CEQA pursuant to CEQA Guidelines section 15061(b)(3).
CAMPAIGN DISCLOSURE
This item is exempt from campaign disclosure requirements.
ALTERNATIVES TO STAFF RECOMMENDATION
Do not approve the one-year pilot program for deployment and operation of PDDs on public rights-of-way in the city. In that event, unregulated deployment and operation of PDDs would be allowed to continue, except in specific circumstances that violate existing law.
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3 ADMINISTRATIVE ACTION
Submitted by:
Daniel Hernandez, Director of Public Works
Prepared by:
Petra Beglarian, Public Works Manager
Approved by:
Roubik R. Golanian, P.E., City Manager
EXHIBITS/ATTACHMENTS
Exhibit 1: Draft Operating Agreement