City Council
Staff Report
From: City Manager
Report Type: STUDY SESSION
Lead Department: Transportation
Meeting Date: June 2, 2025
Report #:2503-4341
TITLE
Bicycle and Pedestrian Transportation Plan (BPTP) Update: Draft Project Prioritization Framework and Prioritized Project Lists
RECOMMENDATION
Receive report and provide feedback on the Draft Project Prioritization Framework (Attachment A), the use of the framework’s Initial Evaluation and Supplemental Evaluation to prioritize projects for the BPTP Update, and the Prioritized Project Lists (Attachment B and C).
EXECUTIVE SUMMARY
The City of Palo Alto is currently updating its 2012 Bicycle and Pedestrian Transportation Plan (BPTP). The BPTP Update will introduce a revised citywide bicycle network, leverage existing planning foundations, address changes in context and needs since 2012, and integrate new ideas and innovations. A part of the development of the BPTP Update is to determine appropriate criteria and metrics to prioritize recommendations and network routes. This report presents the Prioritization Framework (Attachment A) that will be used to prioritize the 125 proposed projects for the BPTP Update, and presents two prioritized projects lists: the Initial Evaluation Project list (Attachment B) and the Initial and Supplemental Evaluation Project list (Attachment C). Attachment D is a ranked Initial and Supplemental Evaluation Project list.
Additionally, the report briefly describes the foundations for the development of the BPTP Update’s recommended bicycle network and bicycle facilities and provides an overview of the recommended Policies & Programs and Pedestrian District Guidelines. Staff is presenting this information to Council to confirm staff is moving in the right direction with the approach to prioritizing projects for the BPTP Update.
Staff recommends a framework to help the City set priorities, recognizing that resources are limited and the City needs a manageable set of projects to include in the BPTP Update. This framework is the result of City staff and project team work and was revised based on community, Committee, and Commission input received during this phase of engagement. The
recommended framework prioritizes projects in two steps: first, an Initial Evaluation, followed by a Supplemental Evaluation for only the top scoring projects; 42 out of 125. The Initial Evaluation includes two factors: Safety & Connectivity. The Safety factor criteria includes whether the project is on a High-Injury Corridor and if it is on the Safe Routes to School Program’s Suggested Walk & Roll maps. The Connectivity factor criteria includes Bicycle Level of Traffic Stress and whether a project provides access to transit. The Supplemental Evaluation includes three factors: 1) Project Cost & Funding; 2) Project Readiness; and, 3) Project Support.
Each are evaluated using a High, Medium, and Low scale for its performance.
Staff is asking the City Council to provide feedback on the criteria and confirm using the Initial and Supplemental Evaluations to prioritize projects for the BPTP Update. Additionally, staff is seeking feedback on whether any projects from the Initial Evaluation Prioritized Projects List (Attachment B) that did not score high should be reevaluated. Council feedback is also requested for projects to remove or add. Attachment C is the Prioritized Project List using both the Initial Prioritization and Supplemental Evaluation, and Attachment D is the same list, ranked. The projects from Attachment D are proposed to be incorporated into the BPTP Update’s near-term Action Plan for implementation, while the rest are proposed to be on a long-term projects list. However, while rankings are important, City staff will move forward on any project from the Supplemental Evaluation list as funding opportunities and resources become available once the Final Plan is adopted.
BACKGROUND
Project Kick-off, Existing Conditions Analysis, and Needs & Concerns The City’s existing 2012 BPTP is an important planning, policy, and implementation document that supports efforts to improve the safety and attractiveness of walking, biking, and rolling as a means of transportation and recreation. The intent of the BPTP Update is to gain robust community feedback; reevaluate implementation progress from previous plans to adjust recommendations for new policies, facilities, and programs; and to determine appropriate criteria and metrics to prioritize recommendations and network routes. The BPTP Update will introduce a revised bicycle network, leverage existing planning foundations, address changes in context and needs since 2012, and integrate new ideas and innovations. The BPTP Update Draft Plan is anticipated for fall 2025.
At the May 17, 2021 meeting, the City Council adopted a resolution supporting the City’s grant application for the State Transportation Development Act (TDA) Article 3 Funds for the BPTP Update project1, and on September 2021, the Metropolitan Transportation Commission (MTC) approved of the allocation of Transportation Development Act Article 3 (TDA3)2 funds to the 1 Palo Alto City Council Meeting, May 17, 2021. Item 6, Action Minutes:
https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=3426&compileOutputType=1 2 https://mtc.ca.gov/funding/regional-funding/tda-sta/bicycle-pedestrian-funds-tda-3 City of Palo Alto in the amount of $334,852 for the purposes of updating the Bicycle and Pedestrian Transportation Plan.
On June 19, 2023, the City Council approved a professional services contract with Kittelson & Associates, Inc. with subconsultant Mobycon, to prepare this BPTP Update.3 On January 22, 2024, the City Council received an Informational Report introducing the project effort, schedule, objectives, and the baseline conditions.4 On April 29, 2024, the City Council reviewed and discussed the vision statement, objectives, and provided feedback on the existing conditions technical analysis.5 The existing conditions technical analysis included information on the local Bicycle Level of Traffic Stress (LTS), safety and collisions, major barriers, e-bike and shared micromobility, and a bike parking inventory.6 Additionally, to understand community needs and concerns, the project team hosted a series of engagement activities in spring 2024, including a bicycle network development workshop, a community downtown walking tour, a community bike ride, pop-ups at neighborhood events, and a second series of committee and working group meetings. See the April 29, 2024 City Council Staff Report for details on the spring 2024 engagement activities.7 In early 2025, the project team launched phase 3, Project Recommendations, and initiated another series of public engagement activities to share the recommendations, including the proposed bicycle network and facilities, the Policy & Program recommendations, the Pedestrian District Guidelines, and the initial Prioritization Framework. This included meetings with the Pedestrian and Bicycle Advisory Committee (PABAC), the Planning and Transportation Commission (PTC), the Parks and Recreation Commission (PRC), a community transportation workshop, an online interactive map, tabling and street-level engagement, and several focus group meetings.
3 Palo Alto City Council Meeting, June 19, 2023. Consent Calendar: Approval of Professional Services Contract with Kittelson & Associates for a Not-to-Exceed Amount of $333,945 for the Bicycle and Pedestrian Transportation Plan Update. CEQA Status: Exempt under Public Resources Code Section 21080.20. https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=1172&compileOutputType=1 4 Palo Alto City Council Meeting, January 22, 2024. Informational Report: Bicycle and Pedestrian Transportation Plan (BPTP) Update: an active transportation plan--Introduction & Overview, Community Engagement, Context & Baseline Conditions, and Next Steps. https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=13335&compileOutputType=1 5 Palo Alto City Council Meeting, April 29, 2024. Study Session: Bicycle and Pedestrian Transportation Plan (BPTP) Update: Review and discuss the vision statement, objectives, performance measures, and share and obtain feedback on the existing conditions technical analysis. https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=15058&compileOutputType=1 6 City of Palo Alto, BPTP Update Existing Conditions Technical Analysis: https://www.cityofpaloalto.org/Departments/Transportation/Bicycling- Walking/bikepedplan/BPTP-Update-Existing-Conditions-Analysis 7 Palo Alto City Council Special Meeting April 29, 2024. Study Session: Bicycle and Pedestrian Transportation Plan (BPTP) Update: Review and discuss the vision statement, objectives, performance measures, and share and obtain feedback on the existing conditions technical analysis. https://cityofpaloalto.primegov.com/api/compilemeetingattachmenthistory/historyattachment/?historyId=fcfab491-1dae-4afd-a309- be952790121e
Vision Statement & Objectives
The project team revised the project Vision and Objectives based on public, committee, working group, and City Council feedback, including a City Council meeting on April 29, 2024.
While there was positive sentiment around the content of the initial draft vision statement, many people expressed an interest in shortening the statement, incorporating an educational element, and reducing redundancy while emphasizing the intent of the plan to create an “all ages and abilities” network.
The updated vision statement reads: We envision a city where sustainable, safe, efficient, equitable, and enjoyable transportation thrives. Together, we will create a comfortable and connected street and trail network that supports walking, biking, and rolling for people of all ages and abilities. We continue to be a leader in Safe Routes to School and invest more in active transportation infrastructure, education, and encouragement programs.
The project Objectives outlined include:
•Safe and Inclusive: Prioritizing safety for all transportation network users regardless of age and ability and ensuring equitable access to pedestrian and bicycle infrastructure across the community while reducing fatal and severe injury crashes. •Connected and Accessible: Featuring a convenient and interconnected network of sidewalks, bike lanes, and trails that provide efficient travel options and easy access to transit and important destinations, encouraging a shift away from driving and improving environmental health through lower vehicle miles traveled and greenhouse gas emissions.
•Community-Led and Cooperative: Fostering community engagement and participation in promoting active transportation, supported by education, programming, and infrastructure investments, in a way that cultivates learning for all network users of all ages.
•Comfortable and Enjoyable: Enhancing the comfort and enjoyment of walking and cycling through amenities such as shade, greenery, and well-designed streetscapes. •Integrated and Collaborative: Collaborating with neighboring cities to create a seamless, integrated, and efficient regional network of pedestrian and bicycle infrastructure.
The following section presents a brief discussion on the bicycle network development approach and bicycle facility selection.
Bicycle Network Development & Recommended Network
The citywide Bicycle Network was revised using feedback from the community and working groups and by aligning with existing and planned facilities outlined in other plans. The Draft Network Corridor Criteria and Development Approach Memo8 details the foundations for the development of the updated bicycle network, including:
•2012 Bicycle and Pedestrian Transportation Plan
•2024 Existing Bicycle Facilities Map
•Palo Alto Bicycle Map (2021)
•High Injury Network for Bicyclists
•Bicycle Boulevard Planning (2016)
•Bicycle Network Development Workshops (2024)
•MTC Regional Active Transportation Plan (2023)
•VTA Countywide Bicycle Plan (2018)
•VTA Bicycle Superhighway Implementation Plan (2021)
•Safe Routes to School Plans
•Santa Clara County Active Transportation Plan (2025)
•Palo Alto Housing Element (2024)
The recommended changes to the network also considered the following inputs:
•Community and Agency Feedback
•2024 BPTP Level of Traffic Stress Analysis
•2024 BPTP Origins and Destinations Bicycle Activity Analysis •2024 BPTP Major Barriers Analysis
•Dutch Network Planning Principles
•Bike/Ped Video Counts
To guide network development, the consultant team applied the following development approach and Network Corridor Criteria.
Primary Network Development Criteria
Network Development Criteria are primary inputs into the network development process. The network is built on the 2012 BPTP and refined with recent planning efforts conducted since then in Palo Alto and the region.
8 Draft Network Corridor Criteria and Development Approach Memo, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/6_draft-network- corridor-criteria-dev-approach-memo.pdf
Table 1: Proposed Primary Network Development Criteria
Attribute Source Criteria Rationale
2012 Plan
Network
Palo Alto Bicycle +
Pedestrian
Transportation Plan
Map 6-1
Route included in the
2012 plan network
Foundation of the plan update
Existing Bicycle
Facility
2024 Existing
Bicycle Facilities
map
Route exists today as
a formal bicycle
facility
Existing routes have value by
virtue of their presence and
current use
Palo Alto Bicycle
Map
Palo Alto Bicycle
Network Routes
Map
Route included in the
City published user
map
User map published by the City
of Palo Alto, identifying bike
friendly routes today
High Injury
Network for
Bicyclists
2024 High Injury
Network for
Bicyclists
Route identified as a
high injury network
street in the 2024
BPTP Collision and
Safety Analysis
Route is a potential safety
hazard today, may be enhanced
to become an important or
improved network link
2016 Bike
Boulevard
Improvements
Project
City of Palo Alto
Bike Boulevards
Improvements
Project
Route included in
Bike Boulevard
Improvement Project
Detailed planning of future
bicycle boulevard
implementation offers a more
recent vetting of viable routes
Network
Development
Workshop
2024 Network
Development
Workshop
Outcomes
Route identified on
the 2024 Network
Development
Workshops
Network development
workshops identified key
destinations and potential direct
routes between them
Regional Active
Transportation
Plans
MTC Regional
Active
Transportation
Plan; VTA Bicycle
Superhighway
Implementation
Plan
Route identified as a
part of the regional
Active Transportation
network or Bicycle
Superhighway Plan
Regionally significant connection
between communities
Safe Routes to
School (SRTS)
SRTS system route
maps
Route identified on
the SRTS route
system
Important connection to schools
as a priority destination
This first round of network development identified: (1) a core network where these plans align and agree; and (2) street segments and routes with less planning consensus.
Secondary Criteria for Network Refinement
Where multiple routes options exist (less planning consensus), secondary criteria were used for route selection and refinement. The following advantages were used to make those selections:
•Direct routing to community destinations.
•Favorable existing conditions based on the traffic stress conditions identified in the 2024 LTS Analysis.
•Direct alignment with routes in high demand with higher volumes of people moving. •Routes that overcome barriers identified in the 2024 BPTP Major Barriers Analysis.
The result is an updated Proposed Bicycle Network Update map9 that shows a low-stress vision for the Palo Alto network, inclusive of bikeways and bicycle-friendly zones to frame policy and influence trade-off decision-making.
Updated Bicycle Facilities
The BPTP Update proposes a simplified array of facility types designed to improve safety and embrace innovation. The facilities were selected to meet the goals and objectives of the BPTP Update. The proposed bicycle facilities fall into three categories: mixed traffic, visually separated, and physically separated. These three categories reflect the types of facilities and how they are designed.
Image 1: Bicycle facilities for the updated bikeway network The BPTP Update proposes six types of bicycle facilities:
•Class I—Shared Use Path
•Class IIa—Bike Lane
•Class IIb—Buffered Bike Lane
•Class IIIa—Advisory Bike Lane
•Class IIIb—Bicycle Boulevard
•Class IV—Protected Bike Lane
The Draft Bicycle Network and Facilities Memo10 provides a detailed overview of each facility type and the criteria for using it. The facility selection memo also details changes from the 2012 BPTP bicycle facilities—changes that are needed to reflect significant advancements in bicycle planning and design. These include the removal of and changes to bicycle facilities, including Class III Bike Routes, Sharrows, and Enhanced Bikeway option of floating bicycle lanes, also known as part-time bicycle lanes or restricted hours bicycle lanes designed to be a parking lane 9 Proposed Bicycle Network map, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/bnu-map_02- 2025.pdf
10 Draft Bicycle Network and Facilities Memo, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/7r_bic-fac- sele_f.pdf
Visually Separated
for part of the day and a vehicle travel lane for part of the day. Additionally, the bicycle facility selection approach is a significant departure from 2012 because it embraces arterials with separated facilities to create connected and direct routes for people walking and biking and make these streets safer for all road users.
People should be able to get to every destination in the city on foot or by bike with minimal deviation from a direct path. Disconnections at intersections or barriers such as arterials, highways, rivers, or rail lines should not prevent people from reaching their destinations by bike or on foot. We know that people walking and biking have a lower tolerance for diversion than drivers, especially in uncomfortable weather, and when facilities are not provided, people will often continue to use the direct route, regardless of whether it is safe or comfortable. Creating a connected bike network involves designing and implementing bikeways on arterials that prioritize safety and connectivity for riders of all ages and abilities. This bicycle facility selection approach is intended to recommend facilities that increase comfort across the board, fill gaps, and complete missing network links in response to known or predicted demand for walking and biking. This approach aligns with Palo Alto’s Complete Streets and Safe Streets For All Action Plan policy framework and supports the City’s efforts to provide safe and sustainable transportation options. The Changes since 2012 Map11, shows the changes to the network lines from the 2012 BPTP.
Bicycle Facility Selection
A simplified approach to select the different types of bicycle facilities was chosen for the updated bikeway network. The approach is informed by the Dutch CROW Design Manual for Bicycle Traffic,12 the Federal Highway Administration (FHWA) Bikeway Selection Guide,13 and the NACTO All Ages & Abilities Bikeways guidance.14 The bicycle facility selection first looked at road classification (local, collector, and arterial). Then traffic volumes and posted speeds were examined. The consultant team had limited access to traffic data and therefore relied on network criteria that were used to create the bikeway network, community input, and on-the- ground knowledge from staff and the in-person working session in April 2024. This approach was applied to each segment of the bikeway network, and the facilities were selected based on the approach but also considered in the greater network and whether they met the BPTP Update goals and objectives. The detailed facility selection approach is presented in the Draft Bicycle Network and Facilities Memo.15
11 Bicycle Network Change Since 2012 Map; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/ntwrk-chge-s- 2012-map_02-2025.pdf
12 CROW. Design Manual for Bicycle Traffic. CROW, 2023. https://www.crow.nl/publicaties/design-manual-for-bicycle-traffic. 13 Federal Highway Administration. Pedestrian and Bicycle Safety Guide and Countermeasure Selection System: FHWA-SA-18-077. U.S.
Department of Transportation, 2018. https://safety.fhwa.dot.gov/ped_bike/tools_solve/docs/fhwasa18077.pdf. 14 National Association of City Transportation Officials (NACTO). "Choosing the Age and Ability of Bicycle Facility." NACTO, n.d., https://nacto.org/publication/urban-bikeway-design-guide/designing-ages-abilities-new/choosing-ages-abilities-bicycle-facility/. 15 Draft Bicycle Network and Facilities Memo, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/7r_bic-fac- sele_f.pdf
Updated Bicycle Network with Facilities Identified
The Proposed Bicycle Facility Map16 is the map of the recommended bicycle facilities for the BPTP Update applied to the proposed bikeway network17, following the Bicycle Facility Selection process described above. The map displays existing facility types and proposes future facilities required to create more comfortable bicycling conditions. This map helps illustrate the level of change proposed in the plan.
Existing facilities are shown as solid lines, differentiated by facility type. Streets proposed for new, or upgrade facilities are displayed with dotted lines. Where these proposals upgrade existing facilities, the lines are overlapping.
Pedestrian District Guidelines
The Pedestrian District Guidelines18 provide a toolbox of treatments to enhance pedestrian safety and the overall walking experience in the city. These guidelines build on previous plans, incorporating new ideas and addressing changes since 2012. The toolbox includes infrastructure improvements like raised crossings and curb extensions, alongside aesthetic enhancements such as benches and street art, promoting safety, accessibility, and comfort. Priority pedestrian districts and neighborhood commercial centers were identified citywide as informed by the City’s 2023 Economic Development Strategic Plan, with area maps detailing the recommended application of these treatments to create inviting and enjoyable walking environments. These include University Avenue District, California Avenue District, Midtown District, and the Embarcadero and El Camino Real neighborhood commercial centers.
Programs, Policies, and Best Practices19
The programs and policies from the 2012 BPTP were revised to align with the updated Vision and Objectives. These updates also incorporate new programs and policies based on state-of- the-art advancements from the Bicycle Friendly Communities benchmarking and research on best practices to complement the BPTP Update’s projects. Overall, 60 programs, polices, and best practices have been drafted, categorized by the BPTP Update’s five objectives. 16 Proposed Bicycle Facility Map; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/bicycle-facility- map_03-2025.pdf
17 Proposed Bicycle Network map, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/bnu-map_02- 2025.pdf
18 Pedestrian District Guidelines; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project- recs/3r_20250205_pabptp_final-pdg.pdf
19 Program and Policy Recommendations, Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/policy-and- programs_02-2025.pdf
Performance Measures20
Recommended performance measures were developed, shaped around the BPTP Update’s five Objectives and informed by a review of the 2012 BPTP and Bicycle Friendly Communities benchmarking. For each measure, guidance for tracking performance included a detailed description, reporting period, data needs and sources, methodology, and additional information to assist with applying the measure in the coming years. Eight performance measures were recommended by the project team, with another eight identified as potential performance measures pending City resources.
Non-Prioritized Bicycle Project List21
A comprehensive list and maps22 of the non-prioritized projects proposed for the BPTP Update were developed through input from the City, in-person working sessions held in April 2024, and meetings with the consultant team. The non-prioritized list includes 125 projects and includes details such as the project number, project name, location (including the extent start and end), project length, existing facilities, proposed bicycle facilities, bikeway class, and a short project description. The project description provides a brief overview of the project as well as indicates different elements that should be given attention, such as intersections or projects that should be implemented alongside. Some larger projects have been proposed as individual segments to give the City the ability to install projects in a phased approach. Finally, notes about implementation are also provided including parking reconfiguration, lane reconfiguration, traffic calming, traffic filtering, wayfinding, civil construction, and whether the project is a quick-build candidate. In addition to corridor projects, the project list includes key crossing projects, special projects, and proposals for future studies.
ANALYSIS
Project Prioritization
The final phase in structuring the network is a two-step process to convert the recommended bike network into scored, individual projects. The goal of this effort is to create a prioritized list of implementable projects for the BPTP Update document. The project team developed a prioritization framework that includes an initial prioritization process using quantitative criteria based on safety and connectivity, and a supplemental evaluation considering project readiness, cost and funding opportunities, and project support to further differentiate the top ranked projects and develop an actionable work plan for near-term implementation. 20 Recommended Performance Measures; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/5_recommended- performance-measures.pdf
21 Non-prioritized Project List; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/draft-projects- lists_02-2025.pdf
22 Projects by Facility Types maps; Bicycle and Pedestrian Transportation Plan Update project webpage; https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/bptp-update-2024/phase-3-project-recs/p-projects-by-fac- type-maps_02-2025.pdf
The initial prioritization utilizes quantitative methods to assess the level of project alignment with proposed factors and criteria intended to align with the BPTP Update objectives and informed by NCHRP Report 803: ActiveTrans Priority Tool23. Two factors (safety and connectivity) were identified for this initial project prioritization, each with evaluation criteria and weights to be used in the process. The safety factor is weighed 70% and its criteria consider collision history and school routes; the connectivity factor is weighed 30%, and its criteria consider the current level of stress for bicyclists.
The initial prioritization was used to develop scores for each segment location in Palo Alto.
Projects were then assigned numerical scores based on their respective locations on the scored segments. Through this quantitative approach, the City can consistently compare the level to which different projects align with the BPTP Update goals and do so in a repeatable way.
However, these initial scores alone do not dictate the priority of a project.
After the initial prioritization, the project team further assessed projects scoring 70 or more points in the initial evaluation. The lower scoring projects continue to have merit but may not be candidates for near-term implementation. However, while rankings are important, City staff will move forward on any project from the Supplemental Evaluation list as funding opportunities and resources become available.
The supplemental evaluation is intended to further differentiate projects on factors of project cost and funding opportunities, project readiness, and project support. These qualitative methods provide a more nuanced and in-depth understanding of the project's context, challenges, and opportunities than quantitative methods used in the initial prioritization. By incorporating these qualitative insights, the team can make more informed decisions about the feasibility and funding strategies for each project. These assessments, which are focused on feasibility and implementation, will be used to create a tiered list of projects for the BPTP Update document for near-term and long-term implementation. The results of the initial prioritization and supplemental evaluation are presented as working lists in Attachments B and C. Attachment D is a ranked Initial and Supplemental Evaluation Project list. The working lists are subject to change based on City Council feedback. Table 2 below provides a summary of the proposed Prioritization Framework’s Initial and Supplemental evaluations. 23 National Academies of Sciences, Engineering, and Medicine. 2015. Pedestrian and Bicycle Transportation Along Existing Roads—ActiveTrans Priority Tool Guidebook. Washington, DC: The National Academies Press. https://doi.org/10.17226/22163 .
Table 2. Summary of Prioritization Framework
Prioritization Factor Criteria
High-Injury CorridorsSafety
Safe Route to School
Bicycle Level of Traffic Stress
Initial Evaluation
Connectivity
Access to Transit
Project Cost & Funding
Project Readiness
Supplemental Evaluation*
Project Support
High, Medium, Low
*Only the projects that scored 70-100 in the Initial Evaluation will advance to the Supplemental Evaluation Prioritized Project Lists
The initial prioritization and supplemental evaluation resulted in two priority project lists.
Attachment B is the list of 125 priority projects from the initial evaluation, and Attachment C is the list of 42 priority projects from the initial and supplemental evaluation. Attachment D is a ranked Initial and Supplemental Evaluation Project list. The projects from Attachment D are proposed to be incorporated into the BPTP Update’s near-term Action Plan that identifies the top priority projects for implementation, while the rest are proposed for a long-term projects list. However, while rankings are important, City staff will move forward on any project from the Supplemental Evaluation list as funding opportunities and resources become available once the Final Plan is adopted.
FISCAL/RESOURCE IMPACT
The BPTP Update project cost is $333,945, including a 10% contingency. The City is eligible to cover project expenditures under MTC’s TDA Article 3 program and has requested and received $334,852 in funding for the study. City staff anticipates that all eligible costs incurred will be reimbursed through the TDA Article 3 payment reimbursement process and have been billing MTC and receiving reimbursements on a quarterly basis. This funding is budgeted in the FY 2025 Adopted Capital Budget in the Bicycle and Pedestrian Transportation Plan Implementation Project (PL-04010). Future year funding to implement projects in the updated BPTP will be subject to Council appropriation as part of the annual budget process.
STAKEHOLDER ENGAGEMENT
Phase 3 Community Engagement Activities
Phase 3 (Present recommended Network, Facilities, Programs & Policies) engagement activities included a third series of committee and working group meetings, focus groups, online & street-level engagement, and a community workshop. Activities were promoted on the City’s website, social media channels, transportation mailing list, Uplift Local newsletter, tabling events, and at the Committee and Working Group meetings. Themes heard during these outreach efforts included the importance of speed and volume management on bicycle boulevards, desire for improved wayfinding and more bike parking, interest in integrating green stormwater infrastructure and public art into transportation projects. There was excitement and skepticism about the potential of protected bike lanes to make “big streets” low stress connections for people walking and biking. Additional information about what we heard at the Community Workshop is summarized below. Attachment E provides a summary of the phase 3 engagement activities and feedback received.
•Project website and interactive map. The project website can be accessed at:
https://www.paloalto.gov/bikepedplan. The website will continue to be updated with relevant material and information. An interactive map was hosted on the website where the community provided over 400 comments on the proposed bicycle network and projects from February 3, 2025 through April 30, 2025.
•Online comment box. An online comment box was available for community members to provide comments on the recommendations through a general comment form. There were over 100 different submissions through the online form. •Committee and Working Group Meetings. The project team has engaged with the following committees and working groups during Phase 3:
oPedestrian and Bicycle Advisory Committee (PABAC) (February 4, 2025) oParks and Recreation Commission (March 25, 2025)
oPlanning and Transportation Commission (February 26, 2025) oCity/School TSRs focus group: February 2025
oPABAC focus groups: February 2025
oInternal Staff Working Group (March 2025)
oCity Council (June 2, 2025)
•Community Workshop. The project team hosted a Transportation Workshop with the South Palo Alto Bike/Ped Connectivity project on April 2, 2025. The workshop was held at Palo Alto’s Mitchell Park Community Center (El Palo Alto Room) from 6-7:30 p.m.
Nearly 50 community members were in attendance. Comments emphasized general support for the plan and interest in implementation of projects that would improve safety and connectivity for people walking and biking. Support was voiced for several specific projects, including protected bike lanes on Middlefield Road and Homer Avenue, shared use paths along Matadero Creek and Barron Creek, and upgrades to the shared use path on Embarcadero from El Camino Real to the Palo Alto High School midblock crossing. Other suggestions included signal timing enhancements for pedestrians, a general desire for additional traffic calming along bike boulevards and repaving streets on the bike network, and requests for more bike parking, bike corrals, street art, and murals.
•Street Level Engagement: The project team participated in street level engagement activities during Phase 3, including tabling at local Farmer’s Markets, Third Thursday Music Event on Cal Ave, and at the City’s Around the World and Earth Day community events.
Next Steps
The project team will refine the Prioritization Framework and project recommendations, including the priority project lists, based on the City Council’s feedback and develop the Draft BPTP Update Plan. The Draft Plan is anticipated for public review in fall 2025 when it will be presented to PABAC and the City Council.
ENVIRONMENTAL REVIEW
California Senate Bill 922 (2022), codified as Public Resources Code section 21080.20, exempts active transportation plans, such as bicycle transportation plans like the BPTP Update, from environmental review under the California Environmental Quality Act (CEQA).
ATTACHMENTS
Attachment A: Revised Draft Prioritization Framework Memo (Draft) Attachment B: Prioritized Project List using Initial Evaluation only (Working List) Attachment C: Prioritized Project List using Initial and Supplemental Evaluation (Working List) Attachment D: Ranked Prioritized Project List using Initial and Supplemental Evaluation (Working List)
Attachment E: Summary of Phase 3 community engagement (Draft) APPROVED BY:
Ripon Bhatia, Interim Chief Transportation Official