____________________________________________________________________________________
FOR CITY CLERK ONLY
Council Meeting:
Disposition:
Agenda Item No: 4.a
Meeting Date: October 19, 2026
SAN RAFAEL CITY COUNCIL AGENDA REPORT
Department: Public Works
April Miller, Public Works Director
Prepared by:
Joanna Kwok, Assistant Public Works Director
Kelly Abey, Traffic Engineering Technician
City Manager Approval: ______________
TOPIC: SAN RAFAEL CITYWIDE BICYCLE AND PEDESTRIAN PLAN 2026 UPDATE SUBJECT: RESOLUTION ADOPTING THE SAN RAFAEL CITYWIDE BICYCLE AND PEDESTRIAN PLAN 2026 UPDATE; CEQA DETERMINATION: EXEMPT PURSUANT TO CALIFORNIA PUBLIC RESOURCES CODE SECTION 21080.20
RECOMMENDATION:
Staff recommends that the City Council adopt a resolution adopting the San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update.
BACKGROUND:
In 1998, the San Rafael Bicycle and Pedestrian Advisory Committee (BPAC) was established with the specific purpose of creating a Bicycle and Pedestrian Master Plan. On February 4, 2026, City Council adopted its first Bicycle and Pedestrian Master Plan (BPMP). The plan inventoried all bicycle and pedestrian facilities and the primary bicycle and pedestrian route network. The plan also focused on corridors with the highest potential bicycle and pedestrian demand and prioritized projects. The plan is updated regularly to ensure the projects and priorities listed in previous versions still reflect the community’s current needs and desires while also meeting new design guidelines set forth by the state and federal government. The City Council adopted updates to the BPMP on April 4, 2011, and July 16, 2018.
To remain current with best practices in bicycle and pedestrian planning and infrastructure design and be grant-eligible, the BPMP should be updated every 5-7 years. Additionally, Objective B.1.1 of the City of San Rafael (“City”) Three-Year Strategic Plan (Fiscal Year 2025-2028) prioritizes the development and adoption of an updated Citywide Bicycle and Pedestrian Plan (previously referred to as BPMP). This objective is identified as a critical element in maintaining an integrated, multi-modal transportation network that serves users effectively and safely in San Rafael.
On December 2, 2024, the City Council authorized the City Manager to enter into a professional services agreement with Parametrix to provide professional services associated with updating the Citywide Bicycle and Pedestrian Plan (CBPP). The project team initiated the plan update process in early 2025 and has since conducted two phases of community engagement, incorporated community feedback while SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 2
developing an updated projects list and prioritization and drafted the final Citywide Bicycle and Pedestrian Plan 2026 Update (“2026 CBPP” or “Plan”), which is included as Attachment 2.
ANALYSIS:
The City developed the 2026 CBPP through a multiyear process that included an inventory of existing conditions, citywide community engagement, and updated plan goals and projects. The 2026 CBPP identifies and updates the City’s priority projects list and policies to guide future bicycle and pedestrian improvements and develops tools flexible enough to allow for continued evaluation of priorities into the future.
The Plan consists of seven chapters. Chapters 1-3 provide the Plan timeline since its creation in 2002, related plans, and the overall goals and strategies that guide the priorities for the 2026 CBPP update.
Chapter 4 evaluates the broader context of the CBPP, including land use trends, the current state of the transportation network facilities, and collision trends. Chapter 5 summarizes the community engagement activities and findings conducted as part of the Plan. Chapters 6-7 list prioritized projects and policy recommendations for proposed improvements to bicycle and pedestrian networks and include implementation opportunities and strategies.
2026 CBPP Highlights
Since adopting the BPMP 2018 Update (“2018 BPMP”), the City has made measurable progress in improving the bicycle and pedestrian networks by completing numerous proposed projects and advancing its goals. To reflect current community values, the 2018 BPMP’s goals were reviewed and adjusted for the 2026 CBPP goals, which are (1) Connectivity, (2) Comfort, (3) Implementation, and (4) Vision Zero. These four goals informed project recommendations and prioritization, program recommendations, and implementation strategies.
To advance the recommended projects listed in the 2026 CBPP toward implementation, we identified higher-priority projects using project scores and those with suggested external grant funding sources.
Additionally, the recommended programs combine the bicycle and pedestrian improvements with education, maintenance, and policies to ensure long-term progress toward the Plan’s goals of connectivity, comfort, implementation, and Vision Zero.
Progress Since 2018 BPMP
The 2026 CBPP builds off of the 2018 BPMP, which provided a good foundation for the City, as evidenced by the completion of multiple street capital improvement projects, such as the Third Street Rehabilitation Project, Francisco Boulevard West Cycle Track Project, Grand Avenue Pathway Connector (also referred to as Grand Avenue Bridge), and Grand Avenue Cycle Track Project. Figure 3 includes projects completed since 2018 that were grant-funded, and a complete list of projects completed since the 2018 BPMP can be found in Chapter 2 of the 2026 CBPP.
Furthermore, to support the additional planning efforts since the adoption of the 2018 BPMP, the City has completed and supported numerous policy efforts, such as adoption of the Marin County Local Road Safety Plan, adoption of the citywide e-bike and electronic assist bicycle policy, adjustments to signal timing, supporting the City’s Bicycle and Pedestrian Advisory Committee (BPAC), using the most current best practices in bicycle and pedestrian design, and continuing to pursue regional, state, and federal funding for bicycle and pedestrian projects, programs, and policy support. A full list of the completed policy actions since the 2018 BPMP can be found in Table 2 of the 2026 CBPP.
Projects
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 3
In addition to the completed projects since the 2018 BPMP, 11 active projects are rolling over into the 2026 CBPP, as shown in Figure 1 below. These projects are funded by a mix of the City’s tax dollars and local, state, and federal grants, or have a lead agency other than the City.
The 2018 BPMP projects were revised through adjusted plan goals, project-specific scoring, and public comments during the two engagement phases. The Plan’s four goals: (1) Connectivity, (2) Comfort, (3) Implementation, and (4) Vision Zero, guided the development and prioritization of the project list. The scoring criteria were broken down based on the four plan goals. Under the connectivity plan goal, scoring considered population, equity priority communities, connections to destinations, and network completeness. Under Comfort, the scoring considered community feedback and the degree of separation from vehicles. For implementation, scoring considered implementability, including whether the project aligns with previous planning efforts, potential future outside funding sources, its potential as a quickbuild project, and its alignment with planned transit operations. The final plan goal, Vision Zero, scored projects based on the number of pedestrian and bicycle collisions and crash severity near a project location. After adjusting the plan goals and project-specific scoring, the 2026 CBB identified and recommended 122 projects. The projects include 31 intersection improvements, over eight miles of sidewalk and multi-use path improvements, and approximately 30 miles of bikeways.
Figure 1. Active projects rolling over from the 2018 BPMP to the 2026 CBPP ID Project Location Project Description
A12 Manuel T. Freitas Parkway from
Del Ganado Road to Los Gamos
Drive
Install a Class I multiuse path on the north side of Manuel T.
Freitas Parkway between Del Ganado Road and Los
Gamos Drive.
A18 Nova Albion Way from Esmeyer
Drive or Las Gallinas Avenue
Install a Class I/IV multiuse path and protected bikeway A41 SMART Pathway from North San
Pedro Road to Puerto Suello Hill
Pathway
Extend the SMART Pathway from Civic Center SMART
Station to existing Puerto Suello Hill Pathway under Hwy 101 and along Los Ranchitos Road and Lincoln Avenue.
B02 Fifth Avenue and Happy Lane Add curb extensions and a high-visibility crosswalk across Happy Lane; upgrade sidewalk on Fifth Ave from Happy
Lane and west 150ft.
B14 Fourth Street and Second
Street/Marquard Avenue
Study realignment of the Fourth Street/Second
Street/Marquard Avenue intersection to improve pedestrian, bicycle, and motor vehicle access.
B25 Woodland Avenue from Bayview
Street to City limit
Install a Class III+ bicycle boulevard on Woodland Avenue from Bayview Street to the southern City limit.
B42 West Tamalpais from Second
Street to Mission Ave
Install a Class IV protected bikeway.
C02 Point San Pedro Road and
Knight Drive
Improve bicycle and pedestrian crossing conditions with pedestrian-activated flashing beacon; potential turning radii reduction and/or bulbouts to reduce pedestrian crossing distance; potential median refuge island
C04 Canal Crossing from 620 Canal
Street to Third Street
Study potential bicycle and pedestrian bridge over San
Rafael Canal.
C09 Canal Street from 620 Canal
Street to Pickleweed Park/A.J.
Boro Community Center
Upgrade existing Class III bicycle route to Class III+ bicycle boulevard.
C11 Bellam Boulevard and Kerner
Boulevard
Improve pedestrian conditions
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 4
C14 Bellam Boulevard /Baypoint
Village Drive from Andersen
Drive to Baypoint Dr
Study feasibility of Class IV protected bicycle facilities or Class I multiuse path on Bellam Boulevard and Baypoint
Village corridor, connecting to the San Francisco Bay Trail Similar to the 2018 BPMP, the 2026 CBPP Update is a living document. Project scopes listed and scored within the document will remain adaptable, and the City will continue to incorporate and adjust aspects of listed projects as they are evaluated on a project-by-project basis.
Of the 122 total recommended projects in the Plan, 23 top priority projects are listed in Chapter 7.2.
These 23 top-priority projects scored highest based on the scoring criteria. They are located along major corridors such as Manuel T. Freitas Parkway, Nova Albion Way, Merrydale Road, Fourth Street, Bellam Boulevard, Andersen Drive, Canal Street, and Francisco Boulevard East. The project scope includes bicycle facility upgrades, like Class I multi-use paths, along with pedestrian safety enhancements, such as intersection lighting, and accessibility improvements. The projects connect to the San Francisco Bay Trail, support priority corridors, and improve continuous downtown east-west bicycle connections. Figure 2 shows a map of the top priority project locations, and a complete list of the top priority projects, descriptions, estimated costs, and suitable external funding sources can be found in Chapters 7.2-7.4 of the Plan.
Figure 2. Map of CBPP updated top priority projects
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 5
Programs and Policies
In coordination with bicycle and pedestrian infrastructure improvements, the recommended programs and policies shape the network’s implementation, management, and maintenance over time. The City continues to participate in programs such as Safe Routes to School, community engagement, pilot project demonstrations, and project monitoring. Policies provide the framework for future decisionmaking and project development and include transit coordination, multi-modal considerations, project prioritization, and emerging mobility options. These enable effective coordination and consistent planning across City departments and alignment with regional and state requirements. A complete list of recommended programs and policies can be found in Tables 8 and 9 of Chapter 6.4.
Funding
Since the 2018 BPMP, the City has been awarded approximately $46.9 million total in grant funding for bicycle and pedestrian improvements. Various local, state, and federal grants awarded for projects included in the 2018 BPMP or relating to bicycle and pedestrian infrastructure are shown in Figure 2.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 6
Figure 3. Grant-funded bicycle and pedestrian projects completed since 2018 Project Name Grant Amount Awarded Completed Date
Francisco Boulevard Multi-Use Path OBAG 2 and
Measure A HIP
$1,250,000 Mar. 2021
Grand Avenue Pathway Connector
(Grand Avenue Bridge)
Measure A/B,
ABAG, OBAG 2
$2,226,353 Jun. 2019
Third Street Rehabilitation Project TAM Measure A and
AA and HSIP
$14,300,000 Jan. 2024
Grand Avenue Cycle Track Bay Trail, ABAG,
TAM
$1,820,000 Jul. 2024
Francisco Blvd Midblock Crossing
Enhancement
TDA 3 and TFCA $200,000 Jun. 2026
Lincoln Ave Corridor Safety
Improvements on Wilson Court and
Brookdale Ave
HSIP Cycle 11 $250,000 Aug. 2026
Figure 4. Active grant-funded bicycle and pedestrian projects from 2018 Project Name Grant Amount
Awarded
Date
Awarded
Included in
the Plan
Second and Fourth Street
Intersection
OBAG 3 $3,051,000 Jan. 2022 Yes – B14
Canal Active Transportation
Enhancements Improvements
ATP Cycle 6 $4,123,000 Jan. 2023 Yes – C09
Canal Crossing ATP Cycle 6 $3,925,000 Jan. 2023 Yes – C04 Lincoln Ave from 2nd Street to
Paloma
HSIP Cycle 12 $2,555,910 Dec. 2024 No
San Rafael North-South Greenway
Gap Closure
ATP Cycle 7 $4,355,000 Feb. 2025 Yes – B42
Canal Neighborhood Bellam
Gateway Local Access Improvement
RM3 SR2TBT $6,840,000 Feb. 2025 Yes- C11
and C14
Fifth and California Avenue
Intersection Improvements
TAM Safe Pathways
5th Cycle
$100,000 Mar. 2025 No
Nova Albion Bikeway and Pathway
Gap Closure
TAM Safe Pathways
5th Cycle
$100,000 Mar. 2025 Yes – A18
South Merrydale Pathway (Rafael
Meadows)
TAM Safe Pathways
5th Cycle and TAM
Measure B
$1,192,228 Mar. 2025 No
Woodland Avenue Safe Routes to
School - Laurel Dell Elementary
School
TAM Safe Pathways
Cycle 5
$450,000 Mar. 2025 Yes – B25
Park Street and Belle Avenue
Pedestrian Enhancement
TDA 3 $66,700 Nov. 2025 No
Point San Pedro Pedestrian Quick
Build Enhancements
TDA 3 $88,300 Nov. 2025 Yes – C02
The City continues to pursue grant funding for bicycle and pedestrian projects and recently submitted grant applications to the Active Transportation Program (ATP) Cycle 8 for the Manuel T. Frietas Active Transportation Gap Closure Project and the Merrydale Road Active Transportation Connectivity Project.
The City also applied to the One Bay Area Grant (OBAG) 4 and Community Action Resource and Empowerment (CARE) Program for additional funding for the Canal Crossing Project and Merrydale SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 7
Road Active Transportation Connectivity Project. The City also applied for the Caltrans Sustainable Transportation Planning Grant (STPG) FY2027-28 to study bicycle and pedestrian facility options on Point San Pedro Road and for a feasibility study to install a two-way protected bike lane on the south side of Francisco Boulevard East. The City is preparing grant applications for the Local Highway Safety Improvements Program (HSIP) Cycle 13 to install rectangular rapid flashing beacons on identified crosswalks and pedestrian safety improvements at various intersections in downtown San Rafael.
Conclusions
The 2018 BPMP needed updating to reflect the community vision for the bicycle and pedestrian networks and remain competitive for grant funding. With completion of the 2026 CBPP, City staff recommends that the City Council adopt the San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update. The adopted 2026 CBPP will guide the City in seeking funding to implement future bicycle and pedestrian projects, policies, and programs that align with the City and community’s vision for the built-out bicycle and pedestrian networks.
In addition to the recommendation to adopt the 2026 CBPP Update, the project team also recommends that the next plan update consider transitioning the CBPP into an active transportation plan to align with Transportation Authority of Marin’s future planning efforts for a county-wide Active Transportation Plan and the overall goals of maintaining an integrated, multi-modal transportation network that serves users of all ages and abilities.
COMMUNITY OUTREACH:
Chapter 5 of the CBPP provides a detailed overview of the community engagement efforts conducted in two phases during the planning process. These included formal in-person and virtual workshops; pop-up engagement at community events and the Bettini Transit Center; an interactive web map tool; and online surveys. Engagement materials were available in both English and Spanish, including the City-hosted project webpage. The project website included a feature that allowed the public to subscribe to email notifications for updates from the City on the project’s public engagement events, shared documents, and timeline updates.
A group of individuals with relevant technical backgrounds previewed draft engagement documents, design guidelines, the updated projects list, and the plan for preliminary feedback and suggested refinements before releasing the drafts for public review and feedback. The individuals who assisted with the preliminary review of the draft plan documents included representatives from various City departments and external agencies, including but not limited to the County of Marin; the Golden Gate Bridge, Highway, and Transportation District; Marin Transit; and the Transportation Authority of Marin.
The City’s BPAC and Traffic Advisory Committee were also consulted and commented on the plan update throughout the engagement and planning process. After completing Phase 1 and 2 community engagement, the project team returned to BPAC on April 21, 2026, to present the newly developed list of all bicycle and pedestrian projects and their respective rankings. At this meeting, BPAC and the community expressed interest in reviewing the full draft plan before presenting it to the City Council for recommended adoption.
The draft plan was posted to the project website on June 3, 2026, and presented to the ADA Access Advisory Committee on June 3, 2026, and to the BPAC on June 10, 2026. The committee reviewed comments and feedback received at the BPAC meeting and written comments received via email by June 24, 2026, and evaluated them for inclusion in the final plan. The draft plan was also presented to the Parks and Recreation Commission on September 17, 2026, highlighting the top priority projects connecting community centers, parks, and trails.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 8
ENVIRONMENTAL DETERMINATION:
Adoption of the 2026 CBPP is statutorily exempt from the California Environmental Quality Act pursuant to California Public Resources Code Section 21080.20 because the 2026 CBPP meets the definition of an “active transportation plan”, which is a plan that promotes walking, bicycling, and rolling by creating safer and more connected bicycle and pedestrian networks.
FISCAL IMPACT:
The total 2026 CBPP budget of $306,710 consists of City Council-approved appropriations from the Gas Tax Fund (206) in the amount of $250,000 on June 17, 2024, and supplemental budget appropriations of $16,710 on December 2, 2024, and $40,000 on June 2, 2025. The total project budget of $306,710 was utilized for the completion of the 2026 CBPP.
There is no immediate fiscal impact should Council adopt the 2026 CBPP. The 2026 CBPP will identify and prioritize capital improvement projects and seek grant funding going forward. Specific projects will be brought to Council for consideration as funding is secured and the projects are further developed.
OPTIONS:
The City Council has the following options to consider on this matter:
1. Adopt resolution as presented.
2. Approve a modified version of the resolution.
3. Direct staff to return with more information.
RECOMMENDED ACTION:
Staff recommends that the City Council adopt a resolution adopting the San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update.
ATTACHMENTS:
1. Resolution adopting the San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update
2. San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update a. Appendices
RESOLUTION NO.
RESOLUTION ADOPTING THE CITY OF SAN RAFAEL CITYWIDE BICYCLE AND PEDESTRIAN PLAN 2026 UPDATE; CEQA DETERMINATION: EXEMPT PURSUANT TO CALIFORNIA PUBLIC RESOURCES CODE SECTION 21080.20
WHEREAS, in 1998, the San Rafael Bicycle and Pedestrian Advisory Committee (BPAC) was established with the specific purpose of creating a Bicycle and Pedestrian Master Plan; and WHEREAS, City Council adopted its first Bicycle and Pedestrian Master Plan (BPMP) on February 4, 2002, that inventoried all bicycle and pedestrian facilities and the primary bicycle and pedestrian route network. The plan also focused on corridors with the highest potential bicycle and pedestrian demand and prioritized projects; and
WHEREAS, the plan was updated on April 4, 2011, and July 16, 2018 (referred to as “2018 BPMP”) to ensure the projects and priorities listed in previous versions still reflect the needs and desires of the community, while also meeting new state and federal guidelines; and WHEREAS, to remain current with best practices in bicycle and pedestrian planning and infrastructure design and remain grant-eligible, the BPMP should be updated every 5-7 years; and
WHEREAS, Objective B.1.1 of the City’s Three-Year Strategic Plan (Fiscal Year 2025- 2028) prioritizes the development and adoption of an updated Citywide Bicycle and Pedestrian Plan (previously referred to as the BPMP); and
WHEREAS, the City Council authorized the City Manager to enter into a professional services agreement with Parametrix to provide professional services associated with updating the Citywide Bicycle and Pedestrian Plan (referred to as “2026 CBPP”) on December 2, 2024; and WHEREAS, the development of the 2026 CBPP update included inventory of existing conditions, citywide community engagement, and updated plan goals and projects; and WHEREAS, to inform and elicit as many people as possible in the engagement process, the project team hosted formal in-person and virtual workshops, pop-up engagement at community events, and created online tools, surveys, and notifications; and WHEREAS, the projects from the 2018 BPMP were revised through adjusted plan goals:
(1) Connectivity, (2) Comfort, (3) Implementation, and (4) Vision Zero, project-specific scoring, and comments from the public during the two engagement phases; and WHEREAS, the City has made measurable progress in the improvements to the bicycle and pedestrian networks since adoption of the 2018 BPMP as shown by the completion of multiple street capital improvement projects, such as the Third Street Rehabilitation Project, Francisco Boulevard West Cycle Track Project, Grand Avenue Pathway Connector (also referred to as Grand Avenue Bridge), and Grand Avenue Cycle Track Project; and WHEREAS, 11 active projects are rolling from the 2018 BPMP as part of the 122 total recommended projects listed in the 2026 CBPP; and
WHEREAS, 23 of the 122 total recommended projects in the 2026 CBPP are identified as the top priority projects based on their scores and include connections to the San Francisco Bay Trail, support transit priority connections, upgrade bike facilities along major corridors in the City, and improve east-west bicycle connections; and
WHEREAS, the 2026 CBPP update is a live document, in which project scopes listed and scored within the document remain adaptable, with the City continuing to incorporate and adjust aspects of listed projects as they are evaluated on a project-by-project basis; and WHEREAS, the City has received around $46.9 million in grant funding for bicycle and pedestrian improvements since adoption of the 2018 BPMP and continues to pursue grant opportunities; and
WHEREAS, the recommended programs and policies in the 2026 CBPP support the recommended projects by shaping the implementation, design, management, and maintenance of the bicycle and pedestrian network over time; and
WHEREAS, the project team recommends that the next plan update consider transitioning the CBPP into an active transportation plan to align with Transportation Authority of Marin’s future planning efforts for a county-wide Active Transportation Plan and the overall goals of maintaining an integrated, multi-modal transportation network that serves users of all ages and abilities.
WHEREAS, adoption of the 2026 CBPP is statutorily exempt from the California Environmental Quality Act pursuant to California Public Resources Code Section 21080.20 because the 2026 CBPP meets the definition of an “active transportation plan”, which is a plan that promotes walking, bicycling, and rolling by creating safer and more connected bicycle and pedestrian networks;
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL RESOLVES as follows:
1. The foregoing recitals are true and correct.
2. The San Rafael Citywide Bicycle and Pedestrian Plan 2026 Update is hereby approved and adopted.
3. The Director of Public Works is hereby authorized to make any minor, non-substantive clerical, formatting, and typographical corrections.
I, LINDSAY LARA, Clerk of the City of San Rafael, hereby certify that the foregoing resolution was duly and regularly introduced and adopted at a regular meeting of the City Council of the City of San Rafael, held on Monday, the 19th day of October 2026, by the following vote, to wit:
AYES: Councilmembers:
NOES: Councilmembers:
ABSENT: Councilmembers:
Lindsay Lara, City Clerk