City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Community Services
Meeting Date: May 18, 2026
Report #:2512-5750
TITLE
Cubberley Project: Adopt the Cubberley Conceptual Master Plan and a Resolution Adopting the CEQA Mitigated Negative Declaration and Mitigated Monitoring and Reporting Program; Receive the Fourth Round of Community Polling Results; and Provide Direction on Next Steps for a Possible Sales Tax Ballot Measure. CEQA Status - A Draft Initial Study/Mitigated Negative Declaration (IS-MND) Report Circulated for Public Review from March 2, 2026, to April 1, 2026.
The City published the Final IS-MND on April 9, 2026.
RECOMMENDATION
Staff and the Planning and Transportation Commission, Architectural Review Board, and Parks and Recreation Commission recommend the City Council:
1. Adopt a Resolution adopting the Final Initial Study Mitigated Negative Declaration for the Project and associated Mitigated Monitoring and Reporting Program (Attachment A); and
2. Adopt the Cubberley Conceptual Master Plan (Attachment B).
Staff recommend the City Council review and discuss results of the fourth community poll (Attachment C) and provide direction on next steps.
EXECUTIVE SUMMARY
The City of Palo Alto (City) is advancing a plan to redevelop a 15-acre portion of the Cubberley campus, including seven acres proposed to be purchased from the Palo Alto Unified School District (PAUSD) for $65.5M. The purchase and improvements are dependent on the City identifying funding, such as a successful ballot measure for a sales tax increase, development impact fees, grants, and private/public partnerships. A conceptual master plan for the 15-acre site was developed following a robust community engagement effort.
The conceptual master plan is a long-term vision for the Cubberley campus that could be completed incrementally over time or adjusted based on available funding and readiness of
partner organizations. Since the timeline for full implementation is unknown, completing an environmental assessment of the complete conceptual master plan provides the regulatory foundation to move forward as funding is acquired. The Cubberley Conceptual Master Plan, in consideration with the Draft Initial Study Mitigated Negative Declaration (IS / MND), has been reviewed by the Planning and Transportation Commission, Architectural Review Board, and Parks and Recreation Commission and these commissions and staff are recommending the Council adopt both documents as a final step.
In anticipation of Council consideration of placement of a November 2026 ballot measure to fund the purchase of seven acres and advance the project or a portion of the project, staff engaged with a polling expert and ballot strategist to conduct community polls to gauge voter support for a bond or tax measure to fund the project. Four community polls have now been completed with the final occurring March 18 – March 26. Results of the fourth poll indicate that approximately 55% of surveyed voters support a general-purpose sales tax measure. While slightly higher than results for the third round of polling done in January 2026, 55% support is at the margin of error for passage of a sales tax measure. Polling demonstrates messaging impacts voter opinion; after hearing arguments in favor and against, 46% of respondents supported the tax.
BACKGROUND
The City of Palo Alto (City) is advancing a plan to redevelop a 15-acre portion of Cubberley, building on previous community engagement and re-engaging residents to reimagine and prioritize community uses of the campus. The City and the Palo Alto Unified School District (PAUSD) have a memorandum of understanding that would enable the City to purchase seven acres to support a reimagined community center and fund school improvements. The City currently owns eight acres at Cubberley; acquiring an additional seven acres would create an opportunity to update the ageing facility for the benefit of the community.
There has been extensive foundational work completed to support the advancement of the Cubberley Project, including several actions by the City Council. Attachment D shares a summary of actions to date and the history of the Cubberley site.
ANALYSIS
Conceptual Master Plan
The current master planning effort built upon the previous work completed in 2019 when a Cubberley Concept Plan was completed through a community co-design process led by Concordia and involving the community, City, and PAUSD.1 Building on that foundation, the current process moved forward with a series of three community meetings designed to refine 1 Cubberley Concept Plan 2019: https://www.pausd.org/about-us/committees-task-forces/archived- committees/cubberley-master-plan
and update the vision for the site. Outcomes from the three community meetings culminated in a guiding vision for potential development of the Cubberley Community Center site with the completion of the Cubberley Conceptual Master Plan.
The phased concept is the culmination of feedback received during three community meetings, online input, and from Board, Commission, and City Council study sessions. At the community meetings, participants engaged in co-design activities related to building layouts, placement and amount of outdoor space, arrival and parking, and preferences between above- and below- ground parking, ultimately leading to discussion of program placement, phasing, and site circulation. The meetings reinforced the important elements of preserving some existing buildings, phasing the construction based on available funding, and ensuring programming spaces remain flexible.
Attachment B includes the final draft conceptual master plan and associated appendices. The plan highlights a phased approach to site development that includes a combination of new construction and building renovation. The site layout identifies and considers appropriate program adjacencies by grouping similar activities together, balances building space with outdoor space and site circulation, and accommodates phasing of construction over time. The phased approach is intentional as available funding may be a limiting factor in full site redevelopment, and phasing also allows the opportunity for some program and activity continuity during project construction.
Adopting the full conceptual master plan and Mitigated Negative Declaration ensures the entirety of potential impacts have been analyzed before advancing site improvements, including near-term improvements, and provides transparency with the community who participated in the planning process. The conceptual master plan represents a long-term vision that could be completed incrementally or adjusted as funding becomes available and as partnerships advance.
The vision outlined in the conceptual master plan models a three-phase implementation.
Phase I: Phase I of the Cubberley Conceptual Master Plan would focus on constructing a new Recreation and Wellness Center, a new Education Building and flexible event space, and renovating existing buildings to create a Performing Arts Complex and to ensure the full campus continues to be operational until full funding is secured. The different elements of Phase 1 could be completed incrementally as sub-phases to align with funding availability and partner readiness. To date, Letters of Intent with TheatreWorks Silicon Valley and the Friends of the Recreation Wellness Center have been approved by the City Council and those areas are likely to advance before other new construction in phase one.
Recreation and Wellness Center: A new facility designed to serve multiple community needs. The building would include up to four multipurpose gymnasiums that could accommodate basketball, volleyball, indoor pickleball, and other recreational uses, along with fitness studio spaces, locker rooms, offices, and dedicated health and wellness areas. The facility would also incorporate storage space for emergency services and sheltering supplies such as cots and equipment, supporting the City’s emergency preparedness efforts.
Performing Arts: Both the Pavilion and Cubberley Theatre would be renovated to enhance the space as a community cultural hub. These improvements would create flexible spaces for performing arts, dance, martial arts, music, rehearsals, and related activities. Renovations would also include upgraded lobby areas to provide a more welcoming and functional gathering space for audiences and performers. On January 28, 2026, the City and TheatreWorks Silicon Valley announced a partnership to create a two-theatre complex that would include the renovation of the existing Cubberley theatre and Pavilion and adding new construction. The existing Cubberley theatre would be upgraded for continued community use and include new restrooms, expanded back of house and lobby space, and improved accessibility. The Pavilion would be renovated as the new home for TheatreWorks Silicon Valley.
Flexible Event Space: Adjacent to the Recreation and Wellness Center is a large, flexible event space capable of hosting a wide range of activities such as ballroom dancing, classes, community meetings and presentations, weddings, parties, and other community rentals and events. There is also a café and concessions area that would serve snacks for gym, pool, and athletic field events. The commercial kitchen could support cooking and nutrition classes, event catering for the large flex space and campus rentals, and food service during emergency shelter operations when the gyms are deployed.
Outdoor Programming: The current tennis courts would be elevated, with a surface- level parking lot constructed underneath and the tennis courts reestablished on top.
Additionally, Phase I could include the construction of a new outdoor swimming pool to expand aquatics programming and community recreation opportunities.
New Education Building: This building would support a range of educational and community programs. This facility could house early education offerings, after-school programs, and other lifelong learning opportunities, creating a dedicated space for youth and family enrichment.
Existing Building Renovation: The two-story “I” building would be renovated to improve functionality and extend its useful life. Phase I also includes renovation of remaining buildings, so the full site continues to be operational until funding for phases II and III is secured. Buildings and rooms currently used and occupied by PAUSD would become available for programming, visual arts, makerspace and workshops and flexible rental spaces.
Phase II: Phase II of the Cubberley Conceptual Master Plan would focus on the construction of visual arts and technology buildings, which includes makerspace and workshop areas for hands- on projects, as well as gallery space for city curated and community exhibitions. This area will also include artist creative studios, expanding opportunities for artists and community members to create, learn, and showcase their work.
Phase III: Phase III of the Cubberley Conceptual Master Plan would complete the Community Services section and provide a café and lounge gathering space, a popular request from the community, along with new community service and flexible spaces. The flexible space is especially valuable, as it provides the ability to adapt to changing program needs and future community priorities. It is designed to be future-proof, multi-purpose, and nimble—supporting staff-led programs, hourly rentals, office space, and potentially accommodating additional tenants. This intentional flexibility will ensure the campus continues to meet evolving needs long after construction is complete.
Overall, the conceptual master plan proposes to increase the amount of indoor space from the current 184,000 square feet to 232,250 square feet after Phase I, and ultimately to 284,000 square feet after Phases II and III. The increase in indoor square footage was informed by feedback received from the community and existing tenants during the 2019 co-design process and current conceptual master planning process, and opportunities to build upon existing public private partnerships for expanded community space. Examples where square footage increases are notable include:
Recreational space, including gyms and programmable spaces for health and wellness classes and activities;
Expanded theater and performing arts spaces with improved accessibility; Visual arts spaces for art programs, classes, and exhibits to the community, including a makerspace and creative workshops; and
Flexible spaces for city programming of classes and camps, and rental space.
Outdoor space also increases with the proposed plan from 250,000 square feet to 390,000 square feet after Phase I, and to 415,000 square feet after Phases II and III. This provides an opportunity to improve the quality of outdoor spaces at Cubberley and provide for more diverse uses, such as events, performances, outdoor programs, unstructured play and casual gathering spaces.
Overall, while the plan provides a distinct layout of the site with specific features, it represents a concept that should be considered adaptable and dynamic as the project phases continue to progress.
Site circulation:
This Conceptual Master Plan includes a site circulation strategy that prioritizes pedestrian and bicycle safety while maintaining convenient vehicular access and parking. Walking and biking routes are designed to minimize conflicts with vehicles and connect to existing and planned regional bicycle and pedestrian networks, supporting both pass-through travel and trips to campus programs. The circulation framework was developed in coordination with broader City planning efforts, including the San Antonio Road Area Plan and Housing Element, Palo Alto Safety Action Plan, and Safe Routes to School initiatives, to ensure the campus integrates with existing and future transportation improvements in the surrounding area.
Vehicular circulation is organized through a looped roadway connecting the two perimeter access points, with distributed surface parking located near high-demand program areas and designated passenger drop-off zones throughout the site. The plan also identifies potential transportation improvements, including additional exit capacity at the Montrose Avenue signal, a potential signalized north access point, and evaluation of a center turn lane on Middlefield Road. At the completion of Phase 1, the campus would provide approximately 640 parking spaces, including City-owned and leased spaces. A detailed parking analysis prepared by transportation consultants Fehr & Peers determined that this supply would meet typical day-to- day demand based on nationally recognized standards and evaluation of the campus design, square footage, and anticipated uses. Additional traffic analysis would be conducted during future architectural design phases.
Recommendations from Planning and Transportation Commission, Architectural Review Board, and Parks and Recreation Commission
Staff presented the Cubberley Conceptual Master Plan and Draft Initial Study / Mitigated Negative Declaration (IS/MND) at a special joint meeting of the Planning and Transportation Commission (PTC) and Architectural Review Board (ARB) on March 11, 2026. Both the PTC and ARB voted separately and unanimously to recommend that City Council adopt the Cubberley Conceptual Master Plan, with considerations. The approved PTC and ARB motions are included in Attachment A and are generally focused on cost effectiveness of renovation versus new construction, parking adequacy, and site circulation for bikes and pedestrians.
Staff also presented the Cubberley Conceptual Master Plan and Draft Initial Study / Mitigated Negative Declaration (IS/MND) to the Parks and Recreation Commission on March 24, 2026.
The Commission voted 5–0 to recommend that City Council adopt the Cubberley Conceptual Master Plan, with one Commissioner abstaining. A summary of the meeting discussion is included in Attachment A and was centered around project phasing, funding strategy and flexibility, and timelines tied to land acquisition and partnership opportunities, as well as consideration of construction impacts on existing operations and ongoing community engagement efforts.
Funding Strategy
Staff and the Cubberley Ad Hoc Committee are actively pursuing public-private partnership opportunities to advance key components of the project. Notably the City Council recently approved a Letter of Intent (LOI) for a partnership with TheatreWorks Silicon Valley which would create a two-theater complex through renovation and new construction, while preserving and upgrading the Cubberley Theatre for community use. In addition, the Friends of the Palo Alto Recreation and Wellness Center (Friends) continue to work with the City toward an agreement to help advance a future Recreation and Wellness Center. An LOI with the Friends was approved by City Council on December 2, 20243. Additional partnership developments underway include Maker Nexus, Palo Alto Community Child Care, and Avenidas.
Letters of Intent with these organizations are being developed and will be brought to Council for approval on a future date. These partnerships, together with existing City revenue streams, grants, and philanthropy, are intended to complement a future ballot measure and create a multi-part funding strategy to share in the cost of investment and not over burden taxpayers.
Poll Four Results
The City engaged with Fairbank, Maslin, Metz & Associates (FM3) to develop and conduct polling on public opinion in advance of potentially placing a measure on the November 2026 ballot. The City’s workplan includes four rounds of polling: the first released in April 2025, the second released in November 2025, the third released in January 2026, and the fourth released in March 2026.
The fourth survey focused on testing two sales tax ballot measure questions (a ½ cent (0.5%) sales tax measure and a ¼ cent (0.25%)); difference in support amount those who have visited Cubberley versus those who have not; and whether the measure would fund Cubberley upgrades, partnership contributions, sales tax paid by non-residents, and knowing that other regional sales tax measure would be on the same November 2026 ballot would change voter support.
Attachment C summarizes results of the poll, with 55% of surveyed voters in support of a sales tax measure. In addition, voter support after positive and negative messaging was measured.
Positive messaging did not stand out for voters who took the survey and a brief oppositive statement pushes support below majority with 46% voters supporting.
FISCAL/RESOURCE IMPACT
As discussed in this report, to fund critical community improvements at the Cubberley Campus, the City is evaluating a potential tax measure, together with funding from partnership opportunities, use of development impact fees, grants and philanthropy. The purchase of land 3 City Council, December 2, 2024; Agenda Item #18; SR #2410-3634, https://portal.laserfiche.com/Portal/DocView.aspx?id=112713&repo=r-704298fc from PAUSD totals $65.5 million. While cost estimates for phase one of the conceptual master plan are between $300 and $400 million, implementation can advance in phases with initial investments focusing on immediate repairs and partnerships. Project resources for work currently underway, including planning, administrative costs, and special studies are available in the FY 2026 Adopted Capital Budget, Cubberley Community Center Redevelopment Project (CB- 26000).
If the City Council chooses to place a measure on the November 2026 election ballot, the estimated cost of conducting the election is $100,293. Funding for this expense will be provided by the Real Property Investment Reserve.
STAKEHOLDER ENGAGEMENT
Community outreach and stakeholder engagement efforts for the project have been extensive and were a central component of the overall process. Following all community meetings, recordings of the presentations were uploaded to the project website to ensure broader access.
Community members who could not attend in person were invited to share their input through an online public comment card, providing additional opportunities for feedback to the broader community.
Additionally, staff, in coordination with the City Council Cubberley Ad Hoc Committee, developed a Strategic Activation Plan to guide near-term enhancements and activations at the Cubberley site. This plan builds upon the many events and activities already taking place daily at the Cubberley campus, including City-run programs, tenant-led offerings, rentals, special events, artist studio workshops and open studios. It is intended to complement and enhance the existing vibrancy of the site. The plan was inclusive of key stakeholders, and the document outlines a range of potential ideas to build community excitement and momentum for the project including a mix of short-term physical enhancements, community events, and temporary art installations that will be facilitated through the City’s Public Art 2026 ArtLift Community Grant program. Activations that have been completed include:
A 10- foot community canvas banner that was presented and signed by the community at the third community meeting and hung on the Cubberley campus, A three-part Family Movie Night series at Cubberley Theatre that averaged 100 participants per night and brought new families to campus, New banners featuring real-life participants,
Cubberley Artist Studio Program Open Houses and Workshops, and Launching of the 2026 ArtLift Community Grants which will include five temporary, interactive visual art experiences that will inspire joy, creativity and encourage community participation at Cubberley Community Center.
The new campus directory signs and tenant door painting initiative are nearing completion.
In addition to community meetings and updates to the City Council, Project updates and ways to stay involved and informed are shared through:
Project website (www.paloalto.gov/improvecubberley),
Online comment card asking for priorities and open fields to share vision and service needs,
City updates via medium.com blog space,
Project updates sent via email newsletter to the project distribution list and project updates shared through City channels including Nextdoor and digital newsletters, and videos,
Utility bill inserts,
Resident mailers, and
Tabling at key City events.
ENVIRONMENTAL REVIEW
The proposed project has been assessed in accordance with the authority and criteria contained in the California Environmental Quality Act (CEQA), the State CEQA Guidelines, and the City’s environmental regulations. Specifically, the City published a Draft Initial Study - Mitigated Negative Declaration (IS-MND) on March 2, 2026, which was circulated for a 30-day comment period ending on April 1, 2026. The City received seven written comments on the Draft MND, including one from a public agency, Valley Transportation Authority (VTA), and six from members of the public. The City also received verbal comments at the joint Architectural Review Board and Planning and Transportation Commission hearing on March 11, 2026. Most of the comments received expressed opinions about the project and did not raise concerns about the analysis or conclusions of the Draft IS-MND. Therefore, changes to the Final IS-MND were limited.
One commenter expressed concerns about the use of an MND for a long-term project, failure to analyze the whole of the project, aesthetics impacts, traffic impacts, cumulative impacts, and impacts to nearby residences. In accordance with CEQA Guidelines 15070(a), a public agency shall prepare an MND for a project when there is no substantial evidence that the project may have a significant effect on the environment. As identified in the MND, no unavoidable significant impacts were identified. Therefore, no changes to the Final IS-MND were made in response to these comments.
The VTA provided comments on the draft Transportation Analysis which included editorial comments on existing transit routes, a comment to include an analysis of transit delay, and a comment to include the Auto Trip Reduction Statement for the project. In response to these comments, the final TA report has been revised to make minor corrections, to include a discussion on the project’s effects on transit delay, and to provide the Auto Trip Reduction Statement for the project. The updated TA report is provided in Appendix G of the Final IS- MND. Changes to the Transportation Analysis did not identify new significant impacts or significant impacts of increased severity compared to the impacts identified in the Draft IS- MND. Because none of the changes to the IS-MND are considered substantial in accordance with Section 15073.5(b) and the information added merely clarifies and amplifies the information previously provided in the analysis, recirculation of the MND is not required.
CEQA does not require formal responses to comments be provided for an IS-MND. CEQA Section 15074(b) requires that prior to approving a project, the decision-making body of the lead agency shall consider the MND together with any comments received during the public review process. Therefore, written comments received during the public comment period are included in Appendix I of the Final IS-MND for consideration by City decision-makers.
ATTACHMENTS
Attachment A: Resolution adopting the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program (including links to the documents) Attachment B: Project Documents Including Cubberley Conceptual Master Plan, Appendices, and Final Initial Study / Mitigated Negative Declaration Attachment C: Poll Four Analysis
Attachment D: Cubberley Project Background
APPROVED BY:
Kristen O'Kane, Community Services Director