City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: City Manager
Meeting Date: March 10, 2025
Report #:2502-4180
TITLE
Adoption of Resolutions Amending the Comprehensive Plan to Re-Classify Portions of Ramona Street and California Avenue as Car-Free Streets and Closing those Streets to Vehicular Traffic; and Adoption of an Ordinance Allowing the City Manager to Create Regulations for these Streets, Setting Speed Limits for Bicycles on California Ave., and Implementing Ramona St. as Pedestrian Only (First Read); CEQA Status - An Addendum to the Comprehensive Plan Environmental Impact Report (EIR) (SCH#2014052101) Has Been Prepared.
RECOMMENDATION
Staff recommends the City Council:
1. Consider the Addendum to the previously adopted Comprehensive Plan 2030 Environmental Impact Report (SCH# 2014052101);
2. Adopt the Resolution amending the Comprehensive Plan Transportation Element and Glossary;
3. Adopt the Resolution approving the closure of designated sections of Ramona St. And California Avenue to vehicular traffic; and
4. FIRST READ: Adopt an ordinance creating new Chapter 10.66 in Title 10 (Vehicles and Traffic) to allow the City Manager to create regulations to control vehicular access to these streets, set speed limits for bicycles at 15 mph on California Ave, and implement Ramona St. as pedestrian only by prohibiting bicycle and skateboard riding.
EXECUTIVE SUMMARY
On November 6, 2023, the City Council provided direction to maintain the closed off portions of Ramona Street and California Avenue as car-free streets, with current areas of street closure to be made permanent.
In order to facilitate car-free areas of the City, an Amendment to the Comprehensive Plan is proposed (Attachment A) to re-classify the proposed portions of Ramona Street and California Avenue as a “Pedestrian Only Street” and “Community Street,” respectively, on Map T-5 of the Transportation Element, and to add definitions of these terms to the Glossary. These streets are currently identified as Residential/Collector Streets. The proposed Resolution in Attachment B would approve the street designations and set forth the rules for the use of these streets. The proposed Ordinance in Attachment D implements the Pedestrian Only designation of Ramona St.,
sets speed limits for bicycles on California Avenue, and allows the City Manager to create regulations to control vehicle access for both streets. The environmental impacts associated with the Comprehensive Plan Amendment and the permanent closure of these segments of Ramona Street and California Avenue to through- vehicular traffic have been analyzed in an addendum to the Comprehensive Plan Environmental Impact Report included in Attachment C. The findings of the addendum show that the project will not result in any new or more severe impacts as compared to impacts previously identified for the planned buildout under the Comprehensive Plan through 2030.
On February 12, 2024, the Planning and Transportation Commission (PTC) reviewed the proposed changes to the Comprehensive Plan. The PTC unanimously recommended approval and provided additional feedback. The feedback has been considered and incorporated into the proposed resolutions for Council consideration as discussed below.
BACKGROUND
In March 2020, restrictions on indoor dining and social distance requirements associated with the COVID-19 pandemic had a negative economic effect on many local businesses in the City of Palo Alto. In June 2020, the City closed off portions of Ramona Street (between Hamilton Avenue and University Avenue) and California Avenue (between El Camino Real and Birch Street) to vehicular traffic, to facilitate pedestrian access and outdoor dining, and enhance the retail experience.
Since June 2020, the City Council has taken action multiple times to continue the temporary closures, and these street segments are still closed to vehicular traffic. Following is a summary of key actions taken by Council to temporarily close these street segments to vehicular traffic to facilitate pedestrian access and outdoor dining and enhance the retail experience:
•On June 23, 2020, the City Council adopted Resolution No. 9909, temporarily closing portions of California Avenue and University Avenue and certain downtown streets intersecting University Avenue (including Ramona Street), pursuant to California Vehicle Code 21101.
•On August 10, 2020, December 14, 2020, and May 10, 2021, the Council adopted successive resolutions extending the temporary street closures until to December 31, 2020, May 31, 2021, October 31, 2021, respectively.
•On September 13, 2021, the City Council directed the re-opening of University Avenue on October 15, 2021, and adopted Resolutions No. 9987 and 9988 to continue with temporary closure of portions of Ramona Street and California Avenue respectively, through June 2022.
•On May 16, 2022, the City Council adopted Resolutions No. 10039 and 10040, extending the temporary closures until December 31, 2023.
Due to the success of these temporary measures, on November 6, 2023, the City Council directed staff to return with necessary actions to maintain the closed off portions of Ramona Street and California Avenue as car-free streets in a permanent manner. Council has approved subsequent resolutions extending the temporary closures through December 2025 to provide time for implementation of the permanent closures.
In order to permanently close these portions of Ramona Street and California Avenue to vehicular traffic, the City’s Comprehensive Plan will need to be amended.
Planning and Transportation Commission
On February 12, 2025, the PTC unanimously moved staff recommendations for the proposed project and provided additional suggestions on possible modifications to the resolutions, as warranted by staff. This included a recommendation to consider the following three items:
consultation with Caltrain, no net loss of accessible parking spaces, and improvements to the alleyways off California Avenue. Staff has updated the resolutions to reflect PTC feedback and consulted with Caltrain, as discussed further below. Any additional improvements on California Avenue will be considered in a future phase of streetscape improvements.
Project Description
The proposed project includes a resolution to amend the Comprehensive Plan 2030 to re- classify the proposed portions of Ramona Street and California Avenue as a “Pedestrian Only Street” and Community Street,” respectively, on Map T-5 (page 67) of the Transportation Element and adding definitions of the new street classifications to the Glossary. The project also includes a resolution implementing the street closures and setting forth the provisions for allowed uses within these street classifications. The proposed new classifications are:
•Pedestrian Only Streets – Streets that are restricted to pedestrians. Emergency vehicles, and utility and maintenance vehicles operated by or on behalf of the City are allowed; private utility vehicles may be allowed through an exception process. Outdoor dining and retail displays are encouraged on pedestrian only streets. •Community Streets – Streets that are restricted to pedestrians and bicycles or similar modes of transportation, subject to a maximum speed limit. Emergency vehicles and utility and maintenance vehicles operated by or on behalf of the City are allowed; private utility and commercial vehicles may be allowed in limited capacities through an exception process. Outdoor dining, retail displays, and community events are encouraged on community streets.
Car-Free Ramona Street
The Ramona Street segment will be pedestrian access only (including full American with Disabilities [ADA] access) with emergency vehicles and utility and maintenance vehicles operated by or on behalf of the City granted access when needed. Private utility and maintenance vehicles will be granted access through an exception process. Access by other vehicular traffic and mounted bicycles will be precluded to better support a safe pedestrian zone.
Conceptual design for near-term improvements, which will support a car-free street, is currently underway and will be brought forward for Council consideration in late Spring 2025. Potential improvements include re-configuring the existing left turn lane from Hamilton Avenue to Ramona Street, installing signage indicating no right or left turns from Hamilton Avenue onto Ramona Street, and installing removable bollards, planters, and signage at both ends of the car- free portion of Ramona Street to indicate a car-free street. Signage would also be installed at University Avenue and Ramona Street to indicate that there is no outlet via Ramona Street, but that there is access to the existing Ramona/University Parking Garage, located across from 530 Ramona Street, approximately midblock between University Avenue and Hamilton Avenue.
The removable bollards will provide access for emergency, public utility, and maintenance vehicles on Ramona Street from Hamilton Avenue via a 40-foot-long and 20-foot-wide fire lane that will narrow to 16 feet wide through the remainder of the car-free portion of the street (approximately 160 feet). The fire lane will run through the center of the street, allowing eight feet between the fire lane and the edge of the sidewalk for the first 40 feet and 10 feet on each side, for the remaining approximately 160 feet. The space within the public right-of-way between the fire lane and edge of sidewalk curbs could be available for outdoor dining and retail.
Car-Free California Avenue
As proposed, California Avenue between El Camino Real and Birch Street will be restricted to pedestrians and bicycles or other similar modes of transit, subject to a speed limit of 15 miles per hour. Limited access will be allowed for emergency, utility and maintenance vehicles operated by and on behalf of the City. Private utility and commercial vehicles would only be allowed access through an exception process.
Council took action on December 16, 2024, to facilitate the replacement of temporary barriers with near-term improvements at the car-free portion of California Avenue at the El Camino Real, Ash Street and Birch Street intersections.1 Improvements are comprised of street resurfacing, stamped clay colored asphalt, bollards, bike lanes, planters, and signage. At the El Camino Real and Birch Street intersections bicycle lane markings will indicate the path of travel in the car-free area. Retractable and removable bollards will control vehicle access to the car free area. Large fiberglass planters will be located to prohibit vehicle access. Signage at each intersection will indicate the road is closed to vehicles and open to bicycles and pedestrians.
Additionally, two ADA parking pick up and drop off areas will be located at the Ash Street intersection. At the February 12, 2025 meeting 2, the PTC asked staff to consider adding one more ADA parking space, which would ensure no net loss of spaces; this will be taken into consideration during the next phase of streetscape improvements. Construction of the near- term improvements is anticipated to begin in March-April 2025.
The permanent closure of this section of California Avenue will require permanent relocation of the Santa Clara Valley Transit Route (SCVT) 89 which will operate using an alternative bus route as it has since 2020 when the temporary closures were initiated.
ANALYSIS
Staff has analyzed the proposed street closures and associated Comprehensive Plan Amendment and found these actions to be consistent with the relevant plans, policies, and regulations adopted by the City as detailed herein.
1 California Ave Street Improvements:
https://cityofpaloalto.primegov.com/Portal/viewer?id=0&type=7&uid=426739a9-5371-4252-bf28-38b87dee1191 2 February 12th PTC Staff Report: https://cityofpaloalto.primegov.com/Portal/viewer?id=0&type=7&uid=803f19f6- edf7-4aac-bd3e-7f7e15a9681b
Consistency with the Comprehensive Plan, Area Plans, and Guidelines3 The Comprehensive Plan includes Goals, Policies, and Programs that guide the physical form of the City. The Comprehensive Plan provides the basis for the City’s development regulations and is used by City staff to regulate building and development and make recommendations on projects.
The proposed resolutions further several goals and policies in the Comprehensive Plan Land Use Element, Natural Element, and Transportation Element to encourage walking and biking, prioritize alternative modes of transportation over single-occupancy vehicle use, and reduce emissions, as detailed in the Resolutions in Attachments A and B.
The project would conflict with Map T-5 of the Transportation Element of the Comprehensive Plan, which identifies Ramona Street and California Avenue as residential/collector streets. The proposed amendment modifies this map to show the proposed segments of Ramona Street and California Avenue as Pedestrian Only Street and Community Street, respectively. With approval of the proposed resolution, the proposed street configurations would be consistent with the Comprehensive Plan. This Comprehensive Plan Amendment to permanently close portions of Ramona Street and California Avenue to vehicular traffic supports their transformation to be vibrant walkable destinations, prioritizing outdoor dining, pedestrian safety, and public gathering spaces to enhance community life and economic vibrancy.
There are no area plans that apply to these proposed street segments. Ramona Avenue is located within the boundaries of the Downtown Design Guidelines. The proposed actions that facilitate and implement a car-free street for a portion of Ramona Avenue encourages pedestrian activity, consistent with these guidelines.
Zoning Compliance4
The proposed work is located within public right-of-way and is therefore not subject to a specific land use designation. Nevertheless, the proposed actions do not include physical modifications to the proposed street segments, with the exception of the placement of removable bollards at the ends of each street segments, the addition of planters, and the addition of wayfinding markings and signage. These improvements would not conflict with any regulations set forth in the zoning ordinance or other municipal code sections.
Adjacent properties along the proposed car-free segment of Ramona Avenue are zoned Commercial-Downtown Community (C-DC) with Ground Floor (GF) and Pedestrian (P) combining districts. Adjacent properties along the proposed car-free segment of California Avenue are zoned Community Commercial (CC2) with Retail (R) and P combining districts. Both commercial zone districts accommodate a range of commercial uses and these ground floor, retail, and pedestrian combining districts generally encourage active ground floor uses, particularly retail and retail-like uses, and include urban design requirements that encourage pedestrian activity. The proposed actions are consistent with the intent of these base zoning districts and combining districts and 3 The Palo Alto Comprehensive Plan: https://www.cityofpaloalto.org/Departments/Planning-Development- Services/Housing-Policies-Projects/2030-Comprehensive-Plan 4 Palo Alto Zoning Code: https://codelibrary.amlegal.com/codes/paloalto/latest/overview add to the economic vitality of these areas.
Bicycle Access
To support a safe pedestrian zone with outdoor dining, retail, and events, mounted bicycles will not be allowed in the pedestrian street. The car-free portion of Ramona Street is approximately 200 feet long and is not being considered as an essential bike route in the proposed Bicycle and Pedestrian Master Plan update. Bicyclists may use alternate parallel streets between Hamilton Avenue and University Avenue or choose to walk their bicycles in the 200-foot car-free segment of Ramona Street.
A bicycle route through the car-free portion of California Avenue is a core element of cross-town bike circulation. California Avenue’s bike lanes connect the east and west sides of Palo Alto to the California Avenue Caltrain Station, with a connection under the Caltrain tracks, linking residential neighborhoods, regional transit, and employment at Stanford Research Park.
Currently, Class II bike lanes extend from Hannover Street to Louis Road, including a bike tunnel under the Caltrain right-of-way, with California Avenue as a planned enhanced bikeway between the Caltrain right-of-way and El Camino Real. A Community Street designation will eliminate car traffic and prioritize pedestrians and bicycles and other similar modes of transportation, subject to a maximum speed limit of 15 miles per hour, designating the route as part of the City’s bike network.
Allowed and Prohibited Vehicles
The reclassification of a portion of Ramona Street prioritizes pedestrian use and the re- classification of a portion of California Avenue as a Community Street prioritizes pedestrian use, bicycle use, and other similar modes of transportation, subject to a maximum speed limit of 15 miles per hour for bicycles. Both reclassifications restrict vehicle access to maintain safety and pedestrian usability. “Car- free” means no through vehicular traffic, with limited exceptions as follows:
Allowed Vehicles
•Emergency vehicles are permitted access at any time during emergencies or for non- emergency situations that ensure public health and safety, including special events. •Utility and maintenance vehicles, operated by or on behalf of the City or utilities, will be granted access if no alternative method exists to reach the service location. •Utility and maintenance vehicles operated by businesses or private entities may also receive access per this criteria, and through an exception process, •For special events, such as Farmers’ Markets, and other special circumstances, the City Manager or designee may authorize access on a limited basis, to the closed streets.
Prohibited Vehicles
•Commercial vehicles making routine (i.e. regularly scheduled) deliveries to businesses and individuals are prohibited.
The attached ordinance will allow the City Manager to promulgate or amend these exceptions as appropriate through City Manager-level regulations.
Options for Bollard Access
The operation of retractable and removable bollards on Ramona Street and California Avenue will be managed through a key access system. Police, Fire Department, and City utilities and maintenance will have access keys. Staff will develop protocols for access by other stakeholders such as public utilities and vendors at the Farmers’ Market and 3rd Thursdays.
Parking and Circulation
The primary concern raised by merchants and community members regarding the temporary closure of California Avenue is vehicle circulation rather than parking. Since the closure began in 2020, travel behavior has adjusted to mitigate some of these concerns, but some issues still need to be addressed.
Parking
The closure of the car-free section of California Avenue has resulted in the loss of 53 on-street parking spaces, which includes three ADA spaces between Ash Street and Birch Street. The impact of the lost on-street parking is lessened due to an increase in parking supply with the new Sherman Avenue garage, a decrease in the demand for parking due to remote work, and the growth of on-line shopping. Additionally, changes in office occupancy trends, with employees concentrating in-office time midweek, has reduced informal weekday lunches, further reducing parking demand. The loss of ADA parking spaces, which affects access for disabled and senior customers, will be addressed by near-term improvements for two new ADA parking spaces on Ash Street, ensuring that merchants will have ADA accessible parking in close proximity to their businesses. As stated earlier, staff will explore future opportunities for an additional ADA parking space, in response to feedback from PTC.
Circulation
Key circulation issues on California Avenue include wayfinding challenges, the need to improve alleyways and pedestrian pathways, resolving bicycle and pedestrian conflicts, and ensuring safety by addressing unauthorized pick-up and drop-off locations. Street design concepts under development by the consultant, Urban Field Studio, will address these issues.
FISCAL/RESOURCE IMPACT
Approval of the recommended action will not result in any immediate fiscal impact. The Project may result in increased revenue due to increased economic activity in downtown and on California Avenue. Overall, the near-term improvements for California Avenue are funded as is the design work for Ramona Street; however, additional funding will be needed for near term improvements on Ramona St. (e.g. bollards and planters) and further improvements on California Avenue (e.g. implementation of a signage plan).
Improvements for the car-free portion of Ramona Street will be discussed with the City Council in late spring 2025; funding needed to implement approved improvements will be considered as a proposal in the FY 2026 Proposed Budget. Costs associated with improvements (bollards, planters, signage, edge treatments) for Ramona Street are under development.
As discussed with the City Council on February 3, 2025,5 the cost for near-term improvements for California Avenue, including bollard installation, planters, stamped concrete, grinding/repaving of pavement and work at the California Ave & El Camino Real intersection is approximately $825,000. This California Avenue work is funded through Council approved projects in the FY 2025 Capital Improvement program including California Avenue Streetscape, (PL-23000), Transportation and Parking Improvements (PL-12000) and Street Maintenance Project (PE-86070).
Costs for additional project-specific investments, such as implementation of a California Ave signage plan, will be further refined and discussed with the City Council as the project elements continue to take shape. These significant investments will be discussed as part of the FY 2026 budget process as well to the extent financial resource needs are anticipated.
STAKEHOLDER ENGAGEMENT
The Palo Alto Municipal Code requires notice of this public hearing be published in a local paper at least ten days in advance. Notice of a public hearing for this project, accordingly, was published in the Daily Post on February 28, 2025, which is 10 days in advance of the meeting.
Stakeholder and Community Engagement
City staff and consultants conducted extensive outreach to engage merchants, business owners, and the broader community regarding the future of Ramona Street and California Avenue from October 2022 to April 2023, with a second round of outreach for California Avenue from February 2024 to November 2024. Key efforts included monthly workshops, interviews, focus group meetings and outreach to several stakeholder groups such as Stanford Research Park, Chamber of Commerce, Farmer’s Market, business and property owners, property managers and developers. Staff also held several online and in-person community meetings, conducted a survey, and engaged City Committees. A detailed Community & Stakeholder engagement report is available online and provides further detail 5 Council Study Session: https://cityofpaloalto.primegov.com/Portal/viewer?id=0&type=7&uid=ea05cf69-abb5- 47f4-80f1-973371604f2f
of the stakeholder engagement work conducted for this project6. Additionally, City Council report for the February 3, 2025, hearing provides a more recent update on stakeholder engagement on California Avenue.
The two City surveys conducted for these car-free streets showed support for a pedestrian oriented main street. 79% of the survey respondents supported keeping California Avenue car-free and 70% of the survey respondents supported keeping a portion of Ramona Street car-free.
While some property owners and retailers on California Avenue have expressed concern about reduced visibility and access for cars with the street closure, these challenges can be addressed through enhanced wayfinding, zoning reform to attract new business, and thoughtful urban design. The wide 90-foot right-of-way presents an opportunity to balance retail, restaurant, and community needs without vehicular traffic, which would compromise the pedestrian atmosphere. Making the closure permanent provides certainty for local business and property owners, encouraging investment in outdoor dining and other improvements.
Based on feedback from the PTC on February 12, 2025, the project was also sent to Caltrain on February 13, 2025, for their review and feedback. A response from Caltrain on February 18, 2025, indicated they had no comments or concerns about the project.
ENVIRONMENTAL REVIEW
The City, acting as the lead agency, has analyzed the project in accordance with the authority and criteria contained in the California Environmental Quality Act (CEQA), the State CEQA Guidelines, and the environmental regulations of the City. Specifically, the City prepared an addendum to the Comprehensive Plan EIR (SCH#2014052101) to evaluate the proposed comprehensive plan amendment and associated street closures. The addendum concludes that the Project will not have new, or substantially more severe significant effects compared to those identified in the Comprehensive Plan EIR. Furthermore, there are no new mitigation measures beyond those previously analyzed that would reduce one or more significant effects. During all Project construction activities, it is recommended applicable BMPs shown in Table 5.3 of the CEQA Analysis report be implemented in compliance with Mitigation Measure AIR-2a.
On November 22, 2024, Santa Clara Valley Transportation Authority provided feedback on the potential impacts to Bus Route 89 which are incorporated into the transportation analysis of 6 Community & Stakeholder Engagement Report:
https://www.cityofpaloalto.org/files/assets/public/v/1/transportation/projects/car-free-streets/cfs_fall-2022- spring-2023-community-and-stakeholder-engagement-report_final-for-web.pdf the Addendum. Although not required, the Administrative Draft Addendum to the EIR for this project was sent to other Public Agencies that may have an interest in this proposed project, including Caltrans and California State Historic Preservation Office.
Tribal Coordination
SB 18 (GC Section 65352.3) requires lead agencies to contact and consult with California Native American tribes prior to amending or adopting any general plan, specific plan, or designating land as open space. In accordance with SB 18, notification of the proposed Project was mailed to the following tribes on December 5, 2024:
•Amah Mutsun Tribal Band of Mission San Juan Bautista
•Costanoan Rumsen Carmel Tribe
•Indian Canyon Mutsun Band of Coastanoan
•Ohlone Indian Tribe
•Muwekma Ohlone Tribe of the SF Bay Area
•Wuksachi Indian Tribe/Eshom Valley Band
•Tamien Nation
Two tribes requested consultation. Staff met with Muwekma Ohlone Tribe of the San Francisco Bay Area on January 23, 2025. A meeting was also scheduled with Tamien Nation on January 22, 2025, but they were unable to attend. On February 5, 2025 the Muwekma Ohlone Tribe of the San Francisco Bay area confirmed that with implementation of the City’s standard measures to protect resources, which include worker environmental awareness training, and a stop work in the event of an unanticipated discovery in order to evaluate and properly treat the resource if uncovered, the tribe considered consultation to be complete. Tamien Nation has not responded to multiple e-mails and phone calls to discuss the project.
ATTACHMENTS
Attachment A: Resolution Amending the Comprehensive Plan Transportation Element Attachment B: Resolution Approving the Street Closures and Setting forth Provisions of the Closures
Attachment C: Environmental Analysis
Attachment D: Ordinance Allowing the City Manager to Create Regulations for the Car-Free Streets, Setting Bicycle Speed Limits at 15 mph on California Ave., and Implementing the Pedestrian Only designation to Ramona St.
APPROVED BY:
Ed Shikada, City Manager