City Council
Staff Report
From: City Manager
Report Type: STUDY SESSION
Lead Department: Transportation
Meeting Date: December 1, 2025
Report #:2507-4967
TITLE
Bicycle and Pedestrian Transportation Plan (BPTP) Update: Draft Plan and Near-Term Projects.
CEQA Status: Exempt Pursuant to Public Resources Code Section 21080.20.
RECOMMENDATION
Bicycle and Pedestrian Transportation Plan (BPTP) Update: Receive Report and Provide feedback on the Draft Plan and Near-Term Projects for which the Planning and Transportation Commission unanimously recommended approval by the City Council.
EXECUTIVE SUMMARY
The City of Palo Alto is currently updating its 2012 Bicycle and Pedestrian Transportation Plan (BPTP) to establish an updated 10-year strategy for bicycle and pedestrian network investments, policies, and programs, building on the 2012’s projects and programs that set the foundation from which to build this updated Plan. This report presents the Draft 2026 Bicycle and Pedestrian Transportation Plan Update (Attachment A), Near-Term Projects Map and List (Attachment B and Attachment C), and Appendices (Attachment D). The Draft 2026 BPTP Update introduces a revised citywide bicycle network (Complete Vision and Low-Stress), introduces Pedestrian Districts, leverages existing planning foundations, and addresses changes in context and needs since 2012.
The Draft 2026 BPTP Update is the culmination of multiple rounds of community engagement starting in late 2023, including in-person events, online surveys, and meetings with Committees, Commissions and the City Council. Staff released the Draft Plan on October 3, 2025, and the public comment period extended through November 14, 2025. Staff received feedback from the public, the Pedestrian and Bicycle Advisory Committee (PABAC), and at their November 12, 2025 meeting, the Planning and Transportation Commission (PTC) voted unanimously to recommend that Council adopt the 2026 BPTP Update. Staff recommends the City Council provide feedback on the Draft Plan and Near-Term Projects; based on stakeholder feedback, staff has included some recommended changes to the draft BPTP update in the Stakeholder Engagement section of this staff report. A Final Plan for City Council adoption is expected in early 2026.
BACKGROUND
On July 9, 2012, the City Council adopted the City’s existing Bicycle and Pedestrian Transportation Plan (BPTP). This plan has supported efforts to improve the safety and attractiveness of walking, biking, and rolling for both transportation and recreation. The 2026 BPTP Update aims to incorporate robust community feedback; reevaluate implementation progress from previous plans; determine appropriate prioritization criteria and metrics; and update recommendations for new policies, facilities, and programs.
On May 17, 2021, City Council adopted a resolution supporting the City’s grant application for the State Transportation Development Act Article 3 (TDA3) Funds for the BPTP Update,1 and City Council approved a professional services contract with Kittelson & Associates for this purpose on June 19, 2023.2
On January 22, 2024, the City Council received an Informational Report on plan objectives and baseline conditions;3 and provided feedback on the vision statement, objectives, and existing conditions on April 29, 2024.4 The existing conditions analysis included information on Bicycle Level of Traffic Stress (LTS), collisions, major barriers, e-bikes and shared micromobility, and bicycle parking.5 To understand community concerns, the project team hosted a series of engagement activities in spring 2024 as outlined under Stakeholder Engagement. The updated vision statement is:
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.
In early 2025, the project team initiated another series of public engagement on draft recommendations, including the proposed bicycle network and facilities, Policy & Program recommendations, Pedestrian District Guidelines, and an initial Prioritization Framework. On June 2, 2025, the City Council also considered the Revised Prioritization Framework and provided project recommendations and directed staff to:
Focus on low-stress residential streets and low-cost, high-impact improvements by prioritizing bike boulevards in the recommended bicycle network; 1 Palo Alto City Council Meeting, May 17, 2021. Item 6, Action Minutes:
https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=3426&compileOutputType=1 2 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 3 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 4 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 5 City of Palo Alto, BPTP Update Existing Conditions Technical Analysis: https://www.cityofpaloalto.org/Departments/Transportation/Bicycling- Walking/bikepedplan/BPTP-Update-Existing-Conditions-Analysis Avoid major corridor wide-investments along arterials except safety enhancement where there is no parallel alternative such as San Antonio Road; and Consider options for both the car-free portion of California Avenue and adjacent Cambridge Avenue.11
Relationship to Other Plans
Other efforts that relate to the City’s 2026 BPTP Update, include the 2025 Safety Action Plan,12 the Southern Palo Alto Bike/Ped Connectivity Project,13 and the San Antonio Road Area Plan.14 The Safety Action Plan is a policy document for all modes of travel, using a safety lens to pivot existing plans and proposed projects, in order to institutionalize a new safety framework and enhance safety at hot spots along the High Injury Network. By contrast, the City’s 2026 BPTP focuses on bicycle and pedestrian needs, builds off the Safety Action Plan policy framework, and identifies new projects to address connectivity and the attractiveness of the active transportation network. As shown in Figure 1, the Safety Action Plan sets the policy foundation for transportation planning while the BPTP Update designates network and facilities for implementation. Area Plans such as San Antonio Road Area Plan provide an integrated transportation and land use framework that ties to the BPTP within a geographic area. Specific projects and feasibility studies, like the Churchill Avenue Bikeway project and South Palo Alto Pedestrian/Bicycle Connectivity project advance specific implementation items.
Figure 1: Relationship between BPTP Update and Other Efforts
ANALYSIS
After incorporating public, committee, and Council input on the draft recommendations, City staff released the Draft 2026 Bicycle and Pedestrian Transportation Plan Update on October 3, 11 Palo Alto City Council Meeting, June 2, 2025. Study Session: Bicycle and Pedestrian Transportation Plan (BPTP) Update: Draft Project Prioritization Framework and Prioritized Project Lists.
https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=16124&compileOutputType=1 12 City of Palo Alto Safety Action Plan, 2025. https://www.paloalto.gov/files/assets/public/v/1/transportation/projects/ss4a-safety-action-plan/palo- alto-safety-action-plan_final_june_2025.pdf
13 City of Palo Alto, South Palo Alto Bike/Ped Connectivity Project Webpage. https://www.paloalto.gov/Departments/Transportation/Transportation- Projects/South-Palo-Alto-BikePed-Connectivity
14 City of Palo Alto, San Antonio Road Area Plan Project Webpage. https://www.paloalto.gov/Departments/Planning-Development-Services/Housing- Policies-Projects/San-Antonio-Road-Area-Plan
Specific Projects (e.g.
South Palo Alto
Bike/Ped Connectivity)
2025. The public review period was open through November 14, 2025. The document includes the following sections:
1. Executive Summary
2. Introduction
3. Existing Facilities
4. Recommendations
a. Bicycle Network (including Complete Vision Bicycle Network and Low-Stress Bicycle Network)
b. Pedestrian Districts
c. Near-Term Projects
5. Implementation & Funding
6. Conclusion
Existing Facilities
In terms of existing bicycle facilities, in 2012, the City had about 60 miles (59.3 miles) of bikeways with various types as shown in Figure 2. Bicycle facilities types include:
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—Separated Bikeway
Since 2012, approximately 14 miles have been added, bringing the total to 73.5 miles of bikeway facilities in 2025. Notably, there were no Class II buffered or Class IV Separated Bikeway in 2012; today, the City has 3.3 miles of buffered bike lanes and 4.3 miles of Separated Bikeways. Table 1 compares the bicycle network mileage in 2012 and 2025.
Figure 2: Bicycle Facilities in the Updated Bikeway Network Table 1: Existing Bicycle Network, 2012 and 2025 (miles) Visually Separated
In terms of existing pedestrian facilities and assets, sidewalks are generally provided along arterial and residential streets throughout Palo Alto, providing walking connectivity to destinations such as schools, parks, retail, and transit. However, there are some gaps in the sidewalk network, including around key walking destinations such as rail and bus stops. For example, the presence of sidewalk gaps along Alma Street (near the Palo Alto Transit Station) and San Antonio Road (near San Antonio Transit Station) affect the directness and convenience of walking to and from high quality transit service. In addition, some neighborhoods such as Barron Park and near San Antonio Transit Station, lack complete sidewalks along their residential streets.
2026 BPTP Recommendations
The 2026 BPTP recommendations aim to create a safe, comfortable bicycle and pedestrian network that can be enjoyed by people of all ages and abilities.19 Bicycle Network
In relation to bicycle transportation, the recommended network is structured around two tiers, the Complete Vision Bicycle Network and the Low-Stress Bicycle Network:
The Complete Bicycle Network represents the long-term vision for a fully connected, all- ages-and-abilities bikeway system reflecting the full network once it is fully realized. The network encompasses existing bicycle facilities, near term projects and some lower- priority projects that may be reevaluated as opportunities arise. The Low-Stress Bicycle Network is the foundation for citywide bicycle connectivity, focused on delivering safe, comfortable, and familiar routes in the relatively near term.
It builds upon the City’s existing network of low-stress streets, primarily composed of shared-use paths and neighborhood-based Bicycle Boulevards, to expand access with minimal disruption and broad community support. In the near term, the focus will be on developing the low-stress bicycle network, along calm, residential routes that are 19 All Ages and Abilities facilities are designed to serve everyone—not just confident adult riders who have historically been the primary focus of street design. An All Ages and Abilities network provides safe and comfortable travel for children, seniors, women, people with disabilities, people of color, low- income users, bike share riders, and individuals carrying goods.
preferred by many community members, rather than relying on separated bikeways on busy arterial streets. Bicycle Boulevards were identified as the most comfortable and familiar type of bikeway in Palo Alto, offering a practical path forward with fewer trade- offs in terms of cost, complexity, and impacts to vehicle traffic or parking.
To achieve the near-term vision, the 2026 BPTP focuses staff resources to make incremental progress on the highest priority locations shown on the Near-Term Improvement Projects map (Attachment B) and tables (Attachment C). The Near-Term Projects list is not a ranked list and represents a total of 12 miles of enhancements on the network. Cost estimates outlined in the Draft Plan rely on a small number of inputs and use various construction costs to estimate dollar ($) amounts for items like mobilization, traffic control, engineering & construction management, yet omit other potentially significant cost drivers, such as Right-of-Way acquisition, grading/retaining wall construction, utility relocation, landscaping, and striping removal. More detailed and realistic cost estimates for individual projects will be developed as individual projects are more clearly defined. Some funding is available in the Five-Year Capital Improvement Program; however, additional funding would be necessary to implement the Plan in full as drafted.
Pedestrian Districts
In relation to pedestrian districts, Pedestrian District Guidelines 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. Additionally, as a response to public feedback, the San Antonio Road Area is also designated as a Pedestrian District, recognizing the improved transit access and anticipating the changes in active transportation needs of the area in the future.
In addition to these Pedestrian District Guidelines, 23 intersection and crossing projects are included in the near-term enhancements. These projects would incorporate both pedestrian and bicycle safety features.
The above recommendations in the Draft Plan reflect the following feedback from the community and City Council (on June 2, 2025):
Focus on high-comfort, low-stress facilities, rather than big streets. Based on this input, bike boulevards are the core component of the Low-Stress Bicycle Network including actions highlighted in a new near-term projects list and map. Prioritize improvements on tree-lined, high-comfort Cowper Street Bike Boulevard, rather than corridor-wide bike facilities along Middlefield Road. As an exception to the above, advance bicycle safety enhancements on arterials lacking parallel routes, such as San Antonio Road, which should also serve as a Pedestrian District.
Designate the car-free portion of California Avenue as a community street, and provide adequate bicycle access on both Cambridge Avenue and California Avenue. Advance University Avenue as a slow-speed street (Class IIIc), rather than a bike boulevard (Class IIIb).
Highlight the relationship between the BPTP Update and the South Palo Alto Pedestrian/Bicycle Connectivity Project.
Include stop sign orientation in the Bike Boulevard description (stop signs should be oriented to favor bicycle travel).
Prioritize Homer Avenue separated bikeway; and advance a Feasibility Study for a crossing of E. Meadow Drive on the Bryant Street bike boulevard.
Programs, Policies, and Best Practices
Programs and policies from the 2012 BPTP were revised to align with the updated Vision and Objectives and incorporate best practices from the Bicycle Friendly Communities benchmarks.
Overall, 60 programs, polices, and best practices have been drafted under the BPTP Update’s five objectives: Safe and Inclusive; Connected and Accessible; Comfortable and Enjoyable; Community-led and Cooperative; Integrated and Collaborative.
Next Steps, Implementation and Funding
Following City Council review of the Draft Plan and Near-Term Projects on December 1, 2025, City staff will prepare a Final Plan for presentation to City Council in early 2026.
Pending adoption of Final Plan by the City Council, staff will then advance specific projects through the City’s Capital Improvement Program (CIP) and budget process as well as potential development proposals, if applicable. Projects will require feasibility and concept planning, community engagement, and engineering design before they can be constructed. Staff will also work to identify and apply for grant funding to support and supplement project implementation through these project phases. Staff will also consider opportunities for quick build and/or interim improvements for long-term projects.
FISCAL/RESOURCE IMPACT
Funding to develop the 2026 BPTP Update was included in the Capital Budget as part of the Bicycle and Pedestrian Transportation Plan Implementation Project (PL-04010). Consistent with City Council Direction, Plan development was funded under a reimbursable Transportation Development Act Article 3 funding grant in the amount of $334,852.
Additional funding of $500,000 per year for Fiscal Years 2027 through 2030 is included in the Capital Budget (PL-04010) to implement the initial projects identified in the 2026 BPTP Update.
Funding for additional projects is subject to availability of funding and Council appropriation as part of the annual budget process.
STAKEHOLDER ENGAGEMENT
In addition to Committee, Commission, and City Council meetings, the Draft 2026 BPTP Update was guided by an extensive community engagement listed below. Engagement opportunities included a combination of in-person events and digital outreach. The City also promoted engagement opportunities via the City’s website, social media channels, “Transportation Connect” and “Uplift Local” newsletters, tabling and community events.
Phase 1, Engagement on Visioning
Phase 1 engagement focused on establishing a shared vision through activities that included an interactive map, public survey, seven committee and working group meetings, an in-person pop-up event at Bike Palo Alto, and a virtual community workshop. Key themes included:
Safety as the top priority, particularly for students traveling to and from school; Strong demand for separated or wider bike lanes and safer street crossings; Need for a seamless network that crosses major barriers like highways and railroads; Direct connections to schools, transit hubs, and key community destinations; Integration of e-bikes and other micromobility options; Emphasis on high-quality design, comfort, aesthetics, wayfinding and shade; and, Education, outreach, and ongoing community input as essential.
Phase 2, Existing Conditions, Needs & Concerns: Overview & Key Themes The second phase of engagement included committee and working group meetings and a weeklong series of events including a bicycle network development workshop, community walking tour, and community cycle tour. Key themes from Phase 2 included:
Strengthen the existing network by addressing critical gaps; Prioritize improvements along key corridors, including San Antonio Road, Alma Street, Embarcadero Road, Middlefield Road, and El Camino Real; Enhance sidewalk continuity, wayfinding, and placemaking in pedestrian-oriented areas such as University Avenue and California Avenue; and,
Improve transitions between different types of bicycle facilities to create a smoother, more consistent experience.
Phase 3, Recommended Project and Programs: Overview & Key Themes The third phase sought feedback on draft project and program recommendations through three focus group meetings, three committee meetings, three commission meetings, a public workshop, tabling and public events, online interactive map feedback and electronic feedback submissions. Key themes from phase 3 include:
Mixed reactions to “Big Streets” projects that provide direct connections, but may not have the highest overall return on investment;
Call for a prioritization framework that includes quantitative and qualitative factors; Desire for more pedestrian-focused recommendations;
Emphasis on improving overall network connectivity and cohesion; and, Support for non-infrastructure strategies such as education, policy tools, funding mechanisms, and planning for emerging mobility modes.
Phase 4, Draft Plan: Overview & Key Themes
The fourth phase of engagement involved public release and feedback on the Draft 2026 BPTP Update, and presentation to PABAC, PTC. The project team publicized the Draft Plan through the City’s communication channels, such as the Uplift Local and “Transportation Connect” e- newsletters, and tabled at community events, including Bike Palo Alto (October 5, 2025) and Cal. Ave. Third Thursday (October 16, 2025), and the public comment period was open from October 3, 2025 through November 14, 2025.
On October 7, 2025 and November 4, 2025, PABAC reviewed the Draft Plan and provided feedback.21 22 The public also sent comments on the Draft Plan via an open comment box on the project webpage and through email directly to the City’s Office of Transportation. Key themes from PABAC and the public include:
San Antonio Road: Strong support for prioritizing San Antonio Road bikeway improvements, including advancing implementation in advance of anticipated high- density housing development.
Park Boulevard Extension: Support for adding the Castilleja, Wilkie and Miller to the Park Boulevard Bike Boulevard project (BLVD_24).
Maintenance & Pavement: High priority on improved maintenance and pavement quality for all existing and future bike boulevards. Matadero Avenue was specifically cited as having unacceptable pavement conditions.
Bryant Street Focus: Support for immediate upgrades to the flagship Bryant Street Bike Boulevard, particularly in Professorville/Downtown and at East Meadow Drive crossing. Speed Reduction: Support for establishing a maximum speed of 20 MPH (or less) on all bike boulevards to enhance safety.
E-Device Concerns: Concerns regarding the increasing use of electric bikes and scooters and their operational impact on network safety and design. Age-Specific Education: Support for incorporating bike education programs tailored for an older population to help residents remain active and mobile. Justification & Policy: Requests for clear justification for each near-term project as well as legislative efforts to allow the use of speed cameras in Palo Alto. PABAC’s Role: The Committee requested establishing a formal, direct communication channel between PABAC, PTC, and the City Council.
Bike Boulevards and traffic calming: some support for traffic circles and other improvements to slow cars and increase safety on bike boulevards, and others argued devices like modal filters cause worse gridlock and backups. Embarcadero/Kingsley/Emerson/Waverly Safety: support for traffic calming measures to also be installed on adjacent streets when improvements are made to Bryant Street. 21 Palo Alto Pedestrian and Bicycle Advisory Committee Meeting, October 7, 2025. Agenda Packet, Discussion Item 7b::
https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/pabac/pabac-meetings-2025/2025-10-07_pabac- agenda_packet_final_v2.pdf
22 Palo Alto Pedestrian and Bicycle Advisory Committee Meeting, November 4, 2025. Agenda Packet, Discussion Item 7b:
https://www.paloalto.gov/files/assets/public/v/1/transportation/bicycling-walking/pabac/pabac-meetings-2025/2025-11-04_pabac-agenda- packet_final.pdf
Traffic Diversion: some expressed concern to the recommended turn restriction onto northbound Bryant Street from Embarcadero (as a part of BLVD_2 project), arguing it will divert vehicle traffic to adjacent streets, thereby exacerbating existing safety problems.
Finally, on November 12, 2025, Planning and Transportation Commission (PTC) voted unanimously (7-0) to recommend adoption of the 2026 BPTP Update by the City Council.25 The Commission expressed enthusiastic and unanimous support for the overall quality, presentation, and collaborative process behind the Draft Plan. Consensus was strong in supporting the Plan’s focus on low-stress residential streets (Bike Boulevards), adopting a 20 Miles Per Hour speed limit on those corridors, and prioritizing El Camino Way Safe Routes to School project (BBL_4) with special consideration for parking impacts to adjacent businesses and the potential to use James Road to offset impacts. Some members expressed concern with prioritizing projects on Cowper Street and Middlefield Road considering these are redundant residential routes and major arterial segments that may conflict with Council’s direction to focus resources on the core low-stress network.
Recommended Changes to Near-Term Projects in response to Community Feedback In response to feedback received from community members on the Draft Plan Near-Term projects, staff recommends the following changes to the Near-Term Projects (Attachment C) for inclusion in the Final Near-Term Project List of the Final Plan:
1. Modify project BLVD_24 (Park Boulevard Bike Boulevard) to include the Park-Maclane- Wilkie-Miller to Mountain View section, including wayfinding;
2. Modify project SB_11a (Middlefield Road Separated Bikeway Connection to Menlo Park) to a Class II Bike Lane, and extend the project boundaries from Channing Avenue to Menlo Park instead of Everett Avenue to Menlo Park.
3. Add a new project: Class IV (separated bikeway) on Churchill Avenue from Alma Street to Bryant Street, with a traffic circle at Churchill Avenue & Bryant Street.
4. Programmatic: A new program to fill pedestrian facility gaps along key pedestrian routes without specifying specific locations as a response to the desire for more pedestrian- focused recommendations.
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: Draft 2026 Bicycle and Pedestrian Transportation Plan Update Attachment B: Map of Near-Term Projects
Attachment C: Table of Near-Term Projects
25 Palo Alto Planning and Transportation Commission Meeting, November 12, 2025. Action Item: Bicycle and Pedestrian Transportation Plan (BPTP) Update: Provide Feedback and Recommend the Draft Plan to the City Council for Adoption. CEQA Status: Exempt Pursuant to Public Resources Code Section 21080.20. https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=16612&compileOutputType=1 Attachment D: Links to the Appendices for the Draft 2026 BPTP Update APPROVED BY:
Ria Hutabarat Lo, Chief Transportation Official
AUTHOR/TITLE: Ozzy Arce/Senior Transportation Planner