HomeMy WebLinkAboutRESO 10226132_20250418_ts24 1
Resolution No. 10226
Resolution of the Council of the City of Palo Alto Approving the Safe Streets for All
Safety Action Plan
R E C I T A L S
A.The Federal Infrastructure Investment and Jobs Act (IIJA) was signed into law in November
2021. The law authorized $1.2 trillion for transportation and infrastructure spending
through FY 2026. This included the Safe Streets and Roads for All (SS4A) grant program.
B.The National Roadway Safety Strategy (NRSS) was signed into law in January 2022. Through
the NRSS, the United States Department of Transportation committed to a national vision
of zero roadway fatalities and identified priority action aligned with the five Safe System
elements.
C.Caltrans’ Strategic Highway Safety Plan (SHSP) was last updated in January 2023. In 2020,
State transportation leaders recognized that a change, known as “The Pivot,” was
necessary to combat the rise in fatalities and serious injuries on California’s roadways
through the implementation of the Safe System Approach.
D.On June 19, 2023, the City Council approved and authorized the City Manager to execute
a grant agreement with the Federal Highway Administration (FHWA) to develop the Palo
Alto Safe Streets and Roads for All (SS4A)-funded Safety Action Plan.
E.In August 2023, the City of Palo Alto contracted with Fehr & Peers to complete the SS4A
Safety Action Plan. The project included two community outreach events, an online survey
and interactive map, and project status updates to City Council, Planning and
Transportation Commission (PTC), Palo Alto Bicycle Advisory Committee (PABAC), and
City/School Transportation Safety Committee (CSTSC).
F.To comply with the SS4A program requirements, the Palo Alto SS4A Safety Action Plan
must include a public commitment to the eventual goal of zero roadway fatalities and
serious injuries from a high ranking official and/or elected body in the jurisdiction,
including a timeline or target for achieving that goal.
G.The City of Palo Alto’s SS4A Safety Action Plan states that traffic fatalities and serious
injuries on the City’s roadways will be reduced to zero by the year 2035.
H.The City of Palo Alto’s SS4A Safety Action Plan is aligned with the Safe System Approach
and calls for changes to citywide policies, programs, and practices to clarify our multi-
modal safety priority. The City Council acknowledges that these changes will result in
tradeoff decisions that proactively provide the opportunity to reduce severe injuries and
fatalities and may result in parking loss or increased vehicle delay at times.
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NOW, THEREFORE, the City Council of the City of Palo Alto RESOLVES as Follows:
SECTION 1. The Council hereby approves the Safe Streets and Roads for All (SS4A)
Safety Action Plan (attached as Exhibit A) and the goal of eliminating transportation fatalities and
serious injuries in the City of Palo Alto by 2035.
SECTION 2. The Council finds that this Resolution and the SS4A Safety Action Plan are
statutorily exempt from CEQA under Public Resources Code 21080.20.
SECTION 3. This Resolution shall become effective immediately upon adoption.
INTRODUCED:
PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
__________________________ _____________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
__________________________ _____________________________
Assistant City Attorney City Manager
_____________________________
Chief Transportation Official
JUNE 2, 2025
BURT, LAUING, LU, LYTHCOTT-HAIMS, RECKDAHL, STONE, VEENKER
JUNE 2, 2025
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Exhibit A
Safe Streets for All Safety Action Plan
132_20250418_ts24 3
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PALO ALTOsafety action plan
JUNE 2025
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2 Palo Alto Safety Action Plan
DEDICATION
The City of Palo Alto would like to dedicate this Safety Action Plan to the members of our community
– grandparents, parents, children, partners, and colleagues – who have lost their lives or sustained
life-altering injuries on the City’s roadways. We also express our sincere appreciation to all of those
dedicated to improving roadway safety in Palo Alto and reducing these events to zero.
Reaching zero deaths and fatalities is our commitment – a commitment to providing a transportation
system that allows all road users to arrive at their destination comfortably and safely as they travel
within and through Palo Alto. We believe that humans are vulnerable and make mistakes. And we
believe that an effective, proactive, holistic, and redundant system can prevent fatal and severe injury
outcomes associated with those mistakes.
The City of Palo Alto has an important role to play in improving transportation safety in the City. With
our Vison Zero commitment we have integrated the Safe System Approach into this Safety Action Plan
and intend to update many of our existing programs, policies, and on-going plans to align with this
Approach across departments. Our efforts will also include coordination with Caltrans, the County, and
adjacent agencies to ensure essential, multi-jurisdictional projects are identified, planned, and Safe
System-consistent. Finally, for those components of the Safe System Approach that are outside the
City’s direct purview, we commit to advocating and collaborating with our Vision Zero peers to bring
additional, proven safety tools to Palo Alto.
Palo Alto’s Commitment to Vision Zero and the Safe System Approach
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SAFETY COMMITMENT
RESOLUTION
Resolution for the Council of the City of Palo Alto Approving the 2024 Safe Streets and Roads for All (SS4A)
Safety Action Plan and Committing to Vision Zero
1.The Federal Infrastructure
Investment and Jobs Act
(IIJA) was signed into law
in November 2021. The
law authorized $1.2 trillion
for transportation and
infrastructure spending through
FY 2026. This included the Safe
Streets and Roads for All (SS4A)
grant program.
2.The National Roadway Safety
Strategy (NRSS) was signed into
law in January 2022. Through
the NRSS, the United States
Department of Transportation
committed to a national vision
of zero roadway fatalities and
identified priority action aligned
with the five Safe System
elements.
3.Caltrans’ Strategic Highway
Safety Plan (SHSP) was last
updated in January 2023. In
2020, State transportation
leaders recognized that a
change, known as “The Pivot,”
was necessary to combat the
rise in fatalities and serious
injuries on California’s roadways
through the implementation of
the Safe System Approach.
4.On June 19, 2023, City Council
approved and authorized
the City Manager to execute
a grant agreement with the
Federal Highway Administration
(FHWA) to develop the Palo
Alto Safe Streets and Roads for
All (SS4A)-funded Safety Action
Plan.
5.In August 2023, the City of
Palo Alto contracted with Fehr
& Peers to complete the SS4A
Safety Action Plan. The project
included two community
outreach events, an online
survey and interactive map,
and project status updates
to City Council, Planning and
Transportation Commission
(PTC), Palo Alto Bicycle Advisory
Committee (PABAC), and City/
School Transportation Safety
Committee (CSTSC).
6.The City of Palo Alto’s SS4A
Safety Action Plan is aligned
with the Safe System Approach
and calls for changes to
citywide policies, programs, and
practices to clarify our multi-
modal safety priority. We
acknowledge that these
changes will result in tradeoff
decisions that proactively
provide the opportunity to
reduce severe injuries and
fatalities and may result in
parking loss or increased
vehicle delay at times.
7.To comply with the SS4A
program requirements, the
Palo Alto SS4A Safety Action
Plan must include a public
commitment to the eventual
goal of zero roadway fatalities
and serious injuries from a high
ranking official and/or elected
body in the jurisdiction,
including a timeline or target
for achieving that goal.
8.The City of Palo Alto’s SS4A
Safety Action Plan states that
traffic fatalities and serious
injuries on the City’s roadways
will be reduced to zero by the
year 2035.
The Council of The City of Palo Alto RESOLVES as follows:
SECTION 1. The Council hereby approves the Safe Streets and Roads for All (SS4A) Safety Action Plan and the
goal of eliminating transportation fatalities and serious injuries in the City of Palo Alto by 2035.
Introduced and passed: June 2, 2025.
recitals
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ACKNOWLEDGEMENTS
2023-2025 City Council
Greer Stone Mayor
Ed Lauing Vice Mayor
Greg Tanaka Council Member
Julie Lythcott-Haims Council Member
Lydia Kou Council Member
Patrick Burt Council Member
Vicki Veenker Council Member
2025-2026 City Council
Ed Lauing Mayor
Vicki Veenker Vice Mayor
George Lu Council Member
Greer Stone Council Member
Julie Lythcott-Haims Council Member
Keith Reckdahl Council Member
Patrick Burt Council Member
2024-2025 Planning &
Transportation Commission
Bryna Chang Chair
Keith Reckdahl Vice Chair
Allen Akin Commissioner
Bart Hechtman Commissioner
Carolyn Templeton Commissioner
Doria Summa Commissioner
George Lu Commissioner
2025-2026 Planning &
Transportation Commission
Bryna Chang Chair
Allen Akin Vice Chair
Bart Hechtman Commissioner
Carolyn Templeton Commissioner
Doria Summa Commissioner
Forest Peterson Commissioner
Kevin Ji Commissioner
City/School Transportation Safety Committee
Rose Mesterhazy Chair & Office of Transportation
Lt. Ben Becchetti PAPD
Lara Anthony PTAC SRTS Chair
Melissa Oliveira Deputy PTAC SRTS Chair
Kara Baker PTAC SRTS Event Liaison
Leslie Crane PAUSD Principal
Mike Jacobs PAUSD Administration
Pedestrian and Bicycle Advisory Committee
Bruce Arthur Chair
Nicole Rodia Vice Chair
Alan Wachtel Member
Art Liberman Member
Bill Zaumen Member
Cedric de la Beaujardiere Member
Eric Nordman Member
Jane Rosten Member
Kathy Durham Member
Ken Joye Member
Paul Goldstein Member
Penny Ellson Member
Robert Neff Member
Steve Rock Member
City of Palo Alto Team
Philip Kamhi Chief Transportation Official
Sylvia Star-Lack Transportation Planning Manager
Ozzy Arce Senior Transportation Planner
Charlie Coles Senior Transportation Planner
Katie Heuser Senior Transportation Planner
Rose Mesterhazy Senior Transportation Planner
Ana Lopez Associate Planner
Fehr & Peers
Meghan Mitman
Ashlee Takushi
Alexandra Lee-Gardner
Sean Reseigh
Steve Davis
Terence Zhao
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GLOSSARY
AB Assembly Bill
BPTP Bicycle and Pedestrian Transportation Plan
CIP Capital Improvement Program
Caltrans California Department of Transportation
CSAP Comprehensive Safety Action Plan
CSTSC City/School Transportation Safety Committee
DIB Design Information Bulletin
DP Director’s Policy
DUI Driving Under the Influence
EPC Equity Priority Community
FHWA Federal Highway Administration
HIN High-Injury Network
IIJA Infrastructure Investment and Jobs Act
ITE Institute of Transportation Engineers
KSI Killed or Seriously Injured
LTS Level of Traffic Stress
MPH Miles per Hour
MTC Metropolitan Transportation Commission
NRSS National Roadway Safety Strategy
PABAC Pedestrian and Bicycle Advisory Committee
PCF Primary Crash Factor
PDO Property Damage Only
PTC Planning and Transportation Commission
SB Senate Bill
SHSP Strategic Highway Safety Plan
SRTS Safe Routes to School
SS4A Safe Streets and Roads for All
US DOT United States Department of Transportation
VMT Vehicle Miles Traveled
VTA Santa Clara Valley Transportation Authority
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EXECUTIVE SUMMARY
VISION ZERO GOALS
SafeSpeeds
REDUNDANCY IS CRUCIAL
SAFETY IS PROACTIVE
RESPONSIBILITY IS SHARED
HUMANS ARE VULNERABLE
HUMANS MAKE MISTAKES
DEATH/SERIOUS INJURY IS UNACCEPTABLE
SafeVehicles
Post-CrashCare
Safe RoadUsers
SafeRoads
THESAFE SYSTEMAPPROACH
this safety action
plan has been
developed to align
with the national
and statewide
pivot to the safe
system approach
to achieving
vision zero.
Reduce the likelihood
of crashes citywide for
vulnerable users through
proactive and infused
safety efforts.
Remove barriers to use
proven safety tools, and
discontinue efforts that
perpetuate safety risk.
Prioritize reactive,
grant-funded projects
for the High-Injury
Network (HIN) and
equity priority areas.
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SAFETY FOCUS AREAS
Through crash data analysis, community input, stakeholder
feedback, and systemic risk analysis, this Plan identifies
several focus areas for enhancing safety in Palo Alto:
Pedestrians on
Major Downtown
Streets
Youth
Bicyclists
90° Angle
Conflicts with
Bicyclists of
All Ages
Walk & Roll Bicycle
Routes Crossing
Higher Stress Streets
Driving Under
the Influence
Pedestrians on
Arterials at Night
Residential
Arterials
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EXECUTIVE SUMMARY
HIGH-INJURY NETWORK (HIN)
The High-Injury Network map displays corridors with a disproportionate
share of crashes resulting in fatalities and severe injuries. This Plan
identifies and prioritizes projects that address issues and opportunities on
these corridors as a way to reactively address safety concerns in Palo Alto.
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Equity Analysis
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KEY POLICY AND PROGRAM CHANGES
This Plan also lays out proactive steps the City will take to create a
culture and climate of systemic safety by addressing the key risk factors
and barriers to safety that currently exist in Palo Alto. These include:
The City will commit to
making design, maintenance,
and operations decisions that
prioritize safety, and will build
off of the outreach completed
throughout this Plan
Transportation connections to
Equity Priority Communities
and underserved populations
will be prioritized along Walk
and Roll Routes and key transit
corridors
The City will commit to
support areas zoned for
increased density and
infill development with
transportation facilities and
improvements to enable safer
multi-modal transportation for
present and future road users
The City will look
for opportunities to
institutionalize safety into
all aspects of policies,
planning, programming,
design, implementation, and
maintenance, with a focus on
those efforts that improve
safety at the population
scale through change to
travel patterns, land use
conditions, socioeconomic
considerations, and built
environment provisions
A citywide, proactive Speed
Management Program
following the FHWA Safe
System Speed Management
Framework will guide
location-specific interventions
in all focus areas
Through an audit of the
City’s transportation budget,
funding sources and project
selection/priorities will be
reevaluated to shift toward
more proactive and strategic
opportunities, enabling Palo
Alto to address safety risk
factors more efficiently
The City of Palo Alto will
commit to reducing traffic
fatalities and serious injuries
to zero on the City’s roadways
by 2035.
The City will collaborate
with partners and peers to
make meaningful progress
on cross-jurisdictional and
cross-sector efforts
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10 Palo Alto Safety Action Plan
EXECUTIVE SUMMARY
SAFETY AS A PUBLIC HEALTH CONCERN
The Safe Systems Pyramid builds on established public health practice to illustrate
how interventions that have the largest reach and require the least personal effort will
be the most impactful. This Plan references the Pyramid as the guiding framework to
advance safety in Palo Alto efficiently and holistically. It is a structure for prioritizing
the roadway design and operations tools that will have the most impact for safety
while also collaborating outside the safety silo with other agency and community
stakeholders to engage in upstream and more wide-ranging root cause topics.
Palo Alto’s Safe System Pyramid
Adapted from Ederer, et. al. “The Safe Systems Pyramid: A New Framework for Traffic Safety.” Science Direct, Elsevier, September 2023,
https://www.sciencedirect.com/science/article/pii/S2590198223001525; and Watkins, K & Lieberman, M. “The Safe System Pyramid.”
National Center for Sustainable Transportation, March 2025, https://escholarship.org/uc/item/7h64w30k.
LATENT SAFETY MEASURES
BUILT ENVIRONMENT
SOCIOECONOMIC FACTORS
ACTIVE MEASURES
PASSIVE MEASURES
Affordable housing near transit, zoning
reform, more mode choice options to
get to school, Walk & Roll Routes.
Engineering interventions like curb
extensions, roundabouts, bikeways, SRTS
Walk & Roll routes, and speed management
to get school zones to 20MPH. The BPTP
Update provides an updated project list.
Signal timing upgrades such as
all-pedestiran phases and leading
pedestrian intervals (LPIs)
Driver education programs, Slow
Down campaigns, passive signage
and child safety alert figurines
Signals and signs, bike rodeos,
Core Education programs,
and helmet distribution
INCREASED INDIVIDUAL EFFORT
INCREASED POPULATION HEALTH IMPACT
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IMPLEMENTATION PHASING & SEQUENCING
Within the next five
years, safety will be
institutionalized throughout
the City through updates to
existing policies, programs,
and projects. This will set
a framework for staff to
shift their focus to be more
proactive and systemic, and
tradeoff decisions in project
prioritization and design
will reflect a commitment to
reducing safety risk factors
in our transportation system.
These next step
considerations are color
coded, based on the color of
the tiers in the Safe System
Pyramid:
▲Socioeconomic Factors
▲Built Environment
▲Latent Safety Measures
▲Active Measures
▲Passive Measures
These items are considered
near-term priorities that
can address locations
with risk factors around
exposure (where, when,
and why people are at risk,
with a focus on equity and
schools), likelihood (high
conflict zones), and severity
(locations with high speed
and heavy vehicles).
City staff will:
•Reassess the City’s
CIP funding allocation
and apply for funding
to support mode shift
by implementing
enhancements along
Safe Routes to School
Walk and Roll Suggested
Routes ▲
•Update the
Transportation Impact
Assessment Guidelines
to ensure that risk
reduction for vulnerable
users is a primary
consideration in
development review ▲
•Collaborate with Santa
Clara County Public
Health Department and
the City of San Jose to
partner in acquisition
of trauma center data
sharing to address crash
underreporting and have
a more comprehensive
understanding of
upstream considerations
of crashes through more
in-depth data sets ▲
•Update Public Works
Standard Drawings
and Specifications to
align with Safe System
principles, including
being consistent with
NCHRP 1036 and Caltrans
DIB 94 ▲
•Create a citywide speed
management plan
that sets contextually-
appropriate target speeds
▲
•Collaborate with
neighboring cities,
the County, Stanford
University, Stanford
Research Park, VTA, other
transit providers, and
Caltrans to improve first-
last mile connections to
key routes and improve
transit infrastructure
along major transit routes
▲
•Develop user safety
guidance for e-bikes and
e-scooters that travel in
the City ▲
•Create a community
engagement strategy
that communicates the
City’s commitment to
Vision Zero where safety
is the top priority in
design ▲
•Enhance the culture of
safety with decision
makers and City staff
by having standing
committee meetings
to discuss the progress
on policy/programs
and infrastructure
implementation ▲
•Coordinate media
training for accurate
roadway safety
reporting ▲
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12 Palo Alto Safety Action Plan
TABLE OF CONTENTS
chapter1
A CALL TO ACTION
• Latest Federal and State Policies
• Benchmarking Programs, Practices, And Policies That Influence Safety In Palo Alto
chapter2
ENGAGING THE COMMUNITY
• Community Events
• Online Survey and Interactive Webmap
• Internal Stakeholder Working Group
• Council and Committee Outreach
chapter3
CRASH DATA & AREAS OF EMPHASIS
• Crash Analysis and High-Injury Network Development
• High-Injury Network
chapter4
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
• Systemic Analysis
• Safety Focus Areas
• Equity Considerations
• Roadway Design Countermeasures Toolbox
PAGE 14 PAGE 22 PAGE 28 PAGE 36
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chapter5
SAFETY AS A PUBLIC HEALTH CONCERN
• SocioeconomicFactors
• Built Environment
• Latent SafetyMeasures
• Active SafetyMeasures
• Education
chapter6
REACHING ZERO DEATHS AND SERIOUS INJURIES: A SAFETY ACTION PLAN
•Consistency with SafeSystem
•Updated Program &Policy List
•Updated Project List
•Project Priorities
•Shared Responsibilities
•Future Engagement
•Construction TrafficManagement
•Implementation Phasingand Sequencing
•Funding
•Performance Measures
Appendices
•Appendix A: Federal and StateSafety Guidance
•Appendix B: BenchmarkingSurvey
•Appendix C: Survey andInteractive WebmapResponses from Engagement
•Appendix D: Safety FocusAreas
•Appendix E: CountermeasuresToolbox
•Appendix F: Funding Sources
•Appendix G: UpdatedPrograms and Policies List
•Appendix H: Updated ProjectList
PAGE 50 PAGE 56 PAGE 66
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14 Palo Alto Safety Action Plan
A CALL
TO ACTION
CHAPTER 1
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A CALL TO ACTION
15
*Transportation Injury Mapping System (TIMS), 2018-2022. Excludes property damage
only (PDO) crashes and grade separated Caltrans facilities such as US 101 and I-280.
“We need a national change in mentality. It is time
for a transformation in how people think about
road safety. Together, we can act to change the
culture and expectations. We are so accustomed to
hazards on our roads that we sometimes behave
as if the risks of today’s roadways are inevitable.
But they’re not. People should leave the house and
know they’re going to get to their destination safely.
Once we believe that, and believe in our ability to
collectively make progress, once we demand better,
we will see more positive changes cascading across
governments and industry.”
pete buttigieg
us transportation secretary
JanuaRy 2022
From 2018-20221,132*
Injury crashes occurred
on roadways in Palo Alto,
of which 47 resulted in
fatalities or severe injuries.
The City of Palo Alto’s Safe Streets
and Roads for All Safety Action
Plan was created to fundamentally
shift the way the City of Palo
Alto addresses safety risks and
concerns, by reflecting on systemic
changes needed to institutionalize
safety, and implementing a “safety-
first” lens to intentionally and
proactively reduce, and ultimately
prevent, transportation-related
fatalities and serious injuries by
2035.
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CHAPTER 1
16 Palo Alto Safety Action Plan
latest federal and state policies
SafeSpeeds
REDUNDANCY IS CRUCIAL
SAFETY IS PROACTIVE
RESPONSIBILIT Y IS SHARED
HUMANS ARE VULNERABLE
HUMANS MAKE MISTAKES
DEATH/SERIOUS INJURY IS UNACCEPTABLE
SafeVehicles
Post-CrashCare
Safe RoadUsers
SafeRoads
THESAFE SYSTEMAPPROACH
In recent years, leaders at the
Federal, State, and regional levels
have taken bold and consistent
steps to acknowledge the
persistent and unacceptable level
of severe injuries and fatalities
on our roadways, commit to
eliminating these occurrences, and
follow international best practice
and public health fundamentals
to form a new safety paradigm
in the United States. This has
specifically involved embracing
the Vision Zero goal of safe
mobility for all and adopting the
Safe System Approach as the way
to get there. The United States
Department of Transportation
(US DOT) incorporated the Safe
System Approach as part of its
National Roadway Safety Strategy
(NRSS), adopted in January 2022.
Federal transportation officials
have since unveiled several policies
and programs geared towards the
application and implementation of
the Safe System Approach at the
State and local levels.
The Safe System Approach is
a significant evolution in how
roadway safety is conceptualized.
The Approach includes the key
elements and core principles
as shown in Figure 1, and
acknowledges that mistakes are
inevitable while also asserting that
severe injuries and fatalities are
avoidable on our roadways. This
is a shift in thinking on how to
improve roadway safety; instead of
a primary focus on shifting behavior
through education campaigns or
enforcement, it encourages roads,
vehicles, and policies that are
intentionally designed to prioritize
safety. It involves building layers of
redundancy that function as safety
nets for users – even if someone
makes a mistake on the roadway,
the system as a whole minimizes
the likelihood of serious injury
or death through measures such
as decreased speeds, advanced
vehicle safety technologies,
separation among roadway users
in time and space, and better
post-crash care in the case of
injuries. Some crashes will still
happen, but under the Safe System
Approach, they won’t be nearly as
devastating.
Figure 1:
Safe System
Approach
Source: FHWA
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A CALL TO ACTION
17
This Safety Action Plan (Plan) has been developed to create a project and policy action list, along with the
process to implement and hold the safety stakeholders in Palo Alto accountable for institutional alignment with
the Safe System Approach. This chapter summarizes the primary reference documents and policy considerations
that influenced the direction, decisions, and priorities in this Plan.
We acknowledge these foundational perspectives for the Plan:
Human bodies are vulnerable to injury in a crash
because of kinetic energy, the energy of movement
associated with speed, mass, and angle of impact.
When this energy is strong enough and not
mitigated, the energy transfers to fragile bodies
with severe consequences. In a Safe System these
factors are proactively identified and addressed
through a coordinated and redundant, systems-
based approach.
The most impactful way to address kinetic energy
risk is by acknowledging and systematically
addressing socioeconomic and land use factors that
create the systemic risk, followed by understanding
and enhancing built environment factors, and then
considering passive and active safety tools. This
Plan presents a holistic assessment of the needs
and opportunities for enhancing safety, consistent
with this framing and priority order.
Approaches to safety conventionally focus on
individual behavior or isolated interventions. This
Plan follows the Safe System Approach that focuses
on cross-disciplinary, redundant, and proactive
approaches to create a system where mistakes do
not result in death or serious injury. By building
Safe Road Users, Safe Speeds, Safe Roads, Safe
Vehicles, and Post Crash Care into every layer
of the transportation network, the Plan aligns
stakeholders across disciplines and guides roadway
safety investments, policies, and design decisions
to anticipate human error and minimizes severe
consequences.
This Plan aspires to make safety the default choice:
the easy choice for people as they move about and
the easy choice for roadway planning and design
decisions. This Plan identifies the opportunities to
streamline decision making to prioritize safety and
improve internal alignment in programs, practices,
and policies consistent with the Safe System
Approach.
Figure 2: The Exponential Role
of Speed in Kinetic Energy
(and Associated Injury Risk)
Source: US Department of
Transportation
20 MPH
30 MPH
40 MPH
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18 Palo Alto Safety Action Plan
TABLE 1: FEDERAL AND STATE SAFETY GUIDANCE AND LAWS
Resource Key Elements
Safe Streets and Roads
for All
• Highlights the initiative to prevent roadway deaths and serious injuries by
meeting a nine-point criteria set forth by FHWA.
• Includes a five-year, $5 billion funding allocation for Planning & Demonstration
and/or Implementation grant
FHWA Safe System
Roadway Design
Hierarchy
• Presents a hierarchy that includes four tiers: remove severe conflicts, reduce
vehicle speeds, manage conflicts in time, increase attentiveness and awareness
• Prioritizes improvements and countermeasures that make physical changes to
the roadway system to accommodate human mistakes
FHWA Safe System
Approach for Speed
Management
Introduces a five-stage framework to identify, prioritize, and implement arterial
and residential speed management, a primary tool of the Safe System Approach
FHWA Primer of Safe
System Approach for
Pedestrian and Bicyclists
• Details considerations surrounding pedestrians and bicyclists under each of the
Safe System elements
• Includes a benchmark for agencies to review the policies, programs, and
practices for Safe System consistency
FHWA Informational
Guide: Improving
Intersections for
Pedestrians and Bicyclists
Identifies the foundation and examples of intersection design to facilitate a safe,
accessible, convenient, and comfortable design for all ages and abilities
FHWA Guide for
Improving Pedestrian
Safety at Uncontrolled
Crossing Locations
Provides guidance on the appropriate pedestrian crossing improvements at
uncontrolled crossing locations through the Safe Transportation for Every
Pedestrian (STEP) program
FHWA Safe System-Based
Framework and Analytical
Methodology for
Assessing Intersections
Quantifies kinetic energy transfer, number of conflict points, and complexity of
moments for alternative intersection design through the Safe System method for
Intersections (SSI)
FHWA Improving
Pedestrian Safety on
Urban Arterials: Learning
from Australasia
Emphasizes the movement and place framework and the role of target speed limit
setting and speed management. Guidance is also given on the selection of safety
countermeasures to match the land use context of the roadway.
The Safe Systems Pyramid • Explores a public health lens for the Safe System pivot, and delivers a clear
hierarchy of interventions
• Illustrates how interventions that have the largest reach and require the least
individual effort will be the most impactful for improving system-wide safety
Table 1 below highlights key takeaways from guidance and principle documents that will be discussed
throughout the Plan. Detailed summaries of these reference documents are included in Appendix A.
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A CALL TO ACTION
19
*Level of Service is a roadway performance metric that focuses on vehicle capacity and
delay, which can result in justifications to increase vehicle capacity as a tradeoff to safety.
TABLE 1: FEDERAL AND STATE SAFETY GUIDANCE AND LAWS (CONT.)
Resource Key Elements
NCHRP 1036: Roadway
Cross-Section
Reallocation Guide
•Provides guidance for assessing the tradeoffs involved in the allocation of
limited width of a roadway through community engagement
•Provides guidance on minimum floors for safety standards
•Provides guidance on the use of level of service and future year traffic forecasts
to align with the Safe System Approach
A Safe System Guide for
Transportation: Sharing
this Approach to Lead
your Community to
Action
Includes resources for advocates, practitioners, and stakeholders to communicate
the contents, importance, and benefits of the Safe System Approach at the
community, agency staff, and elected official level to build capacity and
institutionalize these practices into day-to-day operations
ITE Safe System in Impact
Assessment Brief
•Explains how, historically, Traffic Impact Analyses have typically focused on
vehicle throughput and delay
•Prioritizing vulnerable road users integrates safety considerations and helps to
promote land uses conducive to safer conditions for all users
ITE Big Data Briefs Showcases big data and innovative technologies opportunities that can be
leveraged to bolster safety analyses; however, the briefs provide guidance on using
these sources with caution/caveats
Caltrans Director’s Policy
36
Highlights Caltrans’ commitment to eliminating fatal and serious injury crashes by
2050 through the Safe System Approach
Caltrans Director’s Policy
37
Highlights Caltrans’ commitment to creating complete streets that supports active
transportation, transit, and rail to meet the States climate and environmental goals
Caltrans Design
Information Bulletin 94
Integrates the Safe System Approach and Safe System Hierarchy into design
implementation guidance for complete streets projects on the State Highway
System, setting safety “floors” for treatment selection
State Laws
AB 43 Provides flexibility to local jurisdictions to set and be able to enforce context-
sensitive speed limits
AB 413 Requires daylighting intersections up to 20 feet of the approach side of a marked
or unmarked crosswalk to ensure better sight distance between motorists and
vulnerable road users
AB 645 Provides guidance for implementation of speed safety camera pilot programs,
allowing automated enforcement through cameras
SB 743 •Introduces a policy change in the State’s environmental review process for
transportation, quantifying the amount of driving measures by vehicle miles
traveled, an important safety exposure consideration
•Removes level of service as an environmental impact criteria
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CHAPTER 1
20 Palo Alto Safety Action Plan
The benchmarking assessment identified
the most important shifts as being:
The full benchmarking assessment is detailed in Appendix B.
Deploying a proactive speed
management program and
systemic implementation of
default safety tools
Replacing level of service with
level of safety assessments in
design decisions, right of way
reallocation tradeoffs, and
impact assessments
VMT reduction as a safety
strategy and insuring transit-
oriented plans also have first/
last mile safety components
Collaborating with partners
and peers to make
meaningful progress on cross-
jurisdictional and cross-sector
efforts
benchmarking programs, practices, and policies that influence safety in palo alto
The City of Palo Alto has numerous
policies, plans, guidelines, and
standards that positively influence
roadway safety. For example, the
City has prioritized safety through
an established Safe Routes to
School program and is preparing
an updated Bicycle and Pedestrian
Transportation Plan (BPTP). Both
the BPTP effort and the SRTS
program align with the City’s
Comprehensive Plan Transportation
Element that emphasizes active
transportation safety. The BPTP
Update aims to close the gaps in
citywide walking and bicycling
networks and support a shift in
modes of transportation to walking
and bicycling on safer and less
stressful facilities. This Spring, the
City effectively collaborated with
Caltrans to take meaningful steps
to enhance safety on El Camino
Real, a road that has long posed
safety and accessibility challenges
for pedestrians and bicyclists
traveling along and across it.
In some areas, Palo Alto aligns with
Safe System best practices, while in
others, there remains work to do to
fully institutionalize the Safe System
principles and elements. Moving
the needle on safety will not
come from reactive infrastructure
projects alone and will need to
identify and proactively address key
barriers. Safety must be prioritized
in all of the City’s programs and
operations to reach the City’s safety
goals.
The goal of the Safety Action
Plan is to lay the policy and
programmatic framework for future
planning efforts. For example, the
San Antonio Road Area Plan will
reference the BPTP for the type
of bicycle facility that should be
implemented on the corridor and
the Safety Action Plan sets forth the
policy and programmatic guidance
to support implementation.
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21
san antonio Road aRea plan
This Safety Action Plan addresses the impacts of land
use transformation by proactively integrating strategies
that consider the changing transportation needs
brought on by new development patterns, including
prioritizing pedestrian and bicycle safety, providing
guidance on designing streets with lower speed limits,
and stressing the importance of coordinating with
land use planners to ensure new communities are
built with walkable and bikeable infrastructure as a
core component, thereby minimizing traffic-related
injuries and fatalities in newly developed areas. The San
Antonio Road Area Plan is a land use and transportation
planning effort for the San Antonio Road corridor that
Council has zoned for increased housing density per
the Housing Element. Council adoption of this Safety
Action Plan designates San Antonio Road as part of the
HIN, allows the Safe System Approach to be used to
determine roadway facility types needed for future land
use in this area, and confers expanded grant funding
eligibility from sources requiring a safety action plan.
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ENGAGING THE COMMUNITY
CHAPTER 2
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ENGAGING THE COMMUNITY
23
Engagement was a key part
of this Plan to understand the
community’s lived experiences,
existing needs, and future visions
and to complement crash data
with a more complete story of
safety concerns and opportunities.
The engagement process was
done in two stages: Fall 2023 and
Spring 2024
The first stage of outreach took
place in Fall 2023 and included
community events, an online
survey, and council and committee
presentations. The community
event was a collaborative effort
with the ongoing Bicycle and
Pedestrian Transportation Plan
(BPTP) Update. The goal of the
Fall engagement series was to
gather input from the community
on safety concerns and travel
challenges in Palo Alto for workers,
residents, and students, with a
focus on bicycle and pedestrian
issues. The input from the first
phase of outreach was used to
support the analysis and identify
areas and specific issues of focus
for the Plan.
The second phase of outreach
occurred in Spring 2024 and
involved community events
and council and committee
presentations to update key
stakeholders on the feedback
received from the first phase of
engagement. It also helped bolster
and refine the safety focus areas
and high-injury network (HIN).
Throughout the Plan’s process, the
project team collaborated with
the BPTP Update team to share
feedback collected through various
engagement events. Feedback
received through the City’s Office
of Transportation communication
channels were collected, reviewed,
and processed to refine and expand
the project and policy list.
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24 Palo Alto Safety Action Plan
community events
The following is a list of key themes
and feedback we heard at the Bike
Palo Alto event:
• There is general enthusiasm for
bike lanes
• There are concerns about
speeding motorists
• There are concerns for areas
where small bike boulevards
intersect with major
thoroughfares and intersection
controls are not present
• There is a need for enhanced
intersection treatments
• There is a need for more bike
lanes along school routes
• There is a need for additional
connections to trails, grocery
stores, and through downtown
Figure 3:
Pop-Up at Bike Palo
Alto, October 2023
To best reach the community and
better access populations often
underserved in engagement - such
as single parents, those who work
multiple jobs, shift workers, and
lower income residents - outreach
focused on existing events to meet
people where they were.
The project team attended the
Bike Palo Alto community event
in October 2023 at Fairmeadow
Elementary School. The event,
hosted annually by the City,
supports biking in Palo Alto by
sharing bicycle resources and
offering bicycle tune up services.
The engagement focused on asking
community members about their
experiences biking in Palo Alto.
Attendees were also encouraged to
fill out the online survey described
in the Online Survey & Interactive
Map Section.
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Figure 4: Pop-Up at May Fete, April 2024
As part of the second phase
of outreach, the project team
attended the City’s May Fete
event in Spring 2024. The event
was held at Heritage Park, where
participants were asked to share
how they commute to school or
work and identify locations they
frequent on their way by placing
stickers on a map of the City with
the HIN. This information was used
to support the HIN development
and the prioritization of projects.
The following is a list of key themes
and feedback we heard at the May
Fete:
• Parents shared the need to
use side streets to avoid high-
use corridors, and concern
for children riding their
bicycle alone. There were also
concerns shared for vehicles
traveling at high speeds around
key routes to school
• Parents shared a desire for a
crossing at East Meadow Drive
and Bryant Street to connect to
Charleston Road
• Adults shared that they work
in Palo Alto and live in adjacent
cities, but choose driving over
biking for convenience and
safety
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CHAPTER 2
26 Palo Alto Safety Action Plan
85%85%
79%77%
67%
35%
70%68%69%
40%
52%
8%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
Walking Biking
Figure 5: I Feel Safe at...
online survey & interactive webmap
• Sixty-seven percent (67%) of
respondents strongly agreed to
prioritize safety over on-street
parking
• Ninety-two percent (92%)
agree or strongly agree that
pedestrian and bicycle safety
should be prioritized over on-
street parking
• Eighty-five percent (85%) of
respondents strongly support
eliminating traffic fatalities and
serious injuries in Palo Alto
• Ninety-nine percent (99%)
of respondents are willing to
change their driving behavior
to reduce fatalities or serious
injuries
• Eighty-six percent (86%) of
respondents believe that
reducing the number of
lanes or parking should be
prioritized to enhance safety for
pedestrians and bicyclists
Survey respondents were also
asked to share their general
sense of safety at key locations
in Palo Alto, as shown in Figure
5. Participants generally felt safe
walking and biking within their
neighborhoods and many major
commercial corridors, including
California Avenue and Downtown/
University Avenue. Participants
also generally felt safe walking
and biking near California Avenue
Caltrain Station and Palo Alto
Caltrain Station. The majority of
participants felt that there was
an opportunity to enhance safety
for pedestrian and bicyclists
along El Camino Real; only 35% of
respondents felt safe walking and
8% of respondents said they felt
safe biking along El Camino Real.
The full list of survey responses is
included in Appendix C.
In addition to the attitudinal
survey, an interactive webmap
was prepared by the BPTP Update
project team. The webmap,
developed by Kittelson and
Associates, was hosted online
during the same period as the
survey (September to December
2023). Some of the top priorities
listed by residents were improving
the bicycle infrastructure,
implementing safety enhancements
along school routes and in the
Downtown area, and safety
education.
The purpose of the online survey
was to understand general
attitudes about trade-off decisions
for roadways and to understand
community preferences if space
was available for amenities such as
parklets, community seating areas,
or angled parking. The survey asked
questions about the community’s
support for a goal of zero fatalities
and serious injuries; perceived
safety at key destinations and areas
with high pedestrian and/or bicycle
traffic; and whether they were
willing to make trade off decisions
to support safety. The survey
results helped inform Chapter 6,
how the City will approach safety-
related projects and trade-off
decisions moving forward.
The survey received over 760
responses. Key takeaways from the
survey included:
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ENGAGING THE COMMUNITY
27
internal stakeholder working group
An internal stakeholder working
group meeting was held with City
staff across multiple departments
in November 2023. The group
was established in collaboration
with the BPTP Update project
and consisted of staff from the
Office of Transportation, Park and
Recreation, Community Services,
Fire, Safe Routes to School, Utilities
and Engineering, Police, and Public
Works Engineering. The meeting
introduced City staff to the Safe
System Approach and the overall
project. The working session aimed
to understand opportunities to
institutionalize safety within all City
processes, which aligned with the
benchmarking exercise mentioned
on page 18. Members of this group
were part of committee meetings,
and were engaged throughout the
Plan’s process to gather feedback.
council & committee outreach
For each phase of outreach,
the project team met with the
Pedestrian and Bicycle Advisory
Committee (PABAC), the City/
Schools Transportation Safety
Committee (CSTSC), the Planning
and Transportation Commission
(PTC), and City Council. In Fall 2023,
the project and the Safe System
Approach was introduced. The
committees and commissions were
also asked to share feedback on the
Plan’s vision statement.
In Spring 2024, the project team
provided an update on community
engagement and a summary of the
crash analysis. This information
was presented at PABAC, CSTSC,
and PTC. A staff report, along
with feedback shared from the
committees and commissions, was
shared with City Council.
In Late Summer/Early Fall 2024, the
project team shared the draft plan
with PABAC, CSTSC, PTC, and City
Council. The Plan was also posted
for public review and comment.
The Final Plan was shared with all
committees and City Council in
Winter 2024, and final adoption
occurred on XXXX, 2025.
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CRASH DATA & AREAS OF EMPHASIS
CHAPTER 3
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CRASH DATA & AREAS OF EMPHASIS
29
This chapter summarizes the
results of a broad crash analysis
for the City of Palo Alto. This
analysis incorporated crashes
resulting in injuries and fatalities
from 2018 to 2022 available
through the Transportation Injury
Mapping System (TIMS). TIMS was
created by the Safe Transportation
Research and Education Center
(SafeTREC) and reports crashes
using data from the Statewide
Integrated Traffic Records System
(SWITRS).
The data analysis encompasses
a breakdown of fatal and injury
crashes by severity, mode, type,
and primary crash factors. Using
the data and other contextual
factors, seven safety focus areas
were identified.
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30 Palo Alto Safety Action Plan
crash analysis & high-injury network development
data for crash analysis, and the
Safe System Approach focuses
on specifically analyzing and
eliminating crashes where involved
parties are killed or seriously
injured.
In general, crash databases
have been found to have certain
reporting biases, including:
• Crashes involving people
walking, on bicycles, or on
motorcycles are less likely to
be reported than crashes with
people driving
• Property-damage-only crashes
are less likely to be reported
compared to more severe
crashes
• Younger victims are less likely to
report crashes
• Alcohol-involved crashes may
be under-reported
• Race, income, immigration
status, and English proficiency
may also impact reporting, but
there is limited research on
these factors
Citywide bicycle volume data is
not currently available. The City
will continue to monitor data
sources and vendors to identify
opportunities to install bike
counters.
The crash data was spatially
referenced and mapped in GIS.
Each crash was assigned to the
nearest intersection within 250
feet of a major street or 75 feet of
a minor street, or nearest roadway
segment if no intersection was
within range. The database used
will be added to the City’s website
after plan adoption.
Key Considerations of Crash Data-
based Analyses
It is important to note that crash
data is inherently limited in two
ways:
1. The variables provided on
the report form are focused
on those that help assign
“fault” for the purpose of
insurance payouts or criminal
proceedings. As such, they
are skewed to both behavioral
factors and factors associated
with the moment of crash and
the preceding/subsequent brief
periods of time.
2. Contextual elements associated
with the crash, including
roadway design (those
elements both present and
not present in the design)
and socioeconomic and land
use characteristics (the who,
where, when, where, and why
elements of transportation,
many of which are determined
hours, years, or decades before
the crash) are typically not
apparent in crash reports
Thus, while the insights from
this analysis are key inputs to
understanding the safety issues and
opportunities in Palo Alto, they are
not sufficient for understanding or
addressing the full scope of safety
considerations and interventions.
Crash Data Source
Crash data for all travel modes for
the five most recent years of data
available, January 1, 2018 through
December 31, 2022, was collected
using TIMS. TIMS provides
geocoded access to California crash
data using the SWITRS data from
injury and fatal crashes. SWITRS
is collected and maintained by
the California Highway Patrol
(CHP) and contains crashes that
were reported to CHP from local
and governmental agencies. The
California Local Roadway Safety
Manual recommends using TIMS
killed oR seveRely inJuRed
cRash (ksi)
A crash is classified as a KSI if
a person is killed or seriously
injured in the traffic event.
These crashes can result in
catastrophic impacts on the
individual and the families of
those involved. Severe injuries
can cause permanent disability,
lost productivity and wages,
and ongoing healthcare costs,
while fatalities can cause huge
emotional distress and financial
hardships to families.
Severe injuries can include:
• Broken bones
• Dislocated or distorted limbs
• Severe lacerations
• Unconsciousness at or when
taken from the crash scene
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31
Figure 6: Palo Alto Injury Crashes from 2018 to 2022
Notes: 2022 data is still preliminary and is subject to change. The Federal
Covid Emergency started March 13, 2020 and ended May 11, 2023.
Source: TIMS, 2018-2022; Fehr & Peers, 2024
* Transportation Injury Mapping System (TIMS), 2018-2022. Excludes property damage
only (PDO) crashes and grade-separated Caltrans facilities such as US 101 and I-280.
0
50
100
150
200
250
300
350
400
450
2018 2019 2020 2021 2022*
Cra
s
h
e
s
KSI Crashes Non-KSI Crashes
Summary
In the past five years (2018-2022),
1,132 injury crashes2 were reported
in the City of Palo Alto as shown
in Figure 6. This captures two
years of pre- Covid data and three
years after the health emergency
began, reflecting existing roadway
conditions, including recent street
improvements that occurred during
the study period.
Overall, reported crashes in the
City have decreased since 2018,
with the lowest number of crashes
in 2022 (87 crashes). There were
47 total killed or serious injury
(KSI) crashes, including 5 fatalities
and 42 serious injuries, in the
5-year study period. 19 KSI crashes
occurred at night (between the
hours of 9PM - 6AM). In 2020, due
to the COVID-19 pandemic and
fewer people using roads, total
crashes dropped to 164 crashes.
This was significantly lower than
the previous year (317 crashes
in 2019) but higher than 2022
crashes. However, there were 13
KSIs in 2020, which made up 8%
of all 2020 crashes. This pattern
of lower crashes but a higher
proportion of KSIs in 2020 is
consistent with nation-wide trends
of lower vehicle traffic volumes and
higher vehicle speeds.
9
15
13 8
2
375 317 164 192 87
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32 Palo Alto Safety Action Plan
* Insurance Institute for
Highway Safety. “Fatality Facts
2022: Children.” IIHS, June 2024.
https://www.iihs.org/topics/
fatality-statistics/detail/children
0
50
100
150
200
250
300
350
400
2018 2019 2020 2021 2022*
Cra
s
h
e
s
Vehicle Bike Pedestrian
0%
5%
10%
15%
20%
25%
30%
35%
40%
Per
c
e
n
t
of Tota
l
Cra
s
h
e
s
All Crashes.. KSIs
Injury Crash Breakdown
Of the reported 1,132 injury
crashes that occurred in the City
between 2018 and 2022, 361
crashes involved a pedestrian or
bicyclist, as shown in Figure 7.
Pedestrians and bicyclists make
up 32% of all crashes but are
overrepresented in 51% of KSI
crashes (24 out of 47 crashes).
This highlights the vulnerability of
pedestrians and bicyclists among
road users.
Note that the majority of
crashes are car-based. In the
US, car crashes cause 1 of every
4 unintentional injury deaths
of children younger than 13.
Nationally, seventy percent of child
motor vehicle crash deaths in 2022
were passenger vehicle occupants,
16% were pedestrians, and 3%
were bicyclists.*
Figure 7: Modal Breakdown of Palo Alto Injury Crashes from 2018 to 2022
Notes: 2022 data is still preliminary and is subject to change. The Federal
Covid Emergency started March 13, 2020 and ended May 11, 2023.
Source: TIMS, 2018-2022; Fehr & Peers, 2024
243 216 117 130 68
93
71
37 42
14
39
30
10 20
5
Figure 8: Share of Crashes by Crash Type of Palo Alto Injury Crashes from
2018 to 2022
Notes: 2022 data is still preliminary and is subject to change. The Federal
Covid Emergency started March 13, 2020 and ended May 11, 2023.
Source: TIMS, 2018-2022; Fehr & Peers, 2024
15%
7%
4%
9%9%
28%
23%
37%
15%
6%4%
1%
17%
7%
2%2%
11%
3%
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CRASH DATA & AREAS OF EMPHASIS
33
Injury Crashes by Type
Crash types describe how a crash
is reported by law enforcement
based upon the parties who were
involved and generally describe the
way contact was made between
the involved parties, as shown in
Figure 8.
• head-on crashes are between
two vehicles where the primary
point of contact was the front
of both vehicles
• sideswipe crashes are
between two vehicles, where
the primary point of contact
was the side of the vehicles
• rear-end crashes are between
two vehicles traveling in the
same direction where the front
of one vehicle contacts the rear
of another
• broadside crashes are
between two vehicles on
conflicting paths where the
front of one vehicle contacts
the side of another
• hit object crashes are
between a vehicle and non-
vehicular object in or near the
roadway
• overturned crashes are any
type of crash that result in at
least one vehicle rotating 90
degrees or more side-to-side
or end-to-end (also known as a
“rollover”)
• vehicle-pedestrian crashes
are any crash involving both a
motor vehicle and a pedestrian
• unknown/other crashes
describe any reported crashes
that were not consistent with
one of the primary crash types
above, or where crash type
was not coded into the crash
database
Crashes associated with higher
safety risk are overrepresented
by KSI crashes. Of the angle-type
crashes, broadside crashes and
head-on crashes have two of the
highest percentages of KSI crashes.
The angle at which these crashes
occur leads to higher fatalities and
serious injuries. This is particularly
true in crashes between
pedestrians and vehicles; due to
the mass of vehicles and speed
at which vehicles are traveling,
pedestrians are more likely to be
killed or seriously injured in crashes
(see Figure 2).
distRacted dRiving
The Safe System Approach
addresses human mistakes like
loss of attention, distracted
driving, and aggressive driving
by designing road infrastructure
and traffic systems that
anticipate these errors and
minimize their potential
consequences, essentially
creating multiple layers of
protection to prevent severe
crashes even when mistakes
occur; this includes features like
improved visibility, in vehicle
technology, traffic calming
measures, lane departure
warnings, and physical barriers
to separate traffic flows,
effectively mitigating the impact
of a driver’s momentary lapse in
focus or aggressive behavior.
Primary Injury Crash Factors
Primary crash factors (PCFs) are
cited by the responding officer and
based on their judgment of what
contributed to the crashes. PCFs do
not include contextual information
related to the design of the location
that could have been a primary or
secondary contributor to the crash.
• unsafe speed refers to a crash
where a party is identified to be
traveling at a speed exceeding
that deemed reasonable or
prudent for conditions in
violation of CVC 22350
• vehicle right of way refers
to a driver infringing upon the
right-of-way of another party in
violation of CVC 21800-21809
• improper turning identifies a
crash where a party made a left
or right turn in violation of CVC
22100-22113
• traffic signals and signs
describes a party disobeying a
traffic control device, such as a
traffic signal or roadside sign, in
violation of CVC 38280-38302
• driving under influence
identifies a crash where a
driver is found to have been
operating a vehicle or bicycling
while impaired by a substance –
typically alcohol – in violation of
CVC 23152
The most common PCFs reported in
Palo Alto for all crashes, as shown
in Figure 9, are unsafe speed,
improper turning, and vehicle right
of way violation. Comparatively, the
most common PCFs for KSIs in Palo
Alto are improper turning, DUIs,
and pedestrian-related crashes.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 3
34 Palo Alto Safety Action Plan
0%
5%
10%
15%
20%
25%
30%
Per
c
e
n
t
of Tota
l
Cra
s
h
e
s
All Crashes... KSIs
Figure 9:
Share of Crashes by Primary Crash Factors of Palo Alto Injury Crashes
Notes:
1. 2022 data is still preliminary and is subject to change. The Federal
Covid Emergency started March 13, 2020 and ended May 11, 2023.
2. The “Pedestrian-Related” category shown here combines two PCF
categories: Pedestrian Violation and Pedestrian Right of Way Violation.
The former indicates that the pedestrian violated a rule of the road,
such as crossing outside of a crosswalk, where the latter indicates
the driver of a vehicle violated the pedestrian’s right of way. The
Pedestrian Violation category may be overrepresented due to a lack
of clear information related to crash circumstances, and the increased
likelihood that the pedestrian party may be unable to provide their
side of the incident at the time of the crash. For this reason, we have
elected to not show the distinction in these tallies, and instead show all
pedestrian-related crashes in one single category.
Source: TIMS, 2018-2022; Fehr & Peers, 2024
The high-injury network (HIN), as
shown in Figure 10, was developed
to show street segments with a
high number of crashes, including
KSI crashes and crashes involving
vulnerable users (bicyclists,
pedestrians, youth, and seniors)
in the City; 63% of all crashes
occur on only 4% of City streets
as represented by the HIN. This
network illustrates crash trends
geographically throughout the
City and provides a framework
for where to prioritize reactive-
based improvements, which are
frequently grant funded.
Many streets on the HIN overlap
with major streets, including
Caltrans and County owned streets.
El Camino Real, which is owned
and operated by Caltrans, has
the highest proportion of crashes
(14%).
high-injury network
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CRASH DATA & AREAS OF EMPHASIS
35
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Park
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Park
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Park
Bol
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High
School
Gunn
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School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
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Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
High-Injury Network
Crashes (2018-2022)
KSI Crashes
Injury Crashes
High-Injury Network
Caltrans-Owned
City-Owned
County-Owned
KSI Crash
Non-KSI Crash
Caltrans-Owned
City-Owned
County-Owned
Figure 10:
High-Injury
Network
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
36 Palo Alto Safety Action Plan
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
CHAPTER 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
37
1 FHWA. “Safe System Approach for Speed Management.” US DOT, May 2023, https://highways.dot.gov/sites/fhwa.
dot.gov/files/Safe_System_Approach_for_Speed_Management.pdf.
2 ABAG. “Equity Priority Communities.” ABAG, May 2024, https://abag.ca.gov/our-work/equity-priority-
communities.
This chapter presents safety
focus areas identified through a
systemic analysis, as well as key
roadway design countermeasures
applicable to address these focus
areas. The countermeasures
align with the Safe System Design
Hierarchy, which focuses on
eliminating conflicts, reducing
speed, separating users in
space and time, and increasing
awareness.
Systemic analysis is a proactive
approach that extrapolates
crash history to the system by
identifying other locations that are
contextually similar to those with a
history of crashes involving severe
and fatal injuries. It looks at crash
history on an aggregate basis to
identify roadway characteristics of
concern, in addition to looking at
high crash locations. By merging
adjacent road and intersection
features with crash data,
relationships can be uncovered
between contextual factors and the
likelihood of frequent and severe
crashes.
The systemic analysis combined
crash history with contextual data
on roadway characteristics, as well
as input from local stakeholders, to
produce seven safety focus areas
that highlight the most common
and severe crash patterns in Palo
Alto. Full details on the contextual
factors identified for each Safety
Focus Area, crash statistics,
and potential roadway design
countermeasures can be found in
Appendix D.
systemic analysis safety focus areas
Data analysis also included
identifying Equity Priority
Communities.2 Although no areas
within the City have this official
designation, many of the City’s
roadways are used by neighboring
underrepresented communities,
and these roads are identified
as priority locations to ensure
accessibility and enhanced safety
for all those who travel through
Palo Alto.
equity considerations
the city will cReate
a citywide, pRoactive
speed management
pRogRam.1 this will
be a cRitical oveRlay
to location-specific
inteRventions in all of
the focus aReas. this
pRogRam is theRefoRe
Recommended as the
fiRst implementation
step following the
adoption of the plan.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
38 Palo Alto Safety Action Plan
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School
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Driving Under the Influence Crashes
KSI Crash
Non-KSI Crash
Safety Focus Areas
safety focus areas
Driving Under the
Influence Crashes
KSI Crash
Non-KSI Crash
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
39
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Middle
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90° Angle Crashes with Bicyclists at Intersections
KSI Crash
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Bike Facilities
Safety Focus Areas
safety focus areas
90-Degree Angle Crashes
Involving Bicyclists at
Intersections
Bicycle Facilities
KSI Crash
Non-KSI Crash
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
40 Palo Alto Safety Action Plan
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EAST
PALO ALTOMENLO
PARK
STANFORD
UNIVERSITY
LOS
ALTOS
LOS ALTOS
HILLS
PALO ALTO
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Park
Hoover
Park
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Preserve
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Park
Eleanor
Pardee
Park
Ramos
Park
Robles
Park
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Park
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High
School
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High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
Palo Alto
Caltrain
California Ave
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Caltrain Palo Alto
Airport
Mata
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Vehicle Involved Crashes on Residential Arterials
Non-KSI Crash
KSI Crash
Residential Arterial
Safety Focus Areas
safety focus areas
Residential Arterial
Vehicle-Involved Crashes
on Residential Arterials
KSI Crash
Non-KSI Crash
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
41
Pedestrians on
Arterials at Night
KSI Crash
Non-KSI Crash
Residential Arterial
Other Arterial
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e
Cal
i
f
o
r
n
i
a
A
v
e
Pag
e
M
i
l
l
R
d
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r
a
d
o
A
v
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Lom
a
V
e
r
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e
A
v
e
Mead
o
w
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r
Mel
v
i
l
l
e
A
v
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l
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v
e
El D
o
r
a
d
o
A
v
e
Char
l
e
s
t
o
n
R
d
Fa
b
i
a
n
W
y
San An
t
o
nio
R
d
Bay
s
h
o
r
e
R
d
Gree
r
R
d
El Ca
m
i
n
o
R
e
a
l
Los
R
o
b
l
e
s
A
v
e
Wil
k
i
e
W
y
Ara
s
t
r
a
d
e
r
o
R
d
Foot
h
i
l
l
s
E
x
p
y
Han
o
v
e
r
S
t
Hil
l
v
i
e
w
A
v
e
Junipero Serr
a
B
l
v
d
Sta
n
f
o
r
d
A
v
e
Ros
s
R
d
Ma
t
a
d
e
r
o
A
v
e
Ma
y
b
e
l
l
A
v
e
Hom
e
r
A
v
e
Colo
r
a
d
o
A
v
e
Byxbee Park
Mitchell
Park
Hoover
Park
Pearson-Arastradero
Preserve
Greer
Park
Eleanor
Pardee
Park
Ramos
Park
Robles
Park
Bol
Park
Palo Alto
High
School
Gunn
High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
Palo Alto
Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
Mata
d
e
r
o
C
r
e
e
k
Barr
o
n
C
r
e
e
k
Adobe
C
r
e
e
k
Pedestrians on Arterials at Night
Collisions
Non-KSI Crash
KSI Crash
Road Class
Residential Arterial
Arterial
Safety Focus Areas
safety focus areas
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
42 Palo Alto Safety Action Plan
__`101
§¨¦280
∙þ82
Midd
l
e
f
i
e
l
d
R
d
Alm
a
S
t
Brya
n
t
S
t
Ham
i
l
t
o
n
A
v
e
Uni
v
e
r
s
i
t
y
A
v
e
Lytt
o
n
A
v
e
Add
i
s
o
n
A
v
e
Ne
w
e
l
l
R
d
Channing Ave
San
d
H
i
l
l
R
d
Cow
p
e
r
S
t
Embarca
d
e
r
o
R
d
Loui
s
R
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Ore
g
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x
p
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Cal
i
f
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r
n
i
a
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Cal
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f
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a
A
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Pag
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M
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r
a
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a
V
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r
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A
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w
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v
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l
l
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A
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Sea
l
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A
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o
r
a
d
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A
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Char
l
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s
t
o
n
R
d
Fa
b
i
a
n
W
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t
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nio
R
d
Bay
s
h
o
r
e
R
d
Gree
r
R
d
El Ca
m
i
n
o
R
e
a
l
Los
R
o
b
l
e
s
A
v
e
Wil
k
i
e
W
y
Ara
s
t
r
a
d
e
r
o
R
d
Foot
h
i
l
l
s
E
x
p
y
Han
o
v
e
r
S
t
Hil
l
v
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e
w
A
v
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Junipero Serr
a
B
l
v
d
Sta
n
f
o
r
d
A
v
e
Ros
s
R
d
Ma
t
a
d
e
r
o
A
v
e
Ma
y
b
e
l
l
A
v
e
Hom
e
r
A
v
e
Colo
r
a
d
o
A
v
e
Byxbee Park
Mitchell
Park
Hoover
Park
Pearson-Arastradero
Preserve
Greer
Park
Eleanor
Pardee
Park
Ramos
Park
Robles
Park
Bol
Park
Palo Alto
High
School
Gunn
High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
Palo Alto
Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
Mata
d
e
r
o
C
r
e
e
k
Barr
o
n
C
r
e
e
k
Adobe
C
r
e
e
k
Youth Bicyclists Involved Crashes
KSI Crash
Non-KSI Crash
Schools
Safety Focus Areas
Curt
n
e
r
A
v
e
Seal
e
A
v
e
safety focus areas
Youth
Bicyclist
Crashes
KSI Crash
Non-KSI Crash Schools
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
43
W El
C
a
m
i
n
o
R
e
a
l
Alma
S
t
Alma
S
t
Palo Alt
o
A
v
e
Quar
r
y
R
d
Palo
R
d
Embarcade
r
o
R
d
Pear
L
n
El Ca
m
i
n
o
R
e
a
l
Midd
l
e
f
i
e
l
d
R
d
Midd
l
e
f
i
e
l
d
R
d
Willow
R
d
Hom
e
r
A
v
e
Hom
e
r
A
v
e
Chan
n
i
n
g
A
v
e
Univ
e
r
s
i
t
y
A
v
e
Palm
D
r
High
S
t
Wave
r
l
e
y
S
t
Arboret
u
m
R
d
Lytto
n
A
v
e
Encina Ave
Ham
i
l
t
o
n
A
v
e
Pedestrians on Major Downtown Streets
KSI Crash
Non-KSI Crash
Major Street
Downtown
Safety Focus Areas
safety focus areas
KSI Crash
Non-KSI Crash
Major Street
Downtown Area
Pedestrians on Major
Downtown Streets
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
44 Palo Alto Safety Action Plan
__`101
§¨¦280
∙þ82
Midd
l
e
f
i
e
l
d
R
d
Alm
a
S
t
Brya
n
t
S
t
Ham
i
l
t
o
n
A
v
e
Uni
v
e
r
s
i
t
y
A
v
e
Lytt
o
n
A
v
e
Add
i
s
o
n
A
v
e
Ne
w
e
l
l
R
d
Channing Ave
San
d
H
i
l
l
R
d
Cow
p
e
r
S
t
Embarca
d
e
r
o
R
d
Loui
s
R
d
Ore
g
o
n
E
x
p
y
Cal
i
f
o
r
n
i
a
A
v
e
Cal
i
f
o
r
n
i
a
A
v
e
Pag
e
M
i
l
l
R
d
Colo
r
a
d
o
A
v
e
Lom
a
V
e
r
d
e
A
v
e
Mead
o
w
D
r
Mel
v
i
l
l
e
A
v
e
Sea
l
e
A
v
e
El D
o
r
a
d
o
A
v
e
Char
l
e
s
t
o
n
R
d
Fa
b
i
a
n
W
y
San An
t
o
nio
R
d
Bay
s
h
o
r
e
R
d
Gree
r
R
d
El Ca
m
i
n
o
R
e
a
l
Los
R
o
b
l
e
s
A
v
e
Wil
k
i
e
W
y
Ara
s
t
r
a
d
e
r
o
R
d
Foot
h
i
l
l
s
E
x
p
y
Han
o
v
e
r
S
t
Hil
l
v
i
e
w
A
v
e
Junipero Serr
a
B
l
v
d
Sta
n
f
o
r
d
A
v
e
Ros
s
R
d
Ma
t
a
d
e
r
o
A
v
e
Ma
y
b
e
l
l
A
v
e
Hom
e
r
A
v
e
Colo
r
a
d
o
A
v
e
Byxbee Park
Mitchell
Park
Hoover
Park
Pearson-Arastradero
Preserve
Greer
Park
Eleanor
Pardee
Park
Ramos
Park
Robles
Park
Bol
Park
Palo Alto
High
School
Gunn
High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
Palo Alto
Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
Bicycle Walk and Roll Routes and High Stress Streets
Collisions
Non-KSI Crash
KSI Crash
Schools
Education Land Use
Level of Traffic Stress
LTS 3
LTS 4
Walk and Roll Bicycle Routes
Safety Focus Areas
safety focus areas
KSI Crash
Non-KSI Crash
Bicycle Walk and Roll Routes
High Stress Streets (LTS 3)
High Stress Streets (LTS 4)
Bicycle Walk and Roll Routes
and High Stress Streets
Schools
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
45
This Plan is created for everyone
who lives in, studies in, works in,
and visits Palo Alto. Negative safety
outcomes disproportionately affect
disadvantaged communities and
roadway conditions of concern are
frequently located in equity priority
areas as a result of historic under-
investment or roadway location/
sizing decisions. As a result,
identifying and prioritizing projects
and locations that focus on equity-
priority communities and users is a
key focus for safety plans.
The Metropolitan Transportation
Commission (MTC) measures
equity including income, race,
English proficiency, age, disability,
and car-ownership to develop
Equity Priority Communities (EPC),
or designated census tracts with
a significant concentration of
underserved populations. MTC
equity considerations
has not identified any EPCs in Palo
Alto, so this Plan uses other equity
considerations and definitions.
Figure 11 shows the population by
census blocks that has a household
income below the Federal poverty
line. Generally, the number of
peoples throughout the City that
live below the poverty line is very
low. There are some census blocks
where between 10%-20% of the
population lives below the poverty
line. These are located near
downtown, the Alma Street/East
Meadow Drive/Charleston Road
area, near Stanford, and in the
southeast corner of the City near
Foothill Expressway.
While Palo Alto does not have
designated EPC areas, adjacent
communities that include parts of
Stanford and East Palo Alto are EPC
geographies. To best serve those
accessing and using City streets,
this Plan considers roadways that
serve as connections to the City
from these EPC geographies. This
includes the City’s suggested
Walk and Roll Routes for students
who reside in East Palo Alto and
commute to school in Palo Alto, as
shown in Figure 12.
Transit also often serves as the
main mode of transportation for
households where members are
unable to drive or one member of
the family needs to use the car to
get to work or school, and others
in the household need to use
transit. Figure 13 shows the major
transit corridors in Palo Alto, where
bus stops and connections to and
from key destinations could be
prioritized for first/last mile access
consideration to center equity
concerns.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
46 Palo Alto Safety Action Plan
__`101
§¨¦280
∙þ82
Midd
l
e
f
i
e
l
d
R
d
Alm
a
S
t
Brya
n
t
S
t
Ham
i
l
t
o
n
A
v
e
Uni
v
e
r
s
i
t
y
A
v
e
Lytt
o
n
A
v
e
Add
i
s
o
n
A
v
e
Ne
w
e
l
l
R
d
Channing Ave
San
d
H
i
l
l
R
d
Cow
p
e
r
S
t
Embarca
d
e
r
o
R
d
Loui
s
R
d
Ore
g
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n
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x
p
y
Cal
i
f
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r
n
i
a
A
v
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Cal
i
f
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n
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a
A
v
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Pag
e
M
i
l
l
R
d
Colo
r
a
d
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A
v
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a
V
e
r
d
e
A
v
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o
w
D
r
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v
i
l
l
e
A
v
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Sea
l
e
A
v
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o
r
a
d
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v
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Char
l
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s
t
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n
R
d
Fa
b
i
a
n
W
y
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t
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nio
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d
Bay
s
h
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r
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R
d
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r
R
d
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m
i
n
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a
l
Los
R
o
b
l
e
s
A
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k
i
e
W
y
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s
t
r
a
d
e
r
o
R
d
Foot
h
i
l
l
s
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p
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o
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r
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t
Hil
l
v
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w
A
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a
B
l
v
d
Sta
n
f
o
r
d
A
v
e
Ros
s
R
d
Ma
t
a
d
e
r
o
A
v
e
Ma
y
b
e
l
l
A
v
e
Hom
e
r
A
v
e
Colo
r
a
d
o
A
v
e
Byxbee Park
Mitchell
Park
Hoover
Park
Pearson-Arastradero
Preserve
Greer
Park
Eleanor
Pardee
Park
Ramos
Park
Robles
Park
Bol
Park
Palo Alto
High
School
Gunn
High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
Palo Alto
Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
Population Below the Poverty Line in Palo Alto
Percentage Below the Federal Poverty Line
0.000000 - 0.025000
0.025001 - 0.050000
0.050001 - 0.075000
0.075001 - 0.100000
0.100001 - 0.125000
0.125001 - 0.150000
0.150001 - 0.168961
High-Injury Network Equity Analysis
Figure 11:
Population Below
the Federal Poverty
Line in Palo Alto
equity analysis
High-Injury Network 2.5% - 5%
5% - 7.5%
7.5% - 10%
10% - 12.5%
12.5% - 15%
15% - 17.5%
Percentage of Population Below Federal Poverty Line
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
SAFETY FOCUS AREAS & ROADWAY DESIGN TOOLBOX
47
Aras
t
r
a
d
e
r
o
R
o
a
d
University A
v
e
n
u
e
Univ
e
r
s
i
t
y
A
v
e
n
u
e
Qua
r
r
y
R
o
a
d
Alma
S
t
r
e
e
t
Sand
H
i
l
l
R
o
a
d
Lytto
n
A
v
e
n
u
e
San
A
n
t
o
n
i
o
R
o
a
d
Foothi
l
l
E
x
p
r
e
s
s
w
a
y
Embarcad
e
r
o
R
o
a
d
Mead
o
w
D
r
i
v
e
Midd
l
e
f
i
e
l
d
R
o
a
d
El Ca
m
i
n
o
R
e
a
l
Charle
s
t
o
n
R
o
a
d
Oreg
o
n
E
x
p
r
e
s
s
w
a
y
Midd
l
e
f
i
e
l
d
R
o
a
d
Brya
n
t
S
t
r
e
e
t
Brya
n
tStre
e
t
AlmaStre
e
t
Guin
d
a
S
t
r
e
e
t
Nor
t
h
Cali
f
o
r
n
i
a
Ave
n
u
e
Embarca
d
e
r
o
Road
New
e
l
l
R
o
a
d
DanaAvenu
e
Ne
w
e
l
l
Ro
a
d
Channing Avenue
Nor
t
h
Cal
i
f
o
r
n
i
a
Ave
n
u
e
Cole
r
i
d
g
e
Ave
n
u
e
Sa
i
n
t
Fra
n
c
i
s
Dri
v
e
Chu
r
c
h
i
l
l
Ave
n
u
e
Hom
e
r
A
v
e
n
u
e
Nor
t
h
Cali
f
o
r
n
i
a
Ave
n
u
e
Ne
w
e
l
l
R
o
a
d
East Palo Alto Walk and Roll Routes
East Palo Alto Walk and Roll Routes
High-Injury Network
Equity Analysis
equity analysis
Figure 12:
East Palo Alto Walk
and Roll Routes
High-Injury Network
Equity Priority Communities (EPCs)
East Palo Alto Walk and Roll Routes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
CHAPTER 4
48 Palo Alto Safety Action Plan
__`101
§¨¦280
∙þ82
Midd
l
e
f
i
e
l
d
R
d
Alm
a
S
t
Brya
n
t
S
t
Ham
i
l
t
o
n
A
v
e
Uni
v
e
r
s
i
t
y
A
v
e
Lytt
o
n
A
v
e
Add
i
s
o
n
A
v
e
Ne
w
e
l
l
R
d
Channing Ave
San
d
H
i
l
l
R
d
Cow
p
e
r
S
t
Embarca
d
e
r
o
R
d
Loui
s
R
d
Ore
g
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n
E
x
p
y
Cal
i
f
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r
n
i
a
A
v
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Cal
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f
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i
a
A
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Pag
e
M
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l
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R
d
Colo
r
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A
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Lom
a
V
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A
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Mead
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w
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v
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A
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l
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A
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s
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R
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s
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R
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r
R
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m
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Preserve
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Park
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Pardee
Park
Ramos
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Robles
Park
Bol
Park
Palo Alto
High
School
Gunn
High
School
JLS
Middle
School
Greene
Middle
School
Fletcher
Middle
School
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Caltrain
California Ave
Caltrain
San Antonio
Caltrain
Menlo Park
Caltrain
HIN and Transit Corridors in Palo Alto
High-Injury Network
Dumbarton Express Consortium
SamTrans
VTA
AC Transit
Stanford Marguerite Shuttle
Caltrain
Equity Analysis
Caltrain
VTA
SamTrans
AC Transit
Dumbarton Express
Stanford Marguerite
Figure 13:
Transit Corridors
in Palo Alto
High-Injury Network
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49
For each Safety Focus Area,
this toolbox includes a series of
countermeasures from FHWA’s
Proven Safety Countermeasures
list. Key safety countermeasures
are applicable in different roadway
contexts across Palo Alto and
include an associated Crash
Reduction Factor (CRF), where
applicable from the California Local
Road Safety Manual (LRSM). This
toolbox will be used to identify
improvements the City can
implement systemically for each
safety focus area and includes
both quick build solutions as well
as more detailed improvements.
The proposed quick build program
will enable quicker implementation
of temporary treatments to
delivery safety improvements for
all vulnerable road users. The full
toolbox is included in Appendix E.
An overarching and fundamental
tool to address all of the Safety
Focus Areas is a citywide Speed
Management Program. While
Palo Alto generally establishes low
speed limits on many arterials,
speed limit changes alone may
be insufficient for speed to be
contextually appropriate, and
speeding remains the number
one reported cause of crashes in
Palo Alto. A speed management
program will identify locations
where the City can leverage AB
43 to legally enforce speed limits
and to determine roadway design
solutions to encourage motorists
to drive at the lower speed limits.
Note that this plan does not
prioritize arterials over local streets.
The Speed Management Program
will consider all streets in Palo
Alto, both arterial and residential.
Speed management interventions
will be context specific and
prioritized based on how far
above the target speed current
operating speeds are, as well as
other factors associated with the
number of conflicts in the study
location and the exposure level for
road users. Speed management
will also be considered at a
network scale to ensure that
potential spill over effects (such
as cut through or parallel route
diversions) are mitigated.
roadway design countermeasures toolbox The City’s forthcoming speed
management program will
be data-driven and prioritize
locations that are likely to have
high speed angle crashes as
they are more likely to result
in KSIs. Roadway treatments
to achieve target speeds can
include vertical deflections (e.g.,
speed humps, speed tables,
raised intersections), horizontal
shifts (e.g., chicanes), roadway
narrowing (e.g., roadway
space reallocation, lane-
width reduction), intersection
treatments (e.g., closures,
raised intersections, protected
intersections, intersection turn
calming), and signal timing
modifications.
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SAFETY AS A PUBLIC HEALTH CONCERN
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This Plan draws from emerging “Vision Zero 2.0” best practices to look for institutionalization opportunities
and to prioritize efforts that address safety risk at the population scale. The Safe Systems Pyramid builds
on established public health practice to illustrate how interventions that have the largest reach and require
the least personal effort will be the most impactful. This Plan references the Pyramid as the guiding
framework to advance safety in Palo Alto efficiently and holistically. It is a structure for prioritizing the
roadway design and operations tools that will have the most impact for safety while also collaborating
outside the safety silo with other agency and community stakeholders to engage in upstream and more
wide-ranging root cause topics. This chapter discusses the key insights and opportunities for viewing safety
as a public health concern - and opportunity - for Palo Alto.
Figure 14: Palo Alto’s Safe System Pyramid
Adapted from Ederer, et. al. “The Safe Systems Pyramid: A New Framework for Traffic Safety.” Science Direct, Elsevier, September 2023,
https://www.sciencedirect.com/science/article/pii/S2590198223001525; and Watkins, K & Lieberman, M. “The Safe System Pyramid.”
National Center for Sustainable Transportation, March 2025, https://escholarship.org/uc/item/7h64w30k.
LATENT SAFETY MEASURES
BUILT ENVIRONMENT
SOCIOECONOMIC FACTORS
ACTIVE MEASURES
PASSIVE MEASURES
Affordable housing near transit, zoning
reform, more mode choice options to
get to school, Walk & Roll Routes.
Engineering interventions like curb
extensions, roundabouts, bikeways, SRTS
Walk & Roll routes, and speed management
to get school zones to 20MPH. The BPTP
Update provides an updated project list.
Signal timing upgrades such as
all-pedestiran phases and leading
pedestrian intervals (LPIs)
Driver education programs, Slow
Down campaigns, passive signage
and child safety alert figurines
Signals and signs, bike rodeos,
Core Education programs,
and helmet distribution
INCREASED INDIVIDUAL EFFORT
INCREASED POPULATION HEALTH IMPACT
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52 Palo Alto Safety Action Plan
As described in the Latest Federal
and State Policies Section and
Appendix A, the base of the
pyramid focuses on socio-economic
factors, which are those that
fundamentally influence why,
where, when, and how people
travel, and are related to the level
of risk exposure experienced in the
transportation system.
In this way, many of the City’s
existing and planned efforts to
enhance transit and provide mixed-
use, transit oriented, and affordable
housing options can be seen as
critical Vision Zero strategies.
Identifying opportunities to update
land use zoning to promote density
and infill development must be
paired with the commitment to
provide continuous sidewalks,
protected bicycle facilities, and
traffic calming improvements
to slow speeds on high-traffic,
high-speed roadways. This is
also in alignment with the City’s
Comprehensive Plan Transportation
Element and Sustainability and
Climate Action Plan (S/CAP) goals
for reducing vehicle use and
growing walking and biking. In
particular, it is also aligned with the
City’s Comprehensive Economic
Development Strategy to improve
accessibility by embracing walking
and biking solutions to, from, and
within all of the City’s commercial
The next tier of the Pyramid
focuses on the built environment.
The City’s roadway network has
generally been designed for vehicle
throughput. Strategies in this tier
systemically and proactively create
a self-enforcing system where
safety is the default choice for
design decisions in the City and for
those traveling in and through Palo
Alto. As described in Safety Focus
Areas & Roadway Design Toolbox
Section, such interventions can also
improve the experience for walking
and biking and reduce the number
of trips made by car.
The built environment also includes
upgrades to the City’s Green
Stormwater Infrastructure (GSI) and
improves the overall comfort of
pedestrian and bicycle facilities. GSI
can be implemented as part of curb
extensions and green pedestrian
buffers. This infrastructure can
minimize the potential of run-off
pooling in bike lanes and sidewalks,
reduces the urban heat island
effect, and provides education on
meeting the City’s climate action
goals through safety and green
measures.
socioeconomic factors built environment
districts and addressing parking
policies and systems. By recognizing
and rectifying these gaps in the
roadway network, the City creates
opportunities for residents to have
closer access to employment,
education, and medical-related
institutions.
In areas where housing is
planned, the City will prioritize
implementation of continuous
and comfortable pedestrian and
bicycle facilities. This may require
the re-allocation of space within
the existing roadway or removal of
parking.
sRts education
Middle and high school youth
are now the largest share
of PAUSD students walking
and biking to school. The
City will continue to invest in
student education through the
comprehensive Safe Routes
to School program. Working
collaboratively with PTA parents
and PAUSD on education and
encouragement initiatives,
the program has successfully
changed the culture toward
biking and walking for students.
As part of the implementation
of the SRTS Five Year Plan, the
City recently hired a Measure
B-supported Planner to work
exclusively with these youth
on the Safe Routes program.
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53
enhancing the built
enviRonment foR safety
in palo alto
While the toolbox to create this
environment has many proven
countermeasures and a clear
hierarchy, the routine use of
the tools can be limited by City
policies, procedures, programs,
and funding decisions. The
City will address the built
environment through updating
City policies to prioritize safety
enhancements, shifting to
proactive and opportunistic
funding sources, seeking
overlapping opportunities to
include safety enhancements
as part of other projects, and
streamlining implementation
of safety projects. The City
will prioritize the Safe System
Approach in all City plans,
programs, and policies moving
forward. Existing policies
will be updated to follow
the Safe System Approach.
Additionally, all street, land
use, and development projects
will be reviewed for alignment
with Safe System principles.
City staff will also collaborate
with neighboring cities,
the County, and Caltrans to
address roadways owned by
other agencies that are on
the HIN or not aligned with
the Safe System Approach.
Latent safety measures encompass
countermeasures such as signal
timing modifications (for example,
leading pedestrian intervals, or
LPIs), as well as vehicle features
such as lane departure prevention
and automated emergency braking.
Signals are timed for pedestrians
and bicyclists in key areas where
they are high in number, for
example on the Bryant Street
Bicycle Boulevard in downtown.
Leading pedestrian intervals are
also included where possible in
these areas. In addition, signal
timing is adjusted for both the
academic year and summer
sessions at intersections adjacent
to campuses.
The City of Palo Alto will explore
updating additional signal timings
for LPIs and rest in red as well as
arterial traffic calming strategies.
The City also intends to join with
peers in supporting legislation
to allow the use of speed safety
cameras to allow for more
equitable enforcement.
The City of Palo Alto will explore
implementing safe vehicles on City
streets by managing the City’s fleet
choices. At a minimum, all new
City vehicles will include up to date
safety features as required by law.
Beyond City fleets, the City will
deploy curbside management and
Safe Routes to School strategies
that reduce conflicts with high
mass vehicles (trucks and other
heavy vehicles) and vulnerable
road users. The City will also
explore employing TDM strategies
to support alternative modes and
minimize the presence of large City
vehicles when not necessary.
In regard to post-crash care, the
City of Palo Alto will partner with
emergency response and local
public health departments, as well
as Stanford Health Care, to gather
comprehensive data annually.
Stakeholders will also proactively
discuss emergency response,
evacuation, and other priorities to
seek win-win solutions with day-to-
day safety concerns.
latent safety measures
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54 Palo Alto Safety Action Plan
At the top of the Safe System
Pyramid are passive measures,
which generally includes
driver education programs and
campaigns. Although important
in spreading awareness, these
efforts typically require a person
to opt-in, having an impact only at
the individual scale. The City will
continue to partner with Stanford
Injury Prevention/Ecology Action
and other organizations to promote
Active safety measures encompass
countermeasures such as warning
signals and signs, as well as in-
vehicle devices such as seat belts
and potential conflict warnings.
These safety measures are effective
when used, but rely on individual
opt-in (for example, for a driver to
react to signage or to a warning) to
function.
active measures
passive measures
For the City of Palo Alto, active
measures will include additional
transportation demand
management strategies to reduce
drunk driving, by providing
alternative options. The City
will work with local businesses
to offer overnight parking
around restaurants, bars, and
entertainment venues and/or
create programs for additional
transit, microtransit, or shuttle
service during holidays, festivals,
and other large events that
include promotional and proactive
campaigns, schedules, and rates for
fare purchases.
safer bicycling, walking, and driving
practices. In addition to these
programs and events, Palo Alto
will explore developing roadway
safety educational campaigns
asking drivers to slow down and/
or obey the speed limit. The City
will collaborate with traffic safety
advocates and collect and publish
resources that support crash
victims.
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A key pillar of the Safe System Approach requires partnerships and
collaboration across various jurisdictions, with local organizations,
and with the community to be successful. This Plan identifies several
strategies, along with the party/parties responsible for leading and
supporting the action. A timeline for implementation is provided, as well
as performance metrics. These actions will be periodically revisited and
evaluated on whether they achieve the vision of this Plan and contribute
to the Vision Zero goal of 2035. Actions that are successful may be
expanded, while actions that are not successful will be revisited
or eliminated and replaced with other strategies. As conditions and
strategies evolve, the strategies and supporting elements are expected
to evolve as well.
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58 Palo Alto Safety Action Plan
This Plan builds on the City’s
existing safety practices to
ensure consistency with the
Safe System Approach. The Plan
establishes a framework for the
City to guide transportation related
implementation moving forward
to be aligned with the Safe System
Approach. This includes rethinking
how the City prioritizes projects
and allocates funding to address
safety concerns systematically and
proactively. The Plan also includes
guidance for developing projects by
reviewing them through a safety-
first lens. All City transportation
projects should be reviewed to
ensure severe crash risks are
minimized for vulnerable road
users.
consistency with safe system The list shown in Appendix G was
reviewed through a Safe System
lens.
Some key policies include:
• An upgraded traffic calming
program that aligns with the
Safe System Approach
• Media resources to inform
best practices in reporting out
on crashes from a Safe System
Approach
• Develop a rapid response
program (or team) that will
evaluate roadway design and
context of crash locations after
KSI crashes
• Safe routes to work, shopping,
downtown, community
services, and parks that follow
the principles of the Safe
Routes to School program
• CIP auditing to prioritize
projects on the HIN and
those that address speed and
exposure related risks
As a result of the benchmarking
exercises described in the
Benchmarking the Current
Landscape section, the Internal
Stakeholder Working Group section
of this Plan and the Public Health-
based Pyramid recommendations,
an updated programs and policies
list was created. This list includes
recommendations to existing
City policies to streamline safety
projects that are supported by
engagement through this Plan
or the BPTP Update, including
proven safety countermeasures.
Where there was a need for
additional guidance, new policies
and programs were added. These
included policy recommendations
for maintaining complete streets
design guidelines that reflect
updated guidance and best
practices, upgrading City processes
to align with the FHWA Roadway
Design Hierarchy, and looking for
opportunities to develop guidance
around e-bikes and e-scooters.
updated program & policy list
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59
The project list was prepared based
on review of the City’s existing
plans including the Comprehensive
Plan, the City’s Capital Budget,
VTA’s Valley Transportation Plan
2040, the Capital Improvement
Plan, and the City’s 5-Year Repaving
Plan. Requests and comments from
the community received through
the Office of Transportation’s
email or other City staff were also
documented and added next to
the relevant project or policy.
The project list also identifies if
the location is located on a HIN
corridor. The goal of the review
was to filter for projects that could
help achieve the goals of this Plan
and identify opportunities for the
City to institutionalize Safe System
as the projects become further
developed.
The projects were reviewed and
updated to align with the Safe
System Approach and include
additional notes and guidance to
refer to as projects are designed
and implemented. To assist with
prioritization, the project list shown
in Appendix H includes associated
FHWA Roadway Design Hierarchy
tiers based on the projects’
expected outcomes.
updated project list
Key projects along the HIN include:
•Improving pedestrian, bicycle,
and transit facilities through the
intersection at Quarry Road and
El Camino Real
•Implementing a Complete
Streets project on El Camino
Real that integrates bicycle and
transit use on the corridor and
upgrades crossing treatments
at intersections.
•Institutionalizing additional
safety improvements as part of
the repaving program
•Implementing sidewalk and
traffic calming improvements
on Middlefield Road
•Upgrading bicycle facilities
on East Meadow Drive to
protected or buffered bicycle
lanes
•Re-designing San Antonio Road
as part of the San Antonio Road
Area Plan to accommodate the
expected housing on and near
the corridor
Recent safety
success: chaRleston/
aRastRadeRo coRRidoR
pRoJect
Completed in 2024, the City
of Palo Alto’s Charleston-
Arastradero Corridor project
reduced speeds and conflicts
along the roadway by adding
buffered or protected bike
lanes, enhancing pedestrian
crossings, modifying traffic
signal timings for better flow,
and implementing landscaped
medians to reduce lane
changes, ultimately creating a
safer environment for all road
users while optimizing traffic
movement along the corridor.
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60 Palo Alto Safety Action Plan
The FHWA Safe System Roadway
Design Hierarchy provides guidance
on how to prioritize projects when
reviewing development applications
and making land use and
transportation planning decisions.
Projects identified in the project
list, as well as any future projects,
shall prioritize projects in higher
tiers with the goal of first removing
severe conflicts.
Project priorities in the City should
include those with the greatest
potential of reducing kinetic energy
risk (exposure, likelihood, and
severity). Following adoption of
the Safety Action Plan, the City
project priorities
will identify a project prioritization
process. This could include a policy
where projects that are found on
multiple maps (i.e. the HIN, the
Equity Analysis Maps, the BPTP
Network, SRTS Walk and Roll
Maps, pavement maintenance
project maps, etc) receive a higher
implementation priority.
As described in the Equity
Considerations section, project
prioritization also includes projects
in areas with a higher population
living under the poverty line, along
East Palo Alto Walk and Roll routes,
and along transit corridors. While
prioritizing projects is important, the
Safe System Approach emphasizes
redundancy as a key tenet.
Therefore, projects that allow for
redundancy will not be deprioritized
or ignored even if they appear to be
repetitive.
Figure 15: Decision Making Framework
for Roadway Cross-Section Reallocation
Source: TRB, NCHRP Research Report
1036: Roadway Cross-Section Reallocation
The City must work across
departments and with partner
agencies to carry out the projects
and policies listed in Appendix
G and Appendix H and assume
a shared responsibility for the
implementation of the Plan.
The City will use the standing
committees including PABAC,
CSTSC, and PTC to discuss
progress on policy, programs, and
infrastructure implementation.
These committees will receive
updates from the City to ensure
Palo Alto is on track to meet the
Vision Zero goal. These committees
will also work to continue
coordinating the implementation
of this Plan with the ongoing
BPTP Update. The future
success of this plan will require a
comprehensive effort across City
government and the community,
including partnerships with
neighborhoods and community-
based organizations to encourage
engagement and support.
shared responsibilities
Define your limits and set
your goals.
Consider the context
through a safety lens.
Is there enough space to
build a safe road?
yes
What do you want to achieve beyond safety?
no
Work within your constraints to ensure safety
Develop design
options
Evaluate and
choose the
cross section
that serves your
community’s
vision and needs.
Overcome the
physical barriers
to safe road
design.
What happens when you
change your cross section?
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While gathering public input and
collaborating with the community
is a critical part of implementing
projects, it is important to
consider the role of engagement
for safety projects. With the
City’s commitment to eliminating
fatalities and serious injuries,
safety default design elements
will not be included as part of
trade-off discussions through
the engagement process. The
anticipated process of making
design decisions is shown in Figure
15.
Future engagement will build off
the outreach done as part of the
Plan, described in the Engaging
the Community chapter to guide
implementation and decision
making. The outreach conducted
as part of this Plan identified safety
attitudes and safety concerns. The
programs, policies, and projects
included in this Plan address
issues identified through outreach
and align with the attitudes and
non-safety trade off decisions the
community expressed.
The City will continue to explore
incorporating virtual reality or
other digital tools that allow
residents to visualize proposed
changes, as has occurred in the
Rail Grade Separation project.
To further expand outreach
and inclusivity, the City will
continue to conduct outreach
in multiple languages and meet
community members where they
are by hosting events in diverse
neighborhoods.
future engagement
Inform
For projects that require less
contextual specific collaboration,
outreach will be used to inform the
public of the upcoming work and
learn about any additional ways to
make the project more successful
beyond safety improvements. This
will apply to “quick build” projects
included in the countermeasures
toolbox, such as striping changes.
This will also include projects
that are legally required, such as
daylighting (AB 413), or that have
legal basis, such as speed limit
changes (AB 43). Projects that align
with other Plans, such as the BPTP
Update, also fall into this category.
Collaborate
For larger capital projects
that require more detailed
implementation such as protected
bike lanes, or plans that require
additional neighborhood specific
feedback, outreach may need to
be more formalized and require
collaboration with the community.
While additional outreach is
important, projects will continue
to align with the Safe System
Approach. Design decisions will be
made with community feedback
in mind, but safety will be at the
forefront of design decisions,
guided by federal and state
guidance as described in Appendix
A. Examples of this include
interactive workshops, map-based
discussions, pop-up engagement
stations, trusted community
organization partnerships, focus
groups, temporary pilot project
implementation, and design
charrettes.
ab 413
Effective January 1, 2025 AB
413, known at the Daylighting
Law, was created to enhance
pedestrian safety by prohibiting
parking or stopping within 20
feet of a crosswalk (marked
or unmarked), or 15 feet if a
curb extension is present. In
Palo Alto, priority locations
for daylighting include
schools, the Bryant Street Bike
Boulevard, and other high
bike and pedestrian activity
centers. Implementation of the
daylight locations will take into
consideration land use and users
in the area to pair with other
effective safety improvements
such as curb extensions.
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62 Palo Alto Safety Action Plan
Implementing countermeasures,
policies, and projects identified
in the Plan typically requires an
ongoing, longer-term commitment
from the City. To facilitate the
evaluation and prioritization of
funding, it is desirable to consider
the implementation of safety
projects through different time
horizons.
Beyond time horizons, the City will
seek overlapping opportunities
where safety improvements
will be implemented as part
of an upcoming effort such as
the repaving program or CIP.
Implementation will happen
proactively as part of the City’s
impact review process to ensure
that new developments align with
the Safe System Approach and meet
the City’s safety requirements. All
transportation construction projects
will be reviewed to ensure they align
with the Safe System Approach and
follow recommendations in this
Plan.
As this Safety Action Plan builds on
additional roadway safety projects
in Palo Alto, the current backlog
of high priority work requests
and projects will continue to
increase. Some of these requests
are currently requiring a few
months for the Traffic Control
Maintenance team to complete.
implementation phasing & sequencing
neaR-teRm
implementation
Near-Term priorities are
those that can address one or
more key risk factors around
exposure (where, when, and
why people are at risk, with a
focus on equity and schools),
likelihood (high conflict zones),
and severity (locations with
high speed and heavy vehicles).
Many times, these projects will
fall on the high-injury network.
The City will address speed
through self-enforcing roadways
(e.g. lane narrowing and
horizontal/vertical deflection)
and traffic calming measures.
The City will also focus on
projects that reduce exposure
related risks by separating users
traveling at different speeds or
different directions with physical
separation, to minimize conflicts
and reduce the risk of crashes.
These projects have a 5 year or
less timeline.
longeR-teRm
implementation
Longer-term implementation
projects will focus on continued
bicycle, pedestrian, and motor
vehicle safety education and the
implementation of vehicle safety
enhancements. This can include
addressing speed through speed
safety cameras. Although speed
safety cameras are not yet
legal in California, six cities and
Caltrans are testing the cameras,
three being Bay Area cities
(San Francisco, San Jose, and
Oakland). These projects and
programs would fall within the
10 year horizon.
ongoing effoRts
Ongoing efforts, those that
the City should be continually
trying to implement or update,
focus on institutionalizing
the Safe System into existing
projects, policies, and
programs and reprioritizing
funding for strategic planning
and opportunistic projects.
Strategic planning focuses on
projects that prevent fatal and
severe injury crashes through
reducing speeds on roadways
and vulnerable user exposure-
related risks. Opportunistic
projects are projects that
can be folded into existing
funding mechanisms and work
plans such as CIP funding and
developer fees.
It is recommended that the Traffic
Control Maintainer II position in
Public Works (eliminated during the
pandemic) be restored, so City staff
can respond more quickly to add,
maintain, or repair roadway safety
infrastructure such as delineators,
bollards, signage, guardrails, crash
attenuators, faded striping and curb
paints, and other features.
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63
Four primary funding sources are
available to implement safety in
all projects: proactive, responsive,
opportunistic, and discretionary
funding sources. Proactive funding
sources focus on preventing
fatal and severe crashes through
systemic safety efforts. Responsive
funding addresses locations with
a crash history, such as the HIN.
Opportunistic funding uses existing
funding mechanisms and work
plans that have the opportunity
to incorporate safety elements.
Discretionary funding are flexible
responsive sources that allow
the City to be agile in meeting
community needs that may arise
during a given year.
Figure 16 is an example of how
the City will consider using funding
sources in the future through an
audit of the annual CIP budget.
Shifting toward more proactive
and opportunistic funding sources
enables the City to efficiently
address safety upgrades before
a fatal or severe crash occurs.
Appendix F includes a full list of
funding sources.
funding
Figure 16: Safety Funding Sources
existing spending futuRe spending
Proactive funding sources include Safe Streets for All grants,
Safe Routes to School grants, Highway Safety Improvement
plan (systemic focused), and capital spending plan (CSP).
Responsive funding sources include highway
safety improvement plan grants (hot spot focus),
and Vision Zero High-Injury Network project funds.
Opportunistic funding sources include repaving, agency
collaboration and cost sharing, developer contributions,
and other capital projects (e.g., maintenance).
Discretionary funding sources include annual
capital plan surplus budget (as applicable)
and other annual/ongoing funding sources.
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64 Palo Alto Safety Action Plan
performance measures
This Plan is a policy document
and requires regular updates and
monitoring to evaluate its efficacy
and to ensure the City is on track
to achieve zero KSIs by 2035. The
City will monitor the following
performance measures on an
annual basis and make additional
adjustments to the Plan as needed
to meet the zero goal. The goal of
monitoring is to understand if the
measures are effective at reducing
crashes as the City works toward
zero fatalities and serious injuries.
Additionally, ongoing monitoring
TABLE 2: KEY POLICIES AND PROGRAMS
Set contextually appropriate target speeds; prioritize and implement
speed management strategies to meet those targets.
Prioritize transportation connections along Walk and Roll Routes and
key transit corridors
Reflect the base of the Safe System Pyramid by building housing on
transit on corridors where housing will be built
Look for opportunities in the City’s annual CIP budget to include safety
improvements into planned projects
Collaborate with agency partners to acquire crash data from local
hospitals to develop a holistic understanding of the safety landscape
and improve data accuracy
Create a rapid response program to evaluate roadway desig and context
of crash locations after KSI crashes.
The transportation network may be
affected during construction. The
City will develop a Construction
Traffic Management Plan to
manage traffic and circulation while
projects are under development.
Traffic Control Plans traffic
control devices and signage shall
conform to the latest revision of
the California Manual on Uniform
Traffic Control Devices (CA-
MUTCD) and Caltrans Standard
Specifications and Plans.
Reviewers will ensure that, to the
extent possible, pedestrian and
bicycle facilities are maintained
during construction. Where this is
not feasible, safe and alternative
facilities will be temporarily
implemented. These facilities will
prioritize separation and follow the
most direct path for pedestrians
and bicyclists, and sight distance
will be evaluated to improve
visibility. Clear signage is important
to communicate new traffic
patterns to pedestrians, bicyclists,
and drivers.
construction traffic management
will help to identify locations with
high propensity for KSIs based on
exposure, likelihood, and severity.
Historic crash patterns can inform
these considerations, but design
decisions will be proactive and
based on reducing safety risk.
Every five (5) years, the City will
update their Safety Action Plan
to reevaluate the crash data
and performance measures.
Performance measures will be
added or removed to meet the goal
of reducing fatal and severe injury
crashes to zero.
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65
TABLE 3: PERFORMANCE MEASURES
Measure
Plan Implementation
The number of miles of intersections improved
The percentage of streets where the operating speed matches the target speed
The number of projects implemented with the systemic deployment of countermeasures
Policy and Programmatic Changes
The provision of continuous sidewalks, protected bicycle facilities, and traffic calming improvements alongside
land use zoning changes
Set contextually appropriate target speeds and prioritize and implement speed management strategies to
meet those targets
Standardize the selection and implementation of pedestrian and bicycle improvements based on contextual
factors such as speed and volume
The prioritization of projects for transportation connections to Equity Priority Communities and underserved
populations along Walk and Roll Routes and key transit corridors
The collaboration with transit, land use, and social service partners for strategies at the base of the Safe
Systems Pyramid
The review and reprioritization of the City’s annual CIP budget to shift funding toward proactive and
opportunistic opportunities to efficiently address safety priorities
The collaboration with agency partners to make meaningful progress on cross-jurisdictional efforts
The sharing of resources for media to inform best practices in reporting on crashes.
The creation of a rapid response program to evaluate roadway design and context of crash locations after KSI
crashes
City-Wide Crash Statistics
The number of KSI crashes on the High-Injury Network
The number of crashes where the crash type was identified as unsafe speed
The number of DUI-related crashes
The number of crashes on key transit corridors
The number of crashes on Walk and Roll Routes
The number of youth bicyclist-involved crashes
The number of youth pedestrian-involved crashes
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66 Palo Alto Safety Action Plan
APPENDIX A:
FEDERAL &
STATE SAFETY
GUIDANCE
ss4a
The Safe Streets and Roads for All (SS4A) grant
program was established by the Bipartisan
Infrastructure Law in 2022, centered around the
Department of Transportation’s National Roadway
Safety Strategy and its goal of zero deaths and serious
injuries on America’s roadways. It will provide $5
billion in grant funding over its five-year duration to
develop and implement safety plans and projects.
The SS4A grant program provides funding for local
agencies to create Comprehensive Safety Action
Plans (CSAPs). It also provides funding to implement
safety projects, but only to those agencies that
have an adopted CSAP or an equivalent. In order to
qualify as a CSAP (and allow an agency to be eligible
for implementation planning grant funding), a plan
must meet a nine-point criteria as set forth by the
Department of Transportation. The USDOT includes
an official commitment and goal to eliminate roadway
fatalities and serious injuries; the creation of a
standing task force or working group that will lead
and monitor the implementation of the plan; data-
driven safety analysis; public engagement and inter-
governmental collaboration; consideration of equity in
the planning process; assessment of current policies
and guidelines to identify changes that will better
prioritize safety; identification of a comprehensive set
of projects and strategies that address safety issues;
posting of the plan online along with description
of how future progress will be measured; and that
the plan would be updated every five years.
The Safe System Roadway Design Hierarchy
Source: FHWA
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FEDERAL AND STATE GUIDANCE
67
fhwa resources
Safe System Roadway
Design Hierarchy
The Safe System Roadway
Design Hierarchy (Hierarchy),
created in 2024, provides
guidance in contextualizing and
assessing infrastructure-based
countermeasures and strategies on
their alignment with the principles
of the Safe System Approach.
The Hierarchy classifies
countermeasures into four tiers,
from most to least aligned with Safe
System principles. These tiers are:
• Removing severe conflicts,
which will act to eliminate
high-risk conditions that
involve users with different
speeds or moving in different
directions sharing space. This
tier includes countermeasures
that remove potential points
of conflict (for example,
removing conflicting turning
movements), and those that
separate vulnerable users from
vehicles in space (for example,
protecting people biking
through a separated bike lane).
• Reducing vehicle speeds, which
reduces the kinetic energy
present within systems and
thereby reduces the severity
of crashes that do occur. As
driver behavior - especially
when it comes to speed - is
highly influenced by roadway
features, countermeasures that
reduce prevailing speeds can
include lane narrowing and
features that channelize vehicle
traffic such as median islands.
• Managing conflicts in time,
which covers instances (such
as intersections) where space
needs to be shared between
different users, but where
they can be separated in time.
An example is the Leading
Pedestrian Interval, which
allows people walking to
have a ”head start” interval
at a signalized intersection
before conflicting vehicle
traffic enters the crosswalk.
• Increasing attentiveness and
awareness, which involves
alerting users to conflicts and
potential risks, will involve
countermeasures such as
intersection daylighting
and warning signage.
Crucially, the Hierarchy
prioritizes improvements and
countermeasures that make
physical changes to the system
for the whole population as
more effective than measures
that rely on roadway users and
individual decisions. This is
consistent with the Safe System
Approach’s central premise that
humans make mistakes, and
that the roadway system will
explore designs to accommodate
them through redundant and
proactive interventions.
In addition to presenting this
tiered hierarchy as a framework for
understanding countermeasures
as they relate to the principles
of the Safe System Approach,
the guidance also presents
examples of both common
and novel countermeasures
that fall under each tier.
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68 Palo Alto Safety Action Plan
Safe System Approach For
Speed Management
Speeding continues to be one
of the leading causes of crashes
across the country, especially
those causing fatalities and severe
injuries, and the relationship
between higher speeds and
increased crash severity is well-
documented. The 2023 report
on the Safe System Approach for
Speed Management provides
targeted recommendations around
speed management. The report
notes the need for agencies to
place safety and the prevention
of injury crashes (as opposed to
throughput or travel times) as the
highest priority when it comes to
speed setting on roadways, and
highlights the need to change
the physical design and context
of the roadway beyond merely
changing regulatory speed limits
in order to achieve target speeds.
The report outlines a five-stage
framework to speed management
that is consistent with the Safe
System Approach. The process
begins with establishing a vision
and building consensus within the
community to manage speeds;
the creation of a strategic safety
plan, such as this Plan will serve
this purpose. Second, speed data
will be collected and analyzed,
which will help both guide the
rest of the process and provide
the backing to build public
support. Third, locations for speed
management will be prioritized
proactively, taking into account
both crash and speeding history
as well as contextual factors (such
as the presence of vulnerable
users or traffic generators like
schools and commercial areas).
Countermeasures will then be
selected for prioritized locations.
Finally, ongoing monitoring and
evaluation will be conducted
to ensure efficacy and allow
for flexibility and adjustment.
The report also provides real-
world case studies of how these
principles were applied in practice.
Primer On Safe System Approach
For Pedestrians And Bicyclists
The Primer on Safe System
Approach for Pedestrians and
Bicyclists (Primer), released in
2021, emphasizes the importance
of protecting pedestrians
and bicyclists, as vulnerable
users, under the Safe System
Approach. The Primer details
the considerations surrounding
pedestrians and bicyclists under
each of the five elements of the
Safe System Approach – Safe
Speeds, Safe Roads, Safe Vehicles,
Safe Road Users, and Post-Crash
Care. It also provides strategies
and actions that can be taken
at the Federal, State, and local
levels towards implementing
the Safe System Approach.
Also included in the Primer is
an appendix on benchmarking
policies, programs, and practices
for Safe System consistency.
Informational Guide:
Improving Intersections For
Pedestrians And Bicyclists
The Informational Guide: Improving
Intersections for Pedestrians
and Bicyclists, released in 2022,
highlights the importance of
designing intersections to facilitate
safe, accessible, convenient,
and comfortable walking and
bicycling. Part 1 of the guide
lays the foundation for including
pedestrians and bicyclists at
intersections, creating a place
for all ages and abilities. Part 2
provides examples of designs
for various intersection types
and design considerations.
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FEDERAL AND STATE GUIDANCE
69
Guide For Improving Pedestrian
Safety At Uncontrolled
Crossing Locations
The Guide for Improving
Pedestrian Safety at Uncontrolled
Crossing Locations, released in
2018, provides guidance on the
appropriate pedestrian crossing
improvements at uncontrolled
crossing locations. This guide,
often referred to as STEP, is part of
the Safe Transportation for Every
Pedestrian program (STEP) whose
purpose is to help transportation
agencies address countermeasures
with known safety benefits at
uncontrolled crossing locations.
Safe System-Based Framework
And Analytical Methodology
For Assessing Intersections
The Safe System-Based Framework
and Analytical Methodology for
Assessing Intersections report,
released in 2021, outlines a Safe
System method for Intersections
(SSI) method that practitioners
can apply in the course of the
typical project development
process, with commonly-available
data to produce quantifiable
measures of effectiveness (MOEs)
that then allow for comparisons
across alternative designs for
an intersection. The focus of
the report is to align with the
Safe System principle of limiting
and managing safety risk in
the transportation system. The
metrics produced by the SSI
method can be used to quantify
kinetic energy transfer, number
of conflict points, and complexity
of movements, to identify designs
that align best with that principle.
Improving Pedestrian Safety on
Urban Arterials: Learning from
Australasia
The Improving Pedestrian Safety
on Urban Arterials: Learning from
Australasia report, part of its
Global Benchmarking Program,
was released in 2023 to document
lessons learned from FHWA
researchers’ review of literature,
practices, and tour of its case
studies in Australia, New Zealand,
and adjacent islands (collectively
referred to as “Australasia” in the
report). These jurisdictions have
operated under a Safe System
framework since the early 2000’s,
and the report provides key
takeaways that can be learned
in the American context.
A primary shift in mindset is
treating walking as the elemental
form of transportation, shaped
by policies and laws that put
human wellbeing at the center
of policy goals. Another key
takeaway is the interconnectedness
between movement and place,
acknowledging that planning for
land uses accommodating for
active transportation modes and
transit can create places that
are safer and less autocentric.
Finally, there is an emphasis on
the interdisciplinary nature of
planning for pedestrian safety – as
is in the Safe System Approach –
that transportation issues must
not be siloed in order to generate
effective, cross-cutting solutions.
other national guidance
In addition to policy and guidance
from federal agencies, other
national-level documents provide
additional guidance towards
applying and implementing the Safe
System Approach for local agencies.
The Safe Systems Pyramid
The Safe Systems Pyramid is a
new framework for traffic safety
proposed in a 2023 paper by David
Ederer of the Center for Disease
Control (CDC), along with his co-
authors Rachael Thompson Panik,
Nisha Botchwey, and Kari Watkins.
Ederer’s paper adapts the Health
Impact Pyramid framework into the
Safe Systems Pyramid for roadway
safety practitioners. Building on
established public health practice,
the Pyramid illustrates how
interventions that have the largest
reach and require the least personal
effort will be the most impactful.
The Pyramid also relates energy to
exposure. It explains how the many
possible safety interventions differ
in their effectiveness at reducing
risk in the transportation system
by prioritizing interventions that
reduce exposure to kinetic energy
transfer at the system level. Those
that require more individual effort,
such as Slow Down campaigns,
have the least impact on improving
system-wide safety. Meanwhile,
those that change the quality
of people’s lives and the built
environment in which they travel
more broadly, such as affordable
housing near transit, zoning reform,
traffic calming, and limiting crossing
distances at intersections, have
the largest impacts on safety.
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APPENDIX A
70 Palo Alto Safety Action Plan
At the top of the Safe System
Pyramid is education, which
generally corresponds to Tier 4
of the Safe System Hierarchy and
encompasses driver education
programs and campaigns – for
example, asking drivers to slow
down and obey the speed limit. As
the authors of the paper note, “the
need to urge behavioral change is
symptomatic of failure to establish
contexts in which healthy choices
are default actions,” and education
programs are thus considered
to be most reliant on individual
behavior and least effective in
producing improvements.
Below education on the Pyramid are
active and latent safety measures,
which generally correspond to
Tier 3 of the Hierarchy. Active
safety measures encompass such
countermeasures as warning signals
and signs, as well as in-vehicle
devices such as seat belts and crash
warnings. These safety measures
are effective when used, but rely
on individual opt-in (for example,
for a driver to react to signage or
to a crash warning) to function.
Latent safety measures encompass
countermeasures such as signal
timing modifications (for example,
leading pedestrian intervals
[LPIs] that create redundancy), as
well as vehicle features such as
lane departure prevention and
automated emergency braking.
Latent measures are considered
more effective than active
measures, as they require less
individual opt-in, but their efficacy is
still limited by the fact that they are
applied individually. For example,
Palo Alto’s Safe System Pyramid
Adapted from Ederer, et. al. “The Safe Systems Pyramid: A New Framework for Traffic Safety.” Science Direct, Elsevier, September 2023,
https://www.sciencedirect.com/science/article/pii/S2590198223001525; and Watkins, K & Lieberman, M. “The Safe System Pyramid.”
National Center for Sustainable Transportation, March 2025, https://escholarship.org/uc/item/7h64w30k.
LATENT SAFETY MEASURES
BUILT ENVIRONMENT
SOCIOECONOMIC FACTORS
ACTIVE MEASURES
PASSIVE MEASURES
Affordable housing near transit, zoning
reform, more mode choice options to
get to school, Walk & Roll Routes.
Engineering interventions like curb
extensions, roundabouts, bikeways, SRTS
Walk & Roll routes, and speed management
to get school zones to 20MPH. The BPTP
Update provides an updated project list.
Signal timing upgrades such as
all-pedestiran phases and leading
pedestrian intervals (LPIs)
Driver education programs, Slow
Down campaigns, passive signage
and child safety alert figurines
Signals and signs, bike rodeos,
Core Education programs,
and helmet distribution
INCREASED INDIVIDUAL EFFORT
INCREASED POPULATION HEALTH IMPACT
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FEDERAL AND STATE GUIDANCE
71
while automated braking is superior
to a warning signal that warns the
driver to manually brake, only those
who choose and have the means
to drive a vehicle with the feature
will have access to this technology.
Further down on the pyramid is
the built environment level, which
corresponds to Tiers 1 and 2 of the
Hierarchy and refers to physical
alterations to the roadway that
promote slower speeds, physically
separate vulnerable users, and
reduce the number of high-risk
conflicts. Such interventions can also
improve the experience for walking
and biking and reduce the number
of vehicle trips by encouraging
mode shift. Unlike the higher levels
of the pyramid, changes to the
environment create contexts that
encourage safer user behaviors
(for example, narrower lanes that
induce lower speeds), and are
thus less dependent on active user
participation and are more effective.
Finally, the socioeconomic factors
level lies at the base of the
pyramid. Typically, roadway safety
interventions do not go beyond the
roadway infrastructure, but today’s
safety outcomes are inexorably
linked by socioeconomic factors of
the places that our roadways serve.
Across the country, communities of
color and low-income communities
are disproportionately exposed to
the most dangerous roadways that
feature high speeds, high traffic
volumes, and outdated design and
safety features. Moreover, many
communities across the country
are also trapped by a lack of viable
alternative transportation options
as a result of car dependency – a
crisis that is likely going to persist
as the national phenomenon of
the suburbanization of poverty
continues. These are overarching
socioeconomic factors that
dictate urban form and the built
environment, which in turn dictate
safety outcomes. This category of
interventions is often considered
outside the traditional purview
of transportation professionals,
as they must come in the form of
policy around land use, zoning, and
economics that go beyond (but
work in tandem with) transportation
policy. However, they also must be
considered when attempting to
address roadway safety, as these
socioeconomic factors form the root
causes of roadway safety issues.
The pyramid will be seen as a
structure for prioritizing the
roadway design and operations
tools that will have the most impact
for safety while also collaborating
outside the safety silo with other
agency and community stakeholders
to engage in upstream and more
wide-ranging root cause topics.
NCHRP 1036: Roadway Cross-
Section Reallocation Guide
NCHRP Report 1036, the Roadway
Cross-Section Reallocation
Guide, was developed in 2023
as a tool for practitioners to use
in the development of roadway
cross-sections that better assess
the tradeoffs that are involved
in the allocation of the limited
width of a roadway. The guide
begins with the premise that
roadway space is scarce, and
trade-offs are inevitable, and
provides guidance for planning
roadway cross-sections that center
community priorities for that
limited space. The guidelines also
infuse Safe System considerations
by establishing minimum floors
for safety standards, such as the
provisions of pedestrian and
bicycle facilities and minimum
widths for sidewalks and bike
lanes. Finally, the guide discusses
approaches for community
engagement and operational
analysis to facilitate the decision-
making process consistent with
the goals and minimum standards
outlined in the guide. The guide
also includes a companion Excel
spreadsheet that can be used for
new roadway and retrofit planning.
A Safe System Guide For
Transportation: Sharing
This Approach To Lead Your
Community To Action
The Safe System Guide for
Transportation: Sharing this
Approach to Lead your Community
to Action was commissioned by
the AAA Foundation for Traffic
Safety and serves as a resource
for advocates, practitioners,
and stakeholders at the local
community level implementing
the Safe System Approach.
Specifically, it offers guidance on
how to communicate the contents,
importance, and benefits of
the new approach to both key
stakeholders and the public and
is a primary resource for creating
culture shifts in agencies and
communities towards Safe System
practices and building capacity
within agency staff and elected
officials to institutionalize these
practices in day-to-day operations.
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72 Palo Alto Safety Action Plan
resources from ite safety council
The Institute of Transportation
Engineers (ITE) has developed a
number of technical briefs that
provide guidance on how the Safe
System Approach fits into specific
disciplines within transportation
planning and engineering.
Two briefs from 2022 and 2023,
respectively titled “Incorporating
Big Data into Safety Analysis: An
Integrated and Proactive Approach”
and “Applications of Big Data
in Safety Analysis”, explore the
ways in which big data sources,
such as near-miss, hard-braking,
and speeding data, can be used
to bolster safety analyses. They
augment traditional data sources
such as crash data, which tend to
be reactive in nature and can suffer
from small data sample sizes. The
briefs offer case studies on how big
data can be leveraged in roadway
safety planning and provide
guidance around how to use these
sources responsibly and informedly.
The 2022 brief “Essential
Components of Incorporating
Safety in Transportation Impact
Analysis” provides guidance around
institutionalizing the Safe System
Approach in transportation impact
analyses (TIAs) by moving beyond
the traditional model of using
vehicle throughput and delay
times as the primary quantifiers
of transportation impacts, and
instead prioritizing vulnerable
users such as bicyclists and
pedestrians. This produces TIA
processes that integrate safety
considerations and helps promote
land uses that are conducive to
safety for all modes of travel.
The 2023 brief “Institutionalizing
the Safe System Approach in
Local Road Safety Plans” provides
guidance for aligning the older,
pre-Safe System Approach adoption
LRSP program with Safe System
standards. The brief matches
the components to the LRSP
with their counterparts in the
CSAP requirements outlined in
the SS4A program and identifies
locations where the Safe System
Approach can be incorporated in
the roadmap to creating an LRSP.
california policy considerations
The California Department of
Transportation (Caltrans), like
Federal authorities, has also
adopted the Safe System Approach
and committed to Vision Zero.
Similarly, recent legislation at
the State level has supported
prioritization and cross-department
collaboration consistent with the
Safe Systems Pyramid strategies
and hierarchy. As shown in the
graphic below, several Caltrans
Deputy Directives (DD) and
Directors’ Policies (DPs) as well as
State Senate and Assembly Bills
have been essential policy building
blocks to support the ongoing
Safe System Pivot in California.
DP 36
In Caltrans Director’s Policy (DP)
36, made effective in February
of 2022, the agency committed
to eliminating fatal and serious
injury crashes by the year 2050,
and committed to achieving this
goal through the application of
the Safe System Approach.
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73
DP 37
DP 37, issued in December 2021,
establishes creating complete
streets that support people
walking, biking, taking transit,
and accessing passenger rail. It
recognizes these priorities as a
means of advancing State goals in
climate and the environment, in
public health, and in equity and
repairing harm to underserved
communities. It also recognizes
complete streets as valuable
community spaces that can boost
economic vitality and resiliency.
To these ends, it directs that “all
transportation projects funded
or overseen by Caltrans will
provide comfortable, convenient,
and connected complete streets
facilities for people walking,
biking, and taking transit or
passenger rail unless an exception
is documented and approved.”
DIB 94
Caltrans Design Information
Bulletin (DIB) 94, entitled
“Complete Streets: Contextual
Design Guidance,” is a set of
design implementation guidance
for complete streets projects
on the State Highway System
that integrates the Safe System
Approach and reflects the Safe
System Hierarchy. DIB 94 was
published in January 2024, and
applies DP 37 with an eye towards
specific implementation.
DIB 94 is applicable to State
highways located in an urban or
suburban area, or that act as a rural
main street, where posted speeds
do not exceed 45 MPH and where
at least one bicycle, pedestrian,
or transit facility is present. As
such, DIB 94 is applicable to many
of the State highway facilities in
the region that feature sizable
crash histories or crash risk
factors as identified by this Plan.
For each of the contexts that it
covers – city centers, other urban
areas, suburban areas, and rural
main streets, DIB 94 sets minimum
expectations for the provision
of complete streets facilities like
crosswalks, sidewalks, bicycle
facilities, and others. These
expectations are set with the
surrounding context in mind and
include instructions, guidance, and
recommendations on implementing
specific complete streets features
and countermeasures, ranging
from pedestrian beacons to lane
narrowing. Caltrans intends for DIB
94 guidance to create “context-
sensitive facilities that serve
travelers of all ages and abilities.”
Recommended Bicycle Facilities
for Urban Areas, Suburban Areas,
and Rural Main Streets Based on
Average Daily Traffic (ADT) and
Posted Speed Limits
Source: Caltrans, DIB 94
Note: The facility selection process
should begin by identifying
opportunities to provide the most
physical separation for bicyclists.
Bicycle facilities should be reviewed
and evaluated using the speeds
and annual daily traffic (ADT) of
the existing route to determine the
appropriate bicycle facility as shown
in the figure above.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX A
74 Palo Alto Safety Action Plan
AB 43
California Assembly Bill (AB) 43
was passed in 2021 to provide
additional flexibility to local
jurisdictions to set speed limits
on their roadways. Specifically,
it offers them a means to lower
speed limits on corridors that meet
additional criteria as noted below.
Cities will have increasing flexibility
starting in 2024 to enforce context-
sensitive speed limits. AB 43
features the following five major
components, focused on giving
local jurisdictions more flexibility
in setting speed limits, especially
regarding vulnerable road users:
• Engineering & Traffic Survey
(E&TS): An option to extend
enforceable time period
• Post E&TS: An agency can
elect to retain current or
immediately prior speed limit
• Speed Limit Reduction:
Reduction of additional 5
mph based on several factors,
including designation of
local “Safety Corridors”
• Prima Facie Speed Limits:
Options for 15 and 25
mph in certain areas
depending on context
• Business Activity Districts:
Option for 20 or 25 mph
• In particular, the designation
of “Safety Corridors” could be
applied to roadways where
the highest number of serious
injury and fatality crashes occur,
identifying specific locations
or corridor-level segments
with high crash occurrences,
and stratified by mode. These
designations must be approved
by a professional engineer.
AB 413
AB 413, passed in October 2023,
requires daylighting intersections
to ensure better sight distance
between motorists and vulnerable
road users crossing the roadway.
The law would require cities to
prohibit where drivers may park,
stop, or leave any vehicle (e.g.,
on a sidewalk, in a crosswalk,
etc.) to within 20 ft of the
approach side of a marked or
unmarked crosswalk, unless
authorized by a local ordinance.
AB 645
AB 645, the speed safety
camera pilot program, allows
for automated enforcement
through cameras. Deployment
of automated red light and
speed enforcement cameras in
jurisdictions around the country
have had positive results in terms
of their ability to reduce violations,
crashes, injuries, and fatalities.
These results exceed the efficacy
of traditional enforcement as
cameras can operate continuously
and independently, and do not
require the presence of on-duty
personnel. This is especially
helpful as many law enforcement
agencies statewide, including
Palo Alto, are short-staffed.
Automated enforcement also
eliminates instances of bias in
enforcement based on arbitrary
characteristics. Thus, on the Safe
Systems Pyramid, automated
enforcement is categorized
into a higher level of efficacy
– as a latent measure – than
traditional enforcement, which is
categorized as an active measure.
Historically, automated red-
light cameras are permitted in
California, while automated speed
enforcement cameras are not.
However, AB 645, which came
into effect in 2023, legalized
speed enforcement cameras on a
pilot basis for six cities across the
State – Los Angeles, Long Beach,
Glendale, Oakland, San Francisco,
and San Jose – for use in school
zones, designated safety corridors,
high-injury intersections, and
known street racing corridors.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
FEDERAL AND STATE GUIDANCE
75
SB 743
Senate Bill (SB) 743, passed by
the California legislature in 2013,
represented a sweeping policy
change in the State’s environmental
review process for transportation.
Under SB 743, transportation
impacts are no longer quantified
in terms of congestion caused as
measured by Level of Service (LOS)
during CEQA review, but rather
in terms of amount of driving as
measured by Vehicle Miles Traveled
(VMT). This shift is intended to
better align the quantification
of transportation impacts with
the State’s climate goals, as the
shift towards using VMT as a
metric under SB 743 is intended
to induce more infill and mixed-
use developments as opposed to
auto-centric sprawl, which is in
turn intended to promote non-
auto modes of transportation and
reduce greenhouse gas emissions.
This shift is important to roadway
safety on two fronts. First, the
impact of SB 743 will likely lead
to shifts in land-use patterns in
the State that are more compact
and conducive to walking, biking,
and transit use, which aligns
with the broad socioeconomic
and built environment changes
most effective in improving
safety outcomes in the Safe
Systems Pyramid. Second, the
replacement of LOS by VMT will
shift focus away from vehicle
speed, capacity, and throughput
in the design of the transportation
network, which allows for
roadway safety considerations
to be better prioritized.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
76 Palo Alto Safety Action Plan
SAFE USERS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Edu
c
a
t
i
o
n
Perform outreach through educational programs
on rules of the road and the use of protective
equipment, with a focus on those behaviors and
target audiences most linked to death and serious
injuries.
Occasional
Practice
Institutionalized for biking. PA does annual SRTS
education. This is true for SRTS in K-2, 3, 5, 6
grades.
Install advisory signs for curves and speed zones,
as well as speed feedback signs and changeable
message signs, to provide warnings and encourage
safe behavior.
Institu-
tionalized
Practice
Pedestrian and bicycle education programs are
data-driven and focused on local safety context;
education programs are customized for different
groups.
Not a
Current
Practice
VTA utilizes Measure B tax money to teach
bicycle safety through SV Bike Coalition. Palo
Alto advertises these events, but not many are
offered in person locally. City is advocating to have
programs in Palo Alto.
Use demonstration projects to raise awareness
of new designs and encourage support for
controversial safety projects among stakeholders.
Occasional
Practice
The forthcoming South Palo Alto Bikeways
Demonstration Project is funded by SS4A funds.
To support a quick-build program that deploys
safety treatments citywide, additional engineering
capacity will be required for design, project
management, and signal work.
APPENDIX B:
BENCHMARKING SURVEY
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
BENCHMARKING SURVEY
77
SAFE USERS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Enf
o
r
c
e
m
e
n
t
Investigate and document the impacts of traffic
safety enforcement and traffic safety surveillance
on minority communities.
Occasional
Practice
Local ordinances allow for context-specific flexibility
in sidewalk riding policies and enforcement (e.g., is
there an adjacent bicycle facility?).
Institu-
tionalized
Practice
Legal to ride a bicycle on all sidewalks except in
business districts, University Avenue undercrossing
below Alma Street and the Palo Alto train station or
in the California Avenue undercrossing below Alma
Street and the California Avenue train station when
others are present.
Police Department conducts sustained and data-
driven enforcement efforts focused on behavior
and locations related to most severe bicycle and
pedestrian crashes. Reallocate enforcement
activities to target those behaviors and locations
most linked to death and serious injury.
Enforcement activities are designed to consider
equity implications.
Not a
Current
Practice
Targeting based on geographic areas with high
crashes. Police will react to KSI crashes and
temporarily monitor those areas.
Res
e
a
r
c
h
Develop and implement strategies for robust
demographic data collection in crash reporting
including partnering with organizations such as
Stanford Healthcare or Santa Clara County Public
Health Department.
Not a
Current
Practice
Partners with the Santa Clara County Public Health
Department for SRTS. City of San Jose Vision Zero
staff have initiated development of a trauma center
data sharing agreement with the County. City staff
have reached out to the City of San Jose to partner
in acquisition of this critical data.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
78 Palo Alto Safety Action Plan
SAFE ROADWAYS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Cra
s
h
a
v
o
i
d
a
n
c
e
Systemically install proven countermeasures to
separate users in space, separate users in time,
and increase attentiveness and awareness, such
as: dedicated left turn lanes, protected signal
phases, clear zones, and vertical and horizontal
separation for pedestrians and bicyclists.
Occasional
Practice
This is done on as part of major CIP projects that
often take many years to complete. The City will
require additional engineering capacity (signals,
design, project management) to quickly deploy
safety countermeasures as quick-build projects
citywide to meet the Vision Zero target date.
Design standards require implementation of the
sidewalk zone system citywide. Does not allow
apron parking or attached (unbuffered) sidewalks
anywhere in the city.
Occasional
Practice
Some planter strips downtown and in older
neighborhoods.
Has a crosswalk policy that reflects best practices
for signalized and uncontrolled crosswalk
treatments (FHWA Field Guide), including
consideration of Pedestrian Hybrid Beacons.
Occasional
Practice
No defined policy. Engineers use FHWA list of
countermeasures for uncontrolled intersections.
City could consider a city-wide assessment of
uncontrolled crosswalks. Some QOL trade-offs.
Complete infrastructure connectivity for
pedestrians and bicyclists and make progress
toward providing separation where needed
based on crash exposure, crash history, and
characteristics of the roadway and adjacent land
use associated with higher levels of use.
Occasional
Practice
Locations where pedestrian and bicycle
connectivity is needed will be identified in the
BPTP Update. Connectivity implementation is
done as part of major CIP projects that often take
many years to complete. The City will require
additional engineering capacity (signals, design,
project management) to quickly deploy safety
countermeasures as quick-build projects citywide
to meet the Vision Zero target date.
Kin
e
t
i
c
e
n
e
r
g
y
r
e
d
u
c
t
i
o
n
Systemically install proven countermeasures to
manage motor vehicle speed and crash angles,
such as roadside appurtenances, roundabouts,
refuge islands, hardened center lines, and
roadway space reallocations.
Occasional
Practice
This is done as part of major CIP projects that
often take many years to complete. The City will
require additional engineering capacity (signals,
design, project management) to quickly deploy
safety countermeasures as quick-build projects
citywide to meet the Vision Zero target date.
Conversion to permanent features would occur
after quick-build projects demonstrate efficacy.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
BENCHMARKING SURVEY
79
SAFE ROADWAYS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Pol
i
c
i
e
s
a
n
d
T
r
a
d
e
o
f
f
s
Uses national best practices focused on bicycle
and pedestrian safety for roadway and facility
design guidelines and standards.
Occasional
Practice
City uses standards from Federal Highway
Administration (FHWA), National Association of
City Transportation Officials (NACTO), California
Manual of Uniform Traffic Control Devices
(MUTCD), and Caltrans’ Highway Design Manual
(HDM).
Roadway resurfacing projects and debris removal
are prioritized for bicycle routes.
Occasional
Practice
City’s Complete Streets Policy requires resurfacing
projects to consider all modes of travel and
coordinate with the Pedestrian and Bicycle
Advisory Committee. The Office of Transportation,
Public Works, and PABAC collaborate yearly
on pavement management projects. Planning
and engineering capacity is needed to engage
community and design treatments prior to Public
Works resurfacing projects.
Age 8 to 80 bicyclist considerations are applied
and/or level of traffic stress is considered.
Not a
Current
Practice
BPTP Update includes Level of Traffic Stress
Analysis.
Colored bike lanes and other innovative
treatments, including geometric enhancements,
are provided at intersections and interchanges.
Occasional
Practice
Colored bike lanes are implemented throughout
the city, particularly to highlight merge zones and
high-use bike lanes.
Has moderate to high densities in the CBD and
mixed-use zones and progressive parking policies,
and transportation impact analysis for new
development considers multi-modal trade-offs,
rather than reliance on LOS.
Occasional
Practice
The City is not compliant with the MTC Transit-
Oriented Communities Policy.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
80 Palo Alto Safety Action Plan
SAFE ROADWAYS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Pol
i
c
i
e
s
a
n
d
T
r
a
d
e
o
f
f
s
Has a recently updated policy and comprehensive
inventory of barriers. Has design guidelines for
addressing barriers.
Not a
Current
Practice
City uses VTA Bicycle Technical Guidelines.
Designate functional class and modal priority
for roadways to pinpoint the most effective
safety countermeasures and streamline tradeoff
decisions.
Not a
Current
Practice
Resources are needed to classify roadways by
functional classification and modal priority to set
contextually appropriate target speeds, and to
design roads that align with the posted speed.
Has curbside management, shared mobility,
or micromobility policies (e.g., permitting,
enforcement) in place that prioritize pedestrian
and bicyclist safety.
Not a
Current
Practice
Will develop shared micromobility pilot program.
Has a street tree ordinance that improves
pedestrian safety and access.
Occasional
Practice
Bicycle supportive amenities (parking, routing/
wayfinding, water fountains, repair stations) are
found community-wide.
Institu-
tionalized
Practice
Ensure safety for all users is prioritized, and
accessibility maintained, during construction and
road maintenance projects.
Occasional
Practice
Traffic Control Guidelines have been updated for
this purpose. Building Division enforces Traffic
Control Plans.
Inn
o
v
a
t
i
o
n
Provide infrastructure for smarter roadways and
intelligent transportation systems (ITS) in support
of data collection and analysis, as well as proactive
system management.
Occasional
Practice
City staff is working towards implementation but
currently limited by staff resources
Use pilot projects to measure safety effects, and
encourage innovation and design flexibility.
Occasional
Practice
AD
A
i
m
p
r
o
v
e
m
e
n
t
s
Has ADA transition plan in place and an ADA
coordinator.
Institu-
tionalized
Practice
Uses state-of-the-practice (PROWAG) ADA
improvements with consistent installation
practices.
Occasional
Practice
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
BENCHMARKING SURVEY
81
SAFE VEHICLES
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Veh
i
c
l
e
i
n
t
e
r
a
c
t
i
o
n
w
i
t
h
p
e
d
e
s
t
r
i
a
n
s
a
n
d
b
i
c
y
c
l
i
s
t
s
Require new fleet vehicles to have pedestrian/
bicycle detection.
Not a
Current
Practice
Focus on SRTS efforts for mode shift to reduce
exposure to heavy vehicles (SUVs) at a schools.
Institu-
tionalized
Practice
Robust SRTS program continues to make mode
shift gains. New traffic control guidelines include
SRTS considerations.
Design truck routes to keep trucks away from
vulnerable road users. Through time of day
policies and route locations.
Occasional
Practice
Truck routes are not in residential areas. City
provides wide load permits upon request and
will focus on reducing conflicts during after
school peak periods. City staff are working with
Greenwaste to reduce conflicts during school
arrival/dismissal times.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
82 Palo Alto Safety Action Plan
SAFE SPEEDS
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
De
s
i
g
n
a
n
d
o
p
e
r
a
t
i
o
n
s
Adopt roadway design standards that are focused
on speed management, such as target speed-
based design. Adjust roadway geometries for
context-appropriate speeds.
Occasional
Practice
Recent projects have included this focus. Roadway
design changes are needed in additional locations
to achieve target speeds.
Use speed harmonization strategies to
achieve safe speeds in congested areas. Speed
harmonization is a method to reduce congestion
and improve traffic performance. This method
is applied at points where lanes merge and form
bottlenecks. The strategy involves gradually
lowering speeds before a heavily congested area
in order to reduce the stop-and-go traffic that
contributes to frustration and crashes.
Not a
Current
Practice
Need engineering capacity to implement speed
harmonization.
Enf
o
r
c
e
m
e
n
t
Deploy automated speed enforcement, with a
focus on equitable fee structures.
Not a
Current
Practice
Not yet permitted in Palo Alto
Pol
i
c
y
a
n
d
t
r
a
i
n
i
n
g
Follow speed limit setting methodologies that
determine appropriate speeds based on roadway
context and modal priority, rather than the historic
behavior of road users. Set speed limits based on
the human body’s ability to tolerate crash forces.
Institu-
tionalized
Practice
School zone speeds have been reduced to 20mph,
and speeds are set at 25mph where possible.
Council preference is not to raise speeds to 85th
percentile speeds from traffic and engineering
studies. Staff are exploring AB 43 components to
manage speeds. City has an active Traffic Calming
program available to residents concerned about
speeding.
Provide speed management training to staff
focused on injury minimization.
Not a
Current
Practice
Will need to update traffic calming program
guidance and staff training.
Da
t
a
a
n
d
m
o
n
i
t
o
r
i
n
g
Use big data and technology to proactively
monitor speed and speed delta from target speeds
Not a
Current
Practice
Speed surveys are completed periodically. Staff
are exploring the reliability of big data sources.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
BENCHMARKING SURVEY
83
POST-CRASH CARE
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Cra
s
h
i
n
v
e
s
t
i
g
a
t
i
o
n
Enhance reporting practices to ensure complete
and accurate data collection and documentation
of road user behavior and infrastructure.
Occasional
Practice
Create a feedback loop such that key insights
from crash investigations are shared with
roadway designers and/or influence outreach and
education.
Not a
Current
Practice
PD reports out on youth-involved ped and bicycle
crashes at monthly CSTSC meetings
Par
t
n
e
r
s
h
i
p
s
Emergency response is involved in all aspects of
bicycle/pedestrian facility planning and design
(including pilot testing), and they balance
response times with bicyclist/pedestrian safety.
Not a
Current
Practice
Fire/EMS review proposed roadway
reconfigurations and conduct test runs of built
projects.
Share data across agencies and organizations,
including first responders and hospitals, to
develop a holistic understanding of the safety
landscape and improve accuracy.
Occasional
Practice
City of San Jose Vision Zero staff have initiated
development of a trauma center data sharing
agreement with the County. City staff have
reached out to the City of San Jose to partner in
acquisition of this critical data.
Connect with victims’ families and the advocacy
community to offer support and resources,
and encourage partnerships with outreach and
education.
Not a
Current
Practice
Police Department refers families to resources on
a case-by-case basis.
Provide staff support for post crash care trauma.Occasional
Practice
Provide group mental health support to non-EMS
staff for post crash care trauma. Current EAP
program provides individual short-term counseling
but no group counseling.
Co
m
m
u
n
i
c
a
t
i
o
n
s
Create a communications protocol for
acknowledging KSI crashes, sharing City/Partner
follow-up actions, and directing concerns
to appropriate committees/task forces, and
establishing meeting protocols for discussing
concerns and suggested improvements. Dedicated
communications staff to support public outreach
and community/digital engagement, develop
protocols and trainings, and improve messaging
across departments may be needed if the safety
project workload increases beyond current staff
capacity.
Occasional
Practice
Need to work with Communications team and
other internal partners to develop this protocol.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
84 Palo Alto Safety Action Plan
SAFETY PLANNING AND CULTURE
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Da
t
a
a
n
d
a
n
a
l
y
s
i
s
Apply a proactive and transparent approach to
data-driven safety analysis, including the use of
systemic profiles, roadway and roadside condition,
and modal specific condition assessments (e.g.,
bicycle network stress or distance between
marked crossings).
Not a
Current
Practice
Will achieve as part of this Plan.
Focus network screening and benefit/cost
calculations on fatal and serious injuries, instead
of all crashes to identify the core safety issues for
human vulnerability.
Not a
Current
Practice
Will achieve as part of this Plan.
Connect each emphasis area in a Safety Plan
to roadway or contextual safety contributing
factors, such as the disproportionate number of
fatalities and serious injuries among pedestrians
in communities of color, and recognize this
specific factor for pedestrian crashes—higher
rates of crashes in minority communities—where
transportation system gaps (e.g., sidewalks/bike
lanes/crossing opportunities) can help proactively
inform recommendations.
Occasional
Practice
Will achieve as part of this Plan.
Collect pedestrian and bicyclist volumes routinely
with intersection counts and has a GIS database of
counts.
Not a
Current
Practice
BPTP Update should provide recommendations for
count protocol. BPTP Update will not create a GIS
database of counts
Maintain an inventory of missing and existing
bikeways in GIS and includes bikeway projects in
the CIP.
Occasional
Practice
Maintain an inventory of missing and existing
sidewalks in GIS and includes sidewalk projects in
the CIP.
Occasional
Practice
Maintain an inventory of pedestrian and bike
signs, markings, and signals in GIS.
Not a
Current
Practice
Investigate City resources to establish and
maintain this level of GIS mapping.
Employ a data-driven systemic safety or Vision
Zero approach to regularly analyze crash data
citywide.
Not a
Current
Practice
Will achieve as part of this Plan.
Red
u
n
d
a
n
c
y
When deploying safety interventions, define
primary and secondary countermeasures as
packages across the Safe System elements to
provide redundancy.
Not a
Current
Practice
Will achieve as part of this Plan.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
BENCHMARKING SURVEY
85
SAFETY PLANNING AND CULTURE
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
Lea
d
e
r
s
h
i
p
a
n
d
c
o
m
m
i
t
m
e
n
t
Organize a Safety Plan around the Safe System
Core Principles and Elements OR perform a
Safe System assessment to determine how well
each Safety Plan emphasis area aligns with the
Safe System elements and principles, and make
adjustments as necessary.
Not a
Current
Practice
Will achieve as part of this Plan.
Commit to a “Zero” Goal and establish
performance management strategies.
Occasional
Practice
Will achieve as part of this Plan.
Backcast to establish the rate of decrease in
fatalities and serious injuries needed to achieve
zero by the target year. This approach will show
the level of investments necessary to reach long-
term goals.
Not a
Current
Practice
Will achieve as part of this Plan.
Implement a monitoring process to measure
against the backcasting trend and force
intervention changes.
Not a
Current
Practice
Will achieve as part of this Plan.
Establish key performance indicators (KPIs). These
key performance indicators could be tied to each
of the five Safe System elements or a particular
strategy.
Not a
Current
Practice
Will achieve as part of this Plan.
Fun
d
i
n
g
Change project evaluation methods for funding
to primarily focus on fatal and serious injury crash
reduction opportunities.
Occasional
Practice
Will achieve as part of this Plan.
Use equity considerations in project prioritization,
with a change to benefit-cost analysis or through a
set-aside program.
Not a
Current
Practice
Will achieve as part of this Plan.
Has a dedicated annual funding stream for
pedestrian and bicycle projects and local grant
matches.
Institu-
tionalized
Practice
City funds a Bicycle and Pedestrian Transportation
Plan Implementation CIP and a Safe Routes to
School CIP.
Institutionalize safety considerations in all project
types to systematically fund projects through
operations and maintenance efforts (such as
repaving projects).
Occasional
Practice
Will achieve as part of this Plan.
Review Capital Improvement Program to check for
safe system consistency in all projects.
Not a
Current
Practice
Need to work with internal partners to review and
adjust projects if needed.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX B
86 Palo Alto Safety Action Plan
SAFETY PLANNING AND CULTURE
Benchmark
Assessed
Level
of City
Practice
State of Current Practice in Palo Alto
De
v
e
l
o
p
m
e
n
t
R
e
v
i
e
w
Conduct safety impact assessments of new
developments to identify mitigation and cost
sharing opportunities.
Occasional
Practice
Currently done in the development review
process. City has a Transportation Impact Fee.
During the development review process ensure
circulation to, from, and within the development
along with recommended TDM measures align
with safety best practices and encourage active
transportation modes.
Occasional
Practice
Currently done in the development review
process. City has a Transportation Impact Fee.
Equ
i
t
y
F
i
r
s
t
Clearly define equity in Safety Plans and include
equity considerations throughout the emphasis
areas and strategies.
Not a
Current
Practice
Will achieve as part of this Plan.
Incorporate equity considerations in
implementation and assessment plans, such
as goals related to safety improvements for
populations that are traditionally underserved.
Not a
Current
Practice
Will achieve as part of this Plan where possible.
Meaningfully engage populations that are
traditionally underserved in shared decision-
making for the SHSP and subsequent safety
programs, policies, or infrastructure projects.
Not a
Current
Practice
Will achieve as part of this Plan.
Ped
e
s
t
r
i
a
n
a
n
d
B
i
c
y
c
l
e
P
l
a
n
n
i
n
g
Has a Coordinator on staff who manages the
agency’s pedestrian and bicycle programs.
Institu-
tionalized
Practice
There is a manager and team of staff tasked with
implementing these.
Has a formal, active Transportation Advisory
Committee that address bicycle/pedestrian issues.
Institu-
tionalized
Practice
Has a recently-updated Active Transportation
Plan (or similar) with strategic prioritized list of
projects that reflects current best practices (e.g.,
Level of Traffic Stress analysis, inclusion of Class IV
protected bicycle facilities).
Occasional
Practice
Will achieve with the BPTP Update.
Has an ongoing Safe Routes to Schools program
and funding for recent projects.
Institu-
tionalized
Practice
Res
e
a
r
c
h
Develop safety performance functions specifically
for fatal and serious injury crashes.
Not a
Current
Practice
Will achieve as part of this Plan.
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BENCHMARKING SURVEY
87
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APPENDIX C
88 Palo Alto Safety Action Plan
Purpose
The City of Palo Alto has been
working hard to put out better
programs and infrastructure for
safer, more connected streets.
Through the online survey, the
community provided the City
and consultant team with a
quantitative understanding of
what the community is in favor
of or unfavorable to when it
comes to having to make tough
decisions on policy and guidance
documentation. The survey focuses
on areas of high foot, bicycle,
transit, and vehicle traffic with
some known safety hot spots such
as El Camino Real, Downtown,
and the California Avenue area
while also asking about residential
neighborhoods as a whole.
Streamlining the type of responses
allows policymakers to not have
to make exceptions to citywide
decisions. The interactive map,
originally prepared for the Bicycle
and Pedestrian Transportation Plan
(BPTP) Update project, allowed
community members to specify
locations where safety could be
enhanced. The Palo Alto Safety
Action Plan collaborated with
BPTP Update to use the responses
from the map to identify locations
where the high-injury network
and destinations for bicyclists and
pedestrians would interact.
Survey Period
September 27, 2023 – December
29, 2023
Survey Mechanism
The survey was administered
online through the City’s website.
The survey was open to all citizens
and was posted to the SS4A Safety
Action Plan Webpage. A total of
766 responses were received. The
information gathered through
this survey is intended to provide
insights into safety perceptions and
potential areas for improvement.
However, survey responses
represent the views of those who
chose to participate (around 1%
of the City’s 2023 population, US
Census Bureau) and may not be
fully representative of the entire
population or all stakeholders. The
survey questions can be found
below.
APPENDIX C:
SURVEY & INTERACTIVE WEBMAP
RESPONSES FROM ENGAGEMENT
Survey Dissemination
• Project website
• Palo Alto Commissions and
Committees
• Human Relations Commission
• Planning and Transportation
Commission
• Pedestrian and Bicycle Advisory
Committee
• City/School Transportation
Safety Committee
• Palo Alto Unified School District
– Principal Liaisons
• Palo Alto Council of PTAs
• Alta Housing
• Avenidas
• California Avenue Farmer’s
Market
• College Terrace Residents
Association
• La Comida
• Lytton Gardens
• Palo Alto High School’s Verde
Magazine
• Palo Alto Jewish Community
Center
• Second Harvest Food Bank
• Stanford Campus Community
• Stanford Research Park
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SURVEY & INTERACTIVE WEBMAP RESPONSES FROM ENGAGEMENT
89
Survey Questions
1. Where do you live?
2. Have you or your family been
personally affected by a fatal or
severe traffic crash
3. When making decisions
about road or street design,
pedestrian and bicyclists’ safety
should be prioritized over
motor vehicle delays.
4. When making decisions
about road or street design,
pedestrian and bicyclists’ safety
should be prioritized over on-
street parking.
5. In areas where children or
elderly may be present, the
road or street should be
designed for cars to drive 20
mph or slower.
6. Roadway changes that reduce
roadway lanes or parking
should be prioritized to
enhance safety for pedestrians
and bicyclists.
7. In downtown areas or
commercial corridors, space
for people to walk, bicycle, and
cross the street safely should
be prioritized over on-street
parking for cars.
8. In areas that do not have a
history of crashes but have a
similar context or design as
other areas experiencing high
crashes we should implement
countermeasures to proactively
prevent similar crashes from
occurring.
9. I would support the installation
of speed safety cameras
(automated enforcement) once
approved for use in California.
10. I support the goal of eliminating
traffic fatalities and serious
injuries on roads in Palo Alto.
11. I believe it is possible to
eliminate traffic fatalities and
serious injuries on roads and
streets in Palo Alto through
different road engineering,
public education, and
enforcement strategies.
12. I am willing to change my
behavior when driving to help
reduce the risk of fatally or
seriously injuring myself or
another person.
13. Roadway or street lighting
should be used to improve
nighttime visibility.
14. I would like to see more
roundabouts implemented at
high-risk locations.
15. I feel safe walking with my
family along or crossing streets
in the downtown/University
Avenue area.
16. I feel safe biking with my family
along or crossing streets in the
downtown/University Avenue
area.
17. I feel safe walking with my
family along or crossing streets
in the California Avenue area.
18. I feel safe biking with my family
along or crossing streets in the
California Avenue area.
19. I feel safe walking with my
family along or crossing streets
in neighborhoods.
20. I feel safe biking along
or crossing streets in
neighborhoods.
21. I feel safe walking along or
crossing El Camino Real.
22. I feel safe biking along El
Camino Real.
23. I feel safe crossing El Camino
Real while riding on my bicycle.
24. I feel safe walking to and from
the Palo Alto Caltrain Station
25. I feel safe biking to and from
the Palo Alto Caltrain Station
26. I feel safe walking to and from
the California Avenue Caltrain
Station
27. I feel safe biking to and from
the California Avenue Caltrain
Station
28. What is your race? (optional)
29. What is your annual household
income? (optional)
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APPENDIX C
90 Palo Alto Safety Action Plan
19%
58%
20%
3%
I feel safe walking with my family along or crossing
streets in the downtown/University Avenue area.
Strongly Agree Agree Disagree Strongly Disagree
31%
54%
11%
4%
I feel safe walking with my family along or crossing
streets in the California Avenue area.
Strongly Agree Agree Disagree Strongly Disagree
27%
58%
12%
3%
I feel safe walking with my family along or crossing
streets in neighborhoods.
Strongly Agree Agree Disagree Strongly Disagree
8%
33%
43%
17%
I feel safe biking with my family along or crossing
streets in the downtown/University Avenue area.
Strongly Agree Agree Disagree Strongly Disagree
22%
46%
23%
8%
I feel safe biking with my family along or crossing
streets in the California Avenue area.
Strongly Agree Agree Disagree Strongly Disagree
20%
49%
24%
6%
I feel safe biking with my family along or crossing
streets in neighborhoods.
Strongly Agree Agree Disagree Strongly Disagree
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SURVEY & INTERACTIVE WEBMAP RESPONSES FROM ENGAGEMENT
91
Interactive Webmap
The key concerns identified
through the webmap include:
Bicycle and pedestrian facilities and
access
• Improve bike lanes to
downtown
• Include safety
enhancements along school
routes – upgrade rolled
curbs, install RRFBs, traffic
calming, repaint high-visibility
crosswalks
• Include additional safety
enhancements in the
Downtown area – longer
pedestrian signal timings, bike
box, upgrade signal heads
• Identify ways to mitigate
vehicles parking/driving in the
bike lanes
Road design
• Conduct roadway space
reallocation feasibility studies
• Improve sight distance and
intersections to enhance
visibility of pedestrians and
bicyclists
Safety education
• Increase education for all road
users
• Prepare policy and promote
education around electric
bicycles
5%
30%
37%
27%
I feel safe walking along or crossing El Camino Real.
Strongly Agree Agree Disagree Strongly Disagree
1%6%
27%
65%
I feel safe biking along or crossing El Camino Real.
Strongly Agree Agree Disagree Strongly Disagree
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
California Avenue area California Caltrain
Station
Downtown/University
Avenue area.
Palo Alto Caltrain
Station
Walking Biking
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APPENDIX D
92 Palo Alto Safety Action Plan
APPENDIX D:
SAFETY FOCUS AREAS
TABLE D-1: SAFETY FOCUS AREAS
Safety
Focus
Area
Factors
Number
of
Crashes
Potential Roadway Design
Countermeasures in
addition to Systemic Speed
Management
Additional Notes
Alcohol
Involved
Vehicle is
involved party,
at least one
party was under
the influence of
drugs or alcohol
40 crashes
7 KSI (15%)
Rest in red signal timing, rumble
strips, guardrails and barriers,
improved lighting, signage and striping
enhancements, medians, uncontrolled
crosswalk enhancements, roundabouts
• 86% of crashes occurred at
night
• ~1/2 occurred between Friday
and Sunday
90 Degree
Angle
Conflicts
with
Bicyclists
Bicyclists
and vehicles
involved parties
144
crashes
6 KSI (13%)
Bike boxes, two stage turn boxes, turn
restrictions, lane reductions, protected
intersections, roundabouts
74% of these crashes occurred
on streets with existing bicycle
facilities
Drivers on
Residential
Arterials
Vehicle to
vehicle involved
parties, location
is classified as
arterial
187
crashes
6 KSI (13%)
Signing and striping improvements;
access management; intersection
treatment such as dedicated left turn
lanes, protected left turns, rest in red,
extended clearance times, and no right
turn on red
• 96% of crashes occurred at
intersections
• ~2/3 of crashes occurred at
night
Pedestrians
on Arterials
at Night1
Pedestrians
and vehicles
involved parties,
time of day,
location is
classified as
arterial
22 crashes
4 KSI (9%)
Curb extensions (with GSI where
feasible), extended pedestrian crossing
time, pedestrian refuge islands and
median (with GSI where feasible),
signing and striping improvements,
daylighting intersections, improved
pedestrian scale lighting, rest in red
signal timing, enhanced uncontrolled
crosswalks, sidewalks, roundabouts
95% of crashes occurred at
intersections
Youth
Bicyclists4
Bicyclists
and vehicles
involved parties,
youth
68 crashes
3 KSI (6%)
Bicycle boulevards and separated
bikeways
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SAFETY FOCUS AREAS
93
Notes:
1. 6 PM – 6 AM
2. Downtown is bounded by Middlefield Road to the north, El Camino Real to the south, Channing Avenue to the
east, and Hawthorne to the west
3. Level of traffic stress (LTS) measures a bicyclist’s perceived stress along different streets. LTS is ranked from 1-4,
with 1 being the most comfortable facilities such as a dedicated bicycle path
4. The data does not include the two recent youth crashes that occurred in 2023
Safety Focus Areas are listed in order of percentage of KSIs
TABLE D-1: SAFETY FOCUS AREAS
Safety
Focus
Area
Factors
Number
of
Crashes
Potential Roadway Design
Countermeasures in
addition to Systemic Speed
Management
Additional Notes
Pedestrians
on Major
Downtown
Streets2
Pedestrians
and vehicles
involved parties,
location is
Downtown
29 crashes
3 KSI (6%)
Curb extensions (with GSI where
feasible), extended pedestrian crossing
time, raised crosswalks, pedestrian
refuge island and median, signing and
striping improvements, daylighting
intersections, improved pedestrian
scale lighting, roundabouts, pedestrian
scrambles, protected or restricted turns
• 1 KSI occurred in 2019 prior
to Slow Streets
• 2 KSIs occurred in late 2020
while downtown streets were
closed
• Most crashes occurred during
the day
• All crashes occurred at
intersections
Walk &
Roll Routes
Crossing
Higher
Stress
Streets
Bicyclists
and vehicles
involved parties,
Walk & Roll
Bicycle Route,
LTS3
82 crashes
2 KSI (4%)
Roundabouts, protected intersections,
enhanced uncontrolled crosswalks,
daylighting, or separate signal phasing
• 99% of crashes occurred at
intersections
• 88% of crashes occurred on
streets with existing bicycle
facilities intersections
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
94 Palo Alto Safety Action Plan
Bikeways
Bicycle Crossing (Solid Green Paint)
Bicycle Ramp
Bicycle Signal/Exclusive Bike Phase
Bicycles May Use Full Lane Sign
Bike Box
Bike Detection
Bike Lane
Bike-Friendly Drain
Buffered Bike Lane
Door Zone Markings
Extend Bike Lane to Intersection
Extend Green Time For Bikes
Floating Transit Island or
Bus Boarding Island
Green Conflict Striping
Mixing Zone
Separated Bikeway
Shared-Use Path
Two-Stage Turn Queue Bike Box
Pedestrian Facilities
Add Sidewalk
Audible Push Button Upgrade
Co-Locate Bus Stops and
Pedestrian Crossings
Curb Extensions
Extend Time Push Button
High-Visibility Crosswalk
Landscape Buffer
Leading Pedestrian Interval and
Pedestrian Recall
Pedestrian Countdown Timer
Pedestrian Hybrid Beacon
Rectangular Rapid Flashing Beacon
Remove Crossing Prohibition
Restripe Crosswalk
Upgrade Curb Ramp
Widen Sidewalk
Signals
Advanced Dilemma Zone Detection
Extend Pedestrian Crossing Time
Extend Yellow and All Red Time
Flashing Yellow Turn Phase
Pedestrian Scramble
Prohibit Left Turn
Prohibit Right-Turn-on-Red
Prohibit Turns During
Pedestrian Phase
Protected Left Turns
Retroreflective Tape on Signals
Separate Right-Turn Phasing
Shorten Cycle Length
Signal Interconnectivity and
Coordination / Green Wave
Speed Sensitive Rest in Red Signal
Supplemental Signal Heads
Upgrade Signal Head
list of countermeasures
APPENDIX E:
COUNTERMEASURES TOOLBOX
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COUNTERMEASURES TOOLBOX
95
Signing and Striping
Advance Stop Bar
Advance Yield Markings
Chevron Signs on Horizontal Curves
Curve Advance Warning Sign
Flashing Beacon as
Advance Warning
LED-Enhanced Sign
Painted Centerline and Raised
Pavement Markers at Curves
on Residential Streets
Speed Feedback Sign
Speed Legends on Pavement
at Neighborhood Entries
Striping Through Intersection
Time-Based Turn Restriction
Upgrade Intersection
Pavement Markings
Upgrade Signs with
Fluorescent Sheeting
Upgrade Striping
Upgrade to Larger Warning Signs
Wayfinding
Yield To Pedestrians Sign
Intersections & Roadways
All-Way Stop Control
Centerline Hardening
Close Slip Lane
Directional Median Openings
to Restrict Left Turns
Guardrail
Improved Pavement Friction
Intersection Reconstruction
and Tightening
Lane Narrowing
Left Turn Enhanced Daylighting/
Slow Turn Wedge
Median Barrier
Neighborhood Traffic Circle
Partial Closure/Diverter
Protected Intersection
Raised Crosswalk
Raised Intersection
Raised Median
Reduced Left-Turn
Conflict Intersection
Refuge Island
Roadway Space Reallocation
Roundabout
Rumble Strips
Safety Edge
Signal
Speed Hump or Speed Table
Splitter Island
Straighten Crosswalk
Superelevation at Horizontal
Curve Locations
Widen/Pave Shoulder
Other
Access Management/
Close Driveway
Back-In Angled Parking
Create or Increase Clear Zone
Curbside Management
Delineators, Reflectors, and/
or Object Markers
Far-Side Bus Stop
Impact Attenuators
Intersection Lighting
Median Guardrail
Red Light Camera
Relocate Select Hazardous
Utility Poles
Remove Obstructions For Sightlines
Segment Lighting
Speed Limit Reduction
Upgrade Lighting to LED
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
96 Palo Alto Safety Action Plan
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Median Barrier
Barrier in the center of the roadway that
physically separates opposing vehicular
traffic. Median barriers can also help
control access to and from side streets and
driveways, reducing the number of conflict
points.
Cost $$$
Low Cost / Quick Build alternative available
LRSM ID R03
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Countermeasure title
Countermeasure icon
Countermeasure description
Countermeasure cost (excluding
ROW costs) and the availability of
low cost/quick build alternatives
$ = less than $15k
$$ = from $15k to $150k
$$$ = greater than $150k
Relevant crash type(s) addressed
by the countermeasure
Countermeasure category
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Median Barrier
Barrier in the center of the roadway that
physically separates opposing vehicular
traffic. Median barriers can also help
control access to and from side streets and
driveways, reducing the number of conflict
points.
Cost $$$
Low Cost / Quick Build alternative available
LRSM ID R03
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Safe System Hierarchy tier(s)
what you’ll see in this toolbox
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COUNTERMEASURES TOOLBOX
97
Bicycle Crossing (Solid
Green Paint)
Solid green paint across an intersection
signifies the path of the bicycle crossing.
Increases visibility of bicyclists’ anticipated
path of travel through an intersection.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Bicycle Ramp
A ramp that connects bicyclists from the
road to the sidewalk or a shared use path.
Cost $
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
98 Palo Alto Safety Action Plan
Bicycle Signal/
Exclusive Bike Phase
A traffic signal directing bicycle traffic
across an intersection. Separates in time
bicycle movements from conflicting
motor vehicle, streetcar, light rail, or
pedestrian movements. May be applicable
for Class IV facilities when the bikeway is
brought up to the intersection.
Cost $$$
BIKEWAYS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Bicycles May Use
Full Lane Sign
A sign placed on roads with lanes that are
too narrow to allow safe side-by-side in-lane
passing of a bicyclist by a motorist - signs
indicate that bicyclists may occupy the
full lane. Intended to encourage motorists
to provide ample space between side of
the vehicle and an adjacent bicyclist when
passing.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
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COUNTERMEASURES TOOLBOX
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Bike Box
A designated area between the crosswalk
and vehicle stop bar at a signalized
intersection that is often painted green
where bicyclists can wait during a red
signal phase. The use of the bike box places
bicyclists in a location where they are more
visible to motorists.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S20PB
BIKEWAYS
Manage
Conflicts
in Time
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Bike Detection
Technology used at signalized intersections,
either through use of push-buttons, in-
pavement loops, or by video or infrared
cameras, to call a green light for bicyclists
and reduce delay for bicycle travel.
Discourages red light running by bicyclists
and increases convenience of bicycling.
Cost $$
BIKEWAYS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
100 Palo Alto Safety Action Plan
Bike Lane
Bike lanes designate an exclusive space for
bicyclists using pavement markings and
signage. The bike lane is located adjacent to
motor vehicle travel lanes and flows in the
same direction as motor vehicle traffic. Bike
lanes are typically on the right side of the
street, between the adjacent travel lane and
curb, road edge, or travel lane.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID R32PB
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Bike-Friendly Drain
Drains that avoid placing grating in the right-
of-way that may pose a hazard to bicyclists
by increasing their risk of falling.
Cost $$
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
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COUNTERMEASURES TOOLBOX
101
Buffered Bike Lane
Buffered Bike Lanes are standard bike
lanes paired with a designated horizontal
buffer space, separating the bicycle lane
from the adjacent motor vehicle travel lane
and/or parking lane. This type of bikeway
provides greater distance between vehicles
and bicycles; provides space for bicyclists
to pass each other; provides greater space
for bicycling without making the bike lane
appear so wide that it might be mistaken for
a travel lane; and encourages bicycling by
contributing to the perception of safety.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID R32PB
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Door Zone Markings
Pavement markings denoting door zone
of parked vehicles to raise awareness of
bicyclists and motorists of that conflict area
where an open car door could obstruct the
path of a passing bicyclist.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
102 Palo Alto Safety Action Plan
Extend Bike Lane
to Intersection
In locations where a bike lane is dropped due
to the addition of a right turn pocket, the
intersection approach may be restriped to
allow for bicyclists to move to the left side of
right turning vehicles ahead of reaching the
intersection.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Extend Green Time For Bikes
Prolongs the green phase when bicyclists
are present to provide additional time for
bicyclists to clear the intersection. Can
occur automatically in the signal phasing
or when prompted with bicycle detection.
Topography should be considered in
clearance time.
Cost $
LRSM ID S03
BIKEWAYS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
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COUNTERMEASURES TOOLBOX
103
Floating Transit Island or
Bus Boarding Island
Transit boarding island that is designed to
allow bicycles to pass between the sidewalk
and island thereby avoiding a bus-bike
conflict when the bus stops at the boarding
island. Can be used in combination with a
bike lane, bufferred bike lane, or separated
bike lane. The treatment can also reduce
vehicle speeds as the island itself visually
narrows the roadway and can have a traffic
calming effect.
Cost $$
Low Cost / Quick Build alternative available
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Green Conflict Striping
Green conflict striping is green pavement
markings in a dashed pattern that extend
across bike lanes approaching an intersection
and/or going through an intersection. Green
conflict striping improves and increases the
visibility of bicyclists and potential conflict
points so motorists and bicyclists can use
caution when traveling toward and through
an intersection.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
104 Palo Alto Safety Action Plan
Mixing Zone
A mixing zone is where a suggested bike lane
is within the inside portion of a dedicated
motor vehicle turn lane. Lane markings
delineate space for bicyclists and motorists
within the same lane and indicate the
intended path for bicyclists to reduce conflict
with turning motor vehicles.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Separated Bikeway
A separated bikeway, also called a cycletrack,
provides dedicated street space, typically
adjacent to outer vehicle travel lanes, with
physical separation from vehicle traffic,
designated lane markings, pavement legends,
and signage. Physical separation may consist
of plastic posts, parked vehicles, raised
median, or a curb (if the separated bike
lane is raised to sidewalk level). Separated
bikeways reduce conflicts between people
biking and motorists. They also provide more
physical protection that further reduces the
risk of severe conflicts between bicycles and
vehicles on the road. Separated bike lanes
can also help manage or reduce vehicle
speeds as some of the design features can
have a traffic calming effect.
Cost $$$
Low Cost / Quick Build alternative available
LRSM ID R33PB
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
105
Shared-Use Path
Shared-use paths or trails are off-street
facilities that provide exclusive use for
nonmotorized travel, including bicyclists and
pedestrians. They could be located alongside
a roadway, or exist in a separate right-of-
way. Bike paths have minimal cross flow
with motorists and can be utilized for both
recreational and commute trips.
Cost $$$
Low Cost / Quick Build alternative available
BIKEWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Two-Stage Turn
Queue Bike Box
This roadway treatment provides bicyclists
with a means of making a left turn at a multi-
lane signalized intersection from a bike lane
or cycle track on the far right side of the
roadway. In this way, bicyclists are removed
from the flow of traffic while waiting to turn.
Use of this treatment could be mirrored for
right-turns from a one-way street with a left-
side bikeway.
Cost $
Low Cost / Quick Build alternative available
BIKEWAYS
Manage
Conflicts
in Time
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
106 Palo Alto Safety Action Plan
All-Way Stop Control
An all-way stop-controlled intersection
requires all vehicles to stop before crossing
the intersection. An all-way stop-controlled
intersection reduces the risk of severe
conflicts as long as all road users see and
obey the stop signs. The MUTCD (Manual
on Uniform Traffic Control Devices) includes
information on when and how to implement
“All Way” Or “Multi-Way” stop control
intersections.
Cost $
LRSM ID NS02
INTERSECTIONS & ROADWAYS
Manage
Conflicts
in Time
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Centerline Hardening
Centerline hardening involves placing
durable plastic bollards, flex posts, and/or
rubber curbs along the centerline. When
used at intersections, they can be effective
at requiring motorists to make left-turn
movements at a 90-degree angle, thereby
slowing vehicle speeds and improving
motorists’ visibility of the crosswalks across
which they travel when turning. When used
along a roadway segment, they can be
effective at generally slowing vehicle speeds
and preventing undesirable left-turning and/
or U-turns between intersections.
Cost $
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
107
Other Reference Information
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=24
Close Slip Lane
Modifies the corner of an intersection to
remove the sweeping right turn lane for
vehicles. Results in shorter crossings for
pedestrians, reduced speed for turning
vehicles, better sight lines, and space for
landscaping and other amenities.
Cost $$$
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Directional Median Openings
to Restrict Left Turns
A directional median opening restricts
specific turning movements, such as allowing
a left-turn from a major street but not from
a minor street. A directional median opening
to restrict left turn improves safety by
reducing the number of conflict points.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID S14
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
108 Palo Alto Safety Action Plan
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Guardrail
Guardrail redirects a vehicle away from
embankment slopes or fixed objects and
dissipates the energy of an errant vehicle.
Guardrail is installed to reduce the severity of
lane departure crashes. However, guardrail
can reduce crash severity only for those
conditions where striking the guardrail is less
severe than going down an embankment or
striking a fixed object.
Cost $$
LRSM ID R04
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Improved Pavement Friction
High friction surface treatments improve
a vehicles’ ability to stay on the roadway
as well as come to a stop over a shorter
distance. The treatment can be used to
help address roadway departure crashes
and/or intersection crashes on approach to
unsignalized intersections.
Cost $$
LRSM ID R21
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
109
Intersection Reconstruction
and Tightening
Intersections that intersect at a skewed angle
or angle notably different than 90-degrees
have a greater likelihood of collisions.
Squaring up the intersection helps reduce
the likelihood of collisions. “Squaring up”
an intersection as close to 90 degrees as
possible involves intersection reconstruction
and approach realignment to provide better
visibility for all road users, also reducing
high speed turns, reducing length exposure
for vehicles and/or bikes passing through
the intersection, and reducing pedestrian
crossing length.
Cost $$$
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Lane Narrowing
Lane narrowing reduces the width of the
marked vehicle lanes to encourage motorists
to travel at slower speeds. Lane narrowing
can also help reallocate existing roadway
space to other road users.
Cost $
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
110 Palo Alto Safety Action Plan
Left Turn Enhanced
Daylighting/Slow
Turn Wedge
Uses paint and bollards to extend the
curb and slow left turns at intersections of
one-way to one-way or two-way streets.
Widening the turning radii of left-turning
vehicles expands the field of vision for drivers
and increases the visibility of pedestrians.
Cost $
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Median Barrier
Barrier in the center of the roadway that
physically separates opposing vehicular
traffic. Median barriers can also help
control access to and from side streets and
driveways, reducing the number of conflict
points.
Cost $$$
Low Cost / Quick Build alternative available
LRSM ID R03
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
111
Other Reference Information
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=34
Neighborhood Traffic Circle
Neighborhood traffic circles are circular
intersections similar to roundabouts, but
are stop controlled on the approach and
intended for smaller intersections. Typically,
they supplement existing stop-controlled
intersections with a circular island in the
center that is designed to slow traffic and
eliminates severe conflict points (such as
conflicting left-turn movements).
Cost $
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Partial Closure/Diverter
A roadway treatment that restricts through
vehicle movements using physical diversion
while allowing bicyclists and pedestrians
to proceed through an intersection in all
directions.
Cost $
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
112 Palo Alto Safety Action Plan
Other Reference Information
Evolution of the Protected Intersection, Alta
Planning and Design, December 2015. https://
altaplanning.com/wp-content/uploads/Evolution-
of-the-Protected-Intersection_ALTA-2015.pdf
Protected Intersection
Protected intersections use corner islands,
curb extensions, and colored paint to
delineate bicycle and pedestrian movements
across an intersection. Slower driving speeds
and shorter crossing distance increase safety
for pedestrians. Separates bicycles from
pedestrians as well as moving vehicles.
Cost $$$
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Raised Crosswalk
A Raised Crosswalk is a pedestrian crosswalk
that is typically elevated 3-6 inches above the
road or at sidewalk level. A Raised Crosswalk
improves increases crosswalk and pedestrian
visibility and slows down motorists.
Cost $$
LRSM ID R36PB
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
113
Other Reference Information
Note: some studies in CMF Clearinghouse show an
increase in crashes. See additional source below
showing decrease. (1) Perkins+Will Consultant
Team. “Pedestrians at Multi-Modal Intersections.”
Better Market Street Existing Conditions & Best
Practices, Part Two: Best Practices 36-58, City &
County of San Francisco, San Francisco. http://
www.bettermarketstreetsf.org/about-reports-
existing-conditions.html (2) Bhatt, Shailen, Natalie
Barnhart, Mark Luszcz, Tom Meyer, & Michael
Sommers. “Delaware Traffic Calming Design Manual.”
Delaware Department of Transportation, State of
Delaware, Dover, DE. https://nacto.org/wp-content/
uploads/2015/04/DE-Trafc-Calming-Manual_2012.
pdf (3) King, Michael R, Jon A Carnegie, and Reid
Ewing. “Pedestrian Safety through a Raised Median
and Redesigned Intersections.” Journal of the
Transportation Research Board 1828 (1), 56-66,
Transportation Research Board, Washington, DC.
https://trid.trb.org/view/663867 (4) Fitzpatrick,
Kay, Mark D Wooldridge, and Joseph D Blaschke.
“Urban Intersection Design Guide: Volume 1–
Guidelines.” Texas Transportation Institute, Texas
A&M University System, Texas Department of
Transportation, Austin, TX. https://static.tti.tamu.
edu/tti.tamu.edu/documents/0-4365-P2.pdf
Raised Intersection
Elevates the intersection to bring vehicles to
the sidewalk level. Serves as a traffic calming
measure by extending the sidewalk context
across the road.
Cost $$$
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Raised Median
Curbed sections in the center of the roadway
that are physically separated from vehicular
traffic. Raised medians can also help
control access to and from side streets and
driveways, reducing conflict points.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID S12/NS14/R08
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
114 Palo Alto Safety Action Plan
Reduced Left-Turn
Conflict Intersection
Geometric designs that alter how left-turn
movements occur can simplify decisions and
minimize the potential for left-turn related
crashes. Two designs that rely on U-turns
to complete certain left-turn movements
are known as the restricted crossing U-turn
(RCUT) and the median U-turn (MUT). Both
designs require some out of direction travel
for vehicles.
Cost $$$
LRSM ID NS16
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Refuge Island
A Raised Median, or Refuge Island, is a raised
barrier in the center of the roadway that
can restrict certain turning movements and
provide a place for pedestrians to wait if they
are unable to finish crossing the intersection.
A Raised Median reduces the number of
potential conflict points with designated
zones for vehicles to turn, and a pedestrian
refuge island reduces the exposure for
pedestrians crossing the intersection.
Pedestrian refuge areas constructed from
paint and plastic may be implemented as
part of a low-cost/quick build project.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID NS19PB
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
115
Roadway Space Reallocation
Reallocating roadway space by reducing
space dedicated to vehicle travel lanes to
create room for bicycle facilities, wider
sidewalks, or center turn lanescan reduce
vehicle speeds and creates designated space
for all road users.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID R14
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Roundabout
A roundabout is a type of circular
intersection in which road traffic is permitted
to flow in one direction around a central
island, and priority is typically given to traffic
already in the junction. The types of conflicts
that occur at roundabouts are different
from those occurring at conventional
intersections; namely, severe conflicts from
crossing and left-turn movements are not
present in a roundabout. The geometry of a
roundabout forces drivers to reduce speeds
as they proceed through the intersection;
the range of vehicle speeds is also narrowed,
reducing the severity of crashes when they
do occur. Pedestrians also only have to
cross one direction of traffic at a time at
roundabouts, thus reducing exposure to
vehicle traffic.
Cost $$$
Low Cost / Quick Build alternative available
LRSM ID S16/NS04
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
116 Palo Alto Safety Action Plan
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Rumble Strips
Rumble strips create noise and vibration
inside the vehicle that alert a driver as they
cross the centerline or edge line. Treatment
can help with lane keeping instances where a
driver is distracted or drowsy. Rumble strips
also alert drivers to the lane limits when
conditions such as rain, fog, snow, or dust
reduce driver visibility.
Cost $
LRSM ID R30/R31
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Safety Edge
When a vehicle leaves the traveled way and
encounters a pavement-shoulder drop-off,
it can be difficult for the driver to return
safely to the roadway. A safety edge is a
treatment intended to minimize the severity
of roadway or lane departure crashes. With
this treatment, the shoulder pavement edge
is sloped at an angle (30-35 degrees) to
make it easier for a driver to safely reenter
the roadway after inadvertently driving
onto the shoulder. This treatment could
be incorporated as a standard practice in
overlay or roadway resurfacing projects.
Cost $
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
117
Other Reference Information
Currently the CMF Clearinghouse has only one
reference for ped/vehicle collisions which indicates
an increase in crash likelihood. However, a majority
of references for all crash types show a decrease in
collisions. See additional reference: FHWA Manual for
Selecting Safety Improvements on High Risk Rural Roads
Signal
Traffic signals at intersections control the
flow of traffic by assigning right-of-way to
different movements at different times.
Some traffic signal phasing is more effective
at reducing the likelihood of severe injury
collisions. For example, protected left-turn
signal phasing reduces the likelihood of
severe left-turn collisions more effectively
than permitted left-turn signal phasing.
Cost $$$
LRSM ID NS03
INTERSECTIONS & ROADWAYS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Speed Hump or Speed Table
These traffic calming devices use vertical
deflection to raise the entire wheelbase of a
vehicle and encourage motorists to travel at
slower speeds.
Cost $
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
118 Palo Alto Safety Action Plan
Splitter Island
A raised area that separates the two
directions of travel on the minor street
approach at an unsignalized intersection
or roundabout. Helps channelize traffic in
opposing directions of travel. Also helps
improve the visibility of an intersection
when approaching it. Provides a refuge for
pedestrians.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID NS13
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Straighten Crosswalk
Straightening crosswalks improves sight
lines, making pedestrians more visible to
oncoming drivers, and may shorten the
crossing distance, reducing the length of
time required for pedestrians to cross an
intersection.
Cost $
Low Cost / Quick Build alternative available
INTERSECTIONS & ROADWAYS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
119
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Superelevation at Horizontal
Curve Locations
Superelevation is the rotation of the
pavement on the approach to and through
a horizontal curve and is intended to
assist the driver in negotiating the curve
by counteracting the lateral acceleration
produced by tracking. In other words, the
road is designed so that the pavement
rises as it curves, offsetting the horizontal
sideways momentum of the approaching
vehicle. Superelevation can help vehicles
stay on the roadway. Superelevation can
also inadvertently make it easier for drivers
to drive at higher than desirable speeds.
Consider the target or desired speed for a
roadway and relevant design guidance when
selecting appropriate superelevation.
Cost $$
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Widen/Pave Shoulder
Widened and paved shoulders, which may
also include flattening the slopes along the
sides of the roadway, create a separated
space for bicyclists, create space for a driver
to safely recover if they inadvertently depart
the travel lane, and also provide space for
inoperable vehicles to pull out of the travel
lane. The addition of a paved shoulder to an
existing road can help to reduce run-off-road
crashes. Benefits can be realized for high-
risk rural roads without paved shoulders,
regardless of existing lane pavement width.
Adding paved shoulders within horizontal
curve sections may help agencies maximize
the benefits of the treatment while
minimizing costs as opposed to adding paved
shoulders to an entire corridor.
Cost $$
LRSM ID R15
INTERSECTIONS & ROADWAYS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
120 Palo Alto Safety Action Plan
Other Reference Information
Data in the CMF Clearinghouse is currently limited to
bicycle/vehicle collisions. See additional reference:
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=1
Add Sidewalk
Adding sidewalks provides a separated and
continuous facility for people to walk along
the roadway.
Cost $$$
LRSM ID R34PB
PEDESTRIAN FACILITIES
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
Audible Push Button Upgrade and Extended
Time Pushbutton: FHWA Pedestrian Safety
Guide and Countermeasure Selection System.
http://www.pedbikesafe.org/PEDSAFE/
countermeasures_detail.cfm?CM_NUM=52
Audible Push Button
Upgrade
Push buttons must comply with the
Americans with Disability Act (ADA)
standards for accessibility. Pushbuttons
should be visible and conveniently located for
pedestrians waiting at a crosswalk. Accessible
pedestrian signals, including audible push
buttons, improve access for pedestrians who
are blind or have low vision. Public Rights
of Way Accessibility Guidelines (PROWAG)
includes accessibility design guidance.
Cost $
PEDESTRIAN FACILITIES
Manage
Conflicts
in Time
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
121
Co-Locate Bus Stops and
Pedestrian Crossings
Place bus stops and pedestrian crossings
in close proximity to allow transit riders to
cross the street at well-designed crossing
locations.
Cost $
Low Cost / Quick Build alternative available
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
(1) Application of Pedestrian Crossing Treatments for
Streets and Highways, NCHRP, 2016. https://www.nap.
edu/catalog/24634/application-of-pedestrian-crossing-
treatments-for-streets-and-highways (2) Development
of Crash Modification Factors for Uncontrolled
Pedestrian Crossing Treatments, NCHRP, 2017. https://
www.nap.edu/catalog/24627/development-of-crash-
modifcation-factors-for-uncontrolled-pedestrian-
crossing-treatments (3) Evaluation of Pedestrian-
Related Roadway Measures, Pedestrian and Bicycle
Information Center, 2014. http://www.pedbikeinfo.org/
cms/downloads/PedestrianLitReview_April2014.pdf
Curb Extensions
A curb extension is a traffic calming measure
that widens the sidewalk for a short distance
to enhance the pedestrian crossing. This
reduces the crossing distance and allows
pedestrians and drivers to see each other
when parked vehicles would otherwise block
visibility. Paint and plastic curb extensions are
a low-cost/quick-build option.
Cost $$
Low Cost / Quick Build alternative available
LRSM ID NS21PB
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
122 Palo Alto Safety Action Plan
Other Reference Information
Audible Push Button Upgrade and Extended
Time Pushbutton: FHWA Pedestrian Safety
Guide and Countermeasure Selection System.
http://www.pedbikesafe.org/PEDSAFE/
countermeasures_detail.cfm?CM_NUM=52
Extend Time Push Button
A push button that can be pressed to request
extra time for using the crosswalk, beyond
the standard crossing time. Ideal near senior-
serving land uses.
Cost $
PEDESTRIAN FACILITIES
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
High-Visibility Crosswalk
A high-visibility crosswalk has a striped
pattern with ladder markings made of high-
visibility material, such as thermoplastic tape,
instead of paint. A high-visibility crosswalk
improves the visibility of marked crosswalks
and provides motorists a cue to slow down
and yield to pedestrians.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S18/NS20
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
123
Landscape Buffer
Separating drivers from bicyclists and
pedestrians using landscaping provides more
space between the modes and can produce
a traffic calming effect by encouraging
drivers to drive at slower speeds, lowering
the risk of crashing.
Cost $$
PEDESTRIAN FACILITIES
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Reduce
Vehicle
Speeds
Other Reference Information
Pedestrian Phase Recall: Evaluation of Pedestrian-
Related Roadway Measures, Pedestrian and Bicycle
Information Center, 2014. http://www.pedbikeinfo.org/
cms/downloads/PedestrianLitReview_April2014.pdf
Leading Pedestrian
Interval and
Pedestrian Recall
At intersection locations that have a high
volume of turning vehicles and have high
pedestrian vs. vehicle crashes, a leading
pedestrian interval gives pedestrians the
opportunity to enter an intersection 3 - 7
seconds before vehicles are given a green
indication. With this head start, pedestrians
can better establish their presence in the
crosswalk before vehicles have priority
to turn left or right. Pedestrian recall is a
traffic signal timing function that causes
a pedestrian walk phase to activate
automatically every cycle.
Cost $
LRSM ID S21PB
PEDESTRIAN FACILITIES
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
124 Palo Alto Safety Action Plan
Pedestrian Countdown Timer
Displays “countdown” of seconds remaining
on the pedestrian signal. Countdown
indications improve safety for all road users,
and are required for all newly installed traffic
signals where pedestrian signals are installed.
Cost $$
LRSM ID S17PB
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Pedestrian Hybrid Beacon
A pedestrian-hybrid beacon (PHB) is used
at unsignalized intersections or mid-block
crosswalks to notify oncoming motorists to
stop with a series of red and yellow lights.
Unlike a traffic signal, the PHB rests in dark
until a pedestrian activates it via pushbutton
or other form of detection.
Cost $$$
LRSM ID NS23PB
PEDESTRIAN FACILITIES
Manage
Conflicts
in Time
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
125
Rectangular Rapid
Flashing Beacon
A rectangular rapid flashing beacon (RRFB)
is a pedestrian-activated flashing light with
additional signage to alert motorists of a
pedestrian crossing. An RRFB increases the
visibility of marked crosswalks and provides
motorists a cue to slow down and yield to
pedestrians. RRFBs and other pedestrian
devices are evaluated using NCHRP 562
methodology.
Cost $$
LRSM ID NS22PB
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove Crossing Prohibition
Removes existing crossing prohibitions
and provides marked crosswalk and other
crossing enhancements for pedestrians to
cross the street.
Cost $
Low Cost / Quick Build alternative available
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
126 Palo Alto Safety Action Plan
Other Reference Information
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=4
Restripe Crosswalk
Periodic restriping of crosswalks is necessary
to maintaing visibility of the traffic markings.
Crosswalk may be restriped with high
visibility markings.
Cost $
Low Cost / Quick Build alternative available
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=3
Upgrade Curb Ramp
Tactile warning devices must be detectable
to visually impaired pedestrians. Curb ramps
must follow PROWAG and local design
guidelines.
Cost $$
PEDESTRIAN FACILITIES
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
127
Widen Sidewalk
Widening sidewalks provides a more
comfortable space for pedestrians,
particularly in locations with high volumes
of pedestrians, and provides space to
accommodate people in wheelchairs.
Widening sidewalks reduces the likelihood
of collisions with pedestrians walking in the
road.
Cost $$
PEDESTRIAN FACILITIES
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Advanced Dilemma
Zone Detection
The Advanced Dilemma-Zone Detection
system adjusts the start time of the yellow-
signal phase (i.e. earlier or later) based on
observed vehicle locations and speeds. The
Advanced Dilemma-Zone Detection system
minimizes the number of drivers that are
faced with the dilemma of determining if
they should stop at the intersection or drive
through the intersection based on their
speed and distance from the intersection.
Cost $$
LRSM ID S04
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
128 Palo Alto Safety Action Plan
Extend Pedestrian
Crossing Time
Increases time for pedestrian walk phases,
especially to accommodate vulnerable
populations, such as children and the elderly.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S03
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Extend Yellow and
All Red Time
Extending yellow and all red time increases
the time allotted for the yellow and red
lights during a signal phase. Extending
yellow and all red time allows drivers and
bicyclists a few additional seconds of time
at the end of a signal phase to cross through
a signalized intersection before conflicting
traffic movements are permitted to enter the
intersection.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S03
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
129
Flashing Yellow Turn Phase
Flashing yellow turn arrow alerts drivers to
proceed with caution and decide if there
is a sufficient gap in oncoming traffic to
safely make a turn. To be used only when
a pedestrian walk phase is not called.
Protected-only phases should be used when
pedestrians are present.
Cost $$
SIGNALS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Pedestrian Scramble
A form of pedestrian “WALK” phase
at a signalized intersection in which all
vehicular traffic is required to stop, allowing
pedestrians to cross through the intersection
in any direction, including diagonally.
Cost $$
LRSM ID S03
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
130 Palo Alto Safety Action Plan
Prohibit Left Turn
Prohibitions of left turns at locations where a
turning vehicle may conflict with pedestrians
in the crosswalk or where opposing
traffic volume is high. Reduces pedestrian
interaction with vehicles when crossing.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S15/NS16
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
Currently the CMF Clearinghouse does not include
specific studies; however, permitting right-turns-
on-red shows an increase in ped/vehicle crashes.
Additional information is available at the FHWA
Pedestrian Safety Guide and Countermeasure Selection
System. http://www.pedbikesafe.org/PEDSAFE/
countermeasures_detail.cfm?CM_NUM=49
Prohibit Right-Turn-on-Red
Prohibiting right-turn-on-red movements
should be considered at skewed
intersections, or where exclusive pedestrian
“WALK” phases, Leading Pedestrian
Intervals (LPIs), sight distance issues, or high
pedestrian volumes are present. Can help
prevent crashes between vehicles turning
right on red from one street and through
vehicles on the cross street, and crashes
involving pedestrians.
Cost $
Low Cost / Quick Build alternative available
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
131
Prohibit Turns During
Pedestrian Phase
Restricts left or right turns during the
pedestrian crossing phase at locations
where a turning vehicle may conflict with
pedestrians in the crosswalk. This restriction
may be displayed with a blank-out sign.
Cost $
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Protected Left Turns
A protected left turn can be implemented
at signalized intersections (with existing
left turns pockets) that currently have
a permissive left-turn or no left-turn
protection. Providing protected left-turn
phases for signalized intersections removes
the need for the drivers to navigate through
gaps in oncoming/opposing through vehicles.
Cost $$
LRSM ID S06/S07
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
132 Palo Alto Safety Action Plan
Retroreflective
Tape on Signals
Retroreflective borders enhance the
visibility of traffic signals for aging and
color-vision-impaired drivers, enabling them
to understand which signal indication is
illuminated. Retroreflective borders may also
alert drivers to signalized intersections during
periods of power outages when the signals
would otherwise be dark and non–reflective
signal heads and backplates would not be
visible.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S02
SIGNALS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
(1) Evaluation of Pedestrian-Related Roadway
Measures, Pedestrian and Bicycle Information
Center, 2014. http://www.pedbikeinfo.org/cms/
downloads/PedestrianLitReview_April2014.
pdf (2) FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Separate Right-Turn Phasing
Provides a green arrow phase for right-
turning vehicles. Avoids conflicts between
right-turning traffic and bicyclists or
pedestrians crossing the intersection on their
right.
Cost $$$
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
133
Other Reference Information
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=45
Shorten Cycle Length
Traffic signal cycle lengths have a significant
impact on the quality of the urban realm
and consequently, the opportunities for
bicyclists, pedestrians, and transit vehicles
to operate effectively along a corridor. Long
signal cycles, compounded over multiple
intersections, can make crossing a street or
walking even a short distance prohibitive
and frustrating. Short cycle lengths of 60–90
seconds are ideal for urban areas.
Cost $
Low Cost / Quick Build alternative available
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Signal Interconnectivity and
Coordination / Green Wave
The emphasis on improving signal
coordination for this countermeasure is to
provide an opportunity for slow-speed signal
coordination. Coordinating signals to allow
for bicyclist progression, also known as a
‘green wave,’ gives bicyclists and pedestrians
more time to cross through the ‘green wave’
intersections. It also slows vehicle speeds,
helping to reduce the likelihood of severe
collisions.
Cost $$
LRSM ID S03
SIGNALS
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
134 Palo Alto Safety Action Plan
Speed Sensitive Rest
in Red Signal
At certain hours (e.g. late night) a signal
remains red for all approaches or certain
approaches until a vehicle arrives at the
intersection. If the vehicle is going faster than
the desired speed, the signal will not turn
green until after vehicle stops. If the vehicle
is going the desired speed the signal will
change to green before the vehicle arrives.
This signal timing provides operational
benefit to drivers traveling at the desired
speed limit. Can be paired with variable
speed warning signs.
Cost $$
LRSM ID R26
SIGNALS
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
Supplemental Signal Heads
Additional signal heads allow drivers to
anticipate signal changes farther away
from intersections. Supplemental traffic
signals may be placed on the near side of an
intersection, far-left, far-right, or very high.
Cost $$
LRSM ID S02
SIGNALS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
135
Upgrade Signal Head
Upgrading Signal Heads replaces existing
8-inch signal heads with 12-inch signal heads
to comply with the California MUTCD’s 2014
guidelines. Upgrading signal heads provides
better visibility of intersection signals and
by aiding drivers’ advanced perception of
upcoming intersections.
Cost $
LRSM ID S02
SIGNALS
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Advance Stop Bar
An advanced stop bar is a horizontal stripe
painted ahead of the crosswalk at stop
signs and signals to indicate where drivers
should stop. An advanced stop bar reduces
instances of vehicles encroaching on the
crosswalk. Creating a wider stop bar or
setting the stop bar further back may
be appropriate for locations with known
crosswalk encroachment issues.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S20PB
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
136 Palo Alto Safety Action Plan
Advance Yield Markings
Yield lines are placed 20 to 50 feet in
advance of multi-lane pedestrian crossings
to increase visibility of pedestrians. They can
reduce the likelihood of a multiple-threat
crash.
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Chevron Signs on
Horizontal Curves
Post-mounted chevrons are intended to
warn drivers of an approaching curve and
provide tracking information and guidance to
the drivers.
Cost $
Low Cost / Quick Build alternative available
LRSM ID R23
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
137
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Curve Advance Warning Sign
A curve advance warning sign notifies drivers
of an approaching curve and may include
an advisory speed limit as drivers navigate
around the curve. This warning sign is ideally
combined with other infrastructure that
alerts drivers of the curve, such as chevron
signs, delineators, and flashing beacons. A
curve advance warning sign provides drivers
additional time to slow down for the curve.
Cost $
Low Cost / Quick Build alternative available
LRSM ID R24
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Flashing Beacon as
Advance Warning
A flashing beacon as an Advanced Warning
is a blinking light with signage to notify
motorists of an upcoming intersection
or crosswalk. A flashing beacon provides
motorists more time to be aware of and
slow down for an intersection or yield to
pedestrians crossing a crosswalk.
Cost $$
LRSM ID S10
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
138 Palo Alto Safety Action Plan
LED-Enhanced Sign
An LED-Enhanced Sign has LED lights
embedded in the sign to outline the sign
itself or the words and symbols on the sign.
The LEDs may be set to flash or operate
in a steady mode. An LED-enhanced
sign improves the visibility of signs at
locations with visibility limitations or with a
documented history of drivers failing to see
or obey the sign (e.g. at STOP signs).
Cost $
Low Cost / Quick Build alternative available
LRSM ID NS08
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Painted Centerline and
Raised Pavement Markers at
Curves on Residential Streets
A raised pavement marker is a small
device attached to the road and used as a
positioning guide for drivers.
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
139
Speed Feedback Sign
A speed feedback sign notifies drivers of
their current speed, usually followed by a
reminder of the posted speed limit. A speed
feedback sign provides a cue for drivers
to check their speed and slow down, if
necessary.
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Speed Legends on Pavement
at Neighborhood Entries
Speed legends are numerals painted on the
roadway indicating the current speed limit in
miles per hour. They are usually placed near
speed limit signposts.
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
140 Palo Alto Safety Action Plan
Striping Through
Intersection
Adding clear pavement markings can guide
motorists through complex intersections.
Intersections where the lane designations are
not clearly visible to approaching motorists
and/or intersections noted as being complex
and experiencing crashes that could be
attributed to a driver’s unsuccessful attempt
to navigate the intersection can benefit from
this treatment.
Cost $
Low Cost / Quick Build alternative available
LRSM ID S09
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Time-Based Turn Restriction
Restricts left-turns or right-turns during
certain time periods when there may be
increased potential for conflict (e.g., peak
periods, school hours).
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Manage
Conflicts
in Time
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
141
Upgrade Intersection
Pavement Markings
Upgrading intersection pavement marking
can include “Stop Ahead” markings and
the addition of centerlines and stop bars.
Upgrading intersection pavement markings
can increase the visibility of intersections for
drivers approaching and at the intersection.
Cost $
Low Cost / Quick Build alternative available
LRSM ID NS07
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Upgrade Signs with
Fluorescent Sheeting
Upgrading signs with fluorescent sheeting
replaces existing signs with new signs that
can clearly display warnings by reflecting
headlamp light back to vehicles. Upgrading
signs with fluorescent sheeting improves
visibility of signs to drivers at night.
Cost $
Low Cost / Quick Build alternative available
LRSM ID R22
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
142 Palo Alto Safety Action Plan
Upgrade Striping
Restripe lanes with reflective striping to
improve striping visibility and clarify lane
assignment, especially where the number of
lanes changes.
Cost $
Low Cost / Quick Build alternative available
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Upgrade to Larger
Warning Signs
Upgrading to larger warning signs replaces
existing signs with physically larger signs with
larger warning information. Upgrading to
larger warning signs increases the visibility
of the information provided, particularly for
older drivers.
Cost $
Low Cost / Quick Build alternative available
LRSM ID NS06
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
143
Wayfinding
A network of signs that highlight nearby
pedestrian and bicycle facilities. Can help to
reduce crossings at locations with poor sight
distance or limited crossing enhancements.
Cost $
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Yield To Pedestrians Sign
“Yield Here to Pedestrians” signs alert
drivers about the presence of pedestrians.
These signs are required with advance yield
lines. Other sign types can be placed on the
centerline in the roadway.
Cost $
Low Cost / Quick Build alternative available
LRSM ID NS06
SIGNING & STRIPING
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
144 Palo Alto Safety Action Plan
Other Reference Information
The CMF Clearinghouse has limited research related to
vehicle/pedestrian crashes. See additional reference:
FHWA Pedestrian Safety Guide and Countermeasure
Selection System. http://www.pedbikesafe.org/
PEDSAFE/countermeasures_detail.cfm?CM_NUM=20
Access Management/
Close Driveway
Vehicles entering and exiting driveways may
conflict with pedestrians and with vehicles
on the main road, especially at driveways
within 250 feet of intersections. Driveway
consolidation reduces conflict points along a
segment and/or near intersections.
Cost $$
OTHER
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Back-In Angled Parking
Back-In Angled Parking requires motorists to
back into an angled on-street parking spot
and to drive forward when exiting a parking
spot. Back-in angled parking increases the
visibility of passing vehicles and bicycles while
exiting a spot, particularly if large adjacent
vehicles obstruct sight, and allows trunk
unloading to happen on the curb instead of
in the street.
Cost $
Low Cost / Quick Build alternative available
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
145
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Create or Increase
Clear Zone
A clear zone is an unobstructed, traversable
roadside area that allows a driver to stop
safely or regain control of a vehicle that has
left the roadway. The width of the clear zone
is informed by roadway context, desired
vehicle speeds, and agency design standards.
Cost $$
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Curbside Management
Curbside management helps prioritize
different uses that would otherwise be in
conflict with one another such as location
of bus stops, bicycle infrastructure, freight
deliveries, passenger pick-ups/drop-offs,
green stormwater infrastructure, public
spaces, and parking management.
Cost $
OTHER
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
146 Palo Alto Safety Action Plan
Delineators, Reflectors,
and/or Object Markers
Delineators, reflectors and/or object
markers are intended to warn drivers of
an approaching curve or fixed object that
cannot easily be removed. They are generally
less costly than Chevron Signs as they don’t
require posts to place along the roadside.
Cost $
Low Cost / Quick Build alternative available
LRSM ID R27
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Far-Side Bus Stop
Far-side bus stops are located immediately
after an intersection, allowing the bus to pass
through the intersection before stopping for
passenger loading and unloading. Far-side
stops encourage pedestrians to cross behind
the bus for greater visibility and can improve
transit service reliability.
Cost $
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
147
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Impact Attenuators
Impact attenuators bring an errant vehicle
to a more-controlled stop or redirect the
vehicle away from a rigid object. Impact
attenuators are typically used to shield rigid
roadside objects such as concrete barrier
ends, steel guardrail ends and bridge pillars
from oncoming automobiles. Attenuators
tend to be installed where it is impractical for
the objects to be removed.
Cost $$
LRSM ID R05
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
Pedestrian-Level Lighting: FHWA Pedestrian
Safety Guide and Countermeasure Selection
System. http://www.pedbikesafe.org/PEDSAFE/
countermeasures_detail.cfm?CM_NUM=8
Intersection Lighting
Adding intersection and/or pedestrian-
scale lighting at intersections increases
the visibility of all road users. This
countermeasure is most effective at reducing
or preventing collisions at intersections
at night or in low-light conditions. When
lighting pedestrian crosswalks, it is helpful
to use lighting analysis to avoid designs that
inadvertently introduce glare or backlight
pedestrians, making it hard for motorists to
see them.
Cost $$
LRSM ID NS01
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX E
148 Palo Alto Safety Action Plan
Median Guardrail
The installation of median guardrail is most
suitable for use in traversable medians
having no or little change in grade and cross
slope. While these systems may not reduce
the frequency of crashes due to roadway
departure, they can help prevent a lane-
departure crash from becoming a head-on
collision.
Cost $$
OTHER
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Red Light Camera
A red light camera enforces traffic signal
compliance by capturing the image of a
vehicle that has entered an intersection in
spite of the traffic signal indicating red. The
automatic photographic evidence is used by
authorities to enforce traffic laws and issue
traffic violation tickets.
Cost $$
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
COUNTERMEASURES TOOLBOX
149
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Relocate Select
Hazardous Utility Poles
Relocating or removing utility poles from
within the clear zone alleviates the potential
for fixed-object crashes. If utility poles
cannot be completely eliminated from within
the clear zone, efforts can be made to either
relocate the poles to a greater offset from
the road or given high-visibility treatments.
Cost $$
OTHER
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Remove
Severe
Conflicts
Other Reference Information
FHWA Manual for Selecting Safety
Improvements on High Risk Rural Roads
Remove Obstructions
For Sightlines
Remove objects that may prevent drivers
and pedestrians from having a clear
sightline. May include installing red curb at
intersection approaches to remove parked
vehicles (also called “daylighting”), trimming
or removing landscaping, or removing or
relocating large signs.
Cost $
Low Cost / Quick Build alternative available
LRSM ID NS11
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
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APPENDIX E
150 Palo Alto Safety Action Plan
Segment Lighting
Providing roadway lighting increases driver
awareness and can improve visibility of other
road users and/or objects in the roadway.
Cost $$
LRSM ID R01
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Other Reference Information
TRB Study on Setting Speed Limits; also Richard,
C. M., Magee, K., Bacon-Abdelmoteleb, P., &
Brown, J. L. (2018, April). Countermeasures that
work: A highway safety countermeasure guide
for State Highway Safety Offices, Ninth edition
(Report No. DOT HS 812 478). Washington, DC:
National Highway Traffic Safety Administration.
Speed Limit Reduction
As an industry, there is a consistent
movement away from setting speed limits
solely based on 85th percentile vehicle
speeds. Roadway characteristics, adjacent
land use context, as well as the risk higher
speeds create for all road users are now
considered. Where separate space is not
available for vulnerable road users and/
or severe conflicts (e.g., crossing or turning
conflicts) are present between motorvehicles
speeds of 25 mph are preferable to reduce
the risk of severe collisions. Where separated
space is provided for vulnerable road users
and severe conflicts between vehicles are
managed, speed limits above 25 mph can be
considered.
Cost $
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Reduce
Vehicle
Speeds
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COUNTERMEASURES TOOLBOX
151
Upgrade Lighting to LED
Upgrading Lighting to LED replaces high-
pressure sodium light bulbs with LED light
bulbs in street lights. Upgrading Lighting to
LED increases the visibility of pedestrians in
crosswalks through greater color contrast
and larger areas of light distribution.
Cost $$
OTHER
Increase
Attentiveness
and Awareness
Safe System Hierarchy
Tier 1 Tier 2 Tier 3 Tier 4
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX F
152 Palo Alto Safety Action Plan
FEDERAL FUNDING
Funding
Source Program Purpose
Safe Streets
and Roads for
All (SS4A) Grant
Program
The Safe Streets & Roads for All (SS4A) grant program is a new Federal grant program established
by the Bipartisan Infrastructure Law centered around the Department of Transportation’s National
Roadway Safety Strategy and its goal of zero deaths and serious injuries on America’s roadways. It
will provide $5 billion in grant funding over 5 years to develop safety action plans and implement
safety projects.
Congestion
Mitigation and Air
Quality (CMAQ)
Improvement
Program
The FAST Act continued the CMAQ program to provide a flexible funding source to State and local
governments for transportation projects and programs to help meet the requirements of the
Clean Air Act. Funding is available to reduce congestion and improve air quality for areas that do
not meet the National Ambient Air Quality Standards for ozone, carbon monoxide, or particulate
matter (nonattainment areas) and for former nonattainment areas that are now in compliance
(maintenance areas).
Rebuilding
American
Infrastructure
with Sustainability
and Equity (RAISE)
This program supports projects that for surface transportation infrastructure projects that will
improve: safety; environmental sustainability; quality of life; mobility and community connectivity;
economic competitiveness and opportunity including tourism; state of good repair; partnership and
collaboration; and innovation.
Reconnecting
Communities and
Neighborhoods
Program
The Reconnecting Communities and Neighborhoods program combines the Reconnecting
Communities Pilot (RCP) and Neighborhood Access and Equity (NAE) discretionary grant
programs into a single funding opportunity. The program funds projects that address the impact
of transportation infrastructure, such as freeways and railroads, that form barriers for travel
in communities. The program funds the removal, retrofit, mitigation, or replacement of the
infrastructure in question.
Community
Development
Block Grant
(CDBG) Program
The Community Development Block Grant (CDBG) program is a flexible program that provides
communities with resources to address a wide range of unique community development needs.
Communities often use CDBG funds to construct and repair streets and sidewalks.
APPENDIX F:
FUNDING SOURCES
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FUNDING SOURCES
153
STATE FUNDING
Funding Source Program Purpose
Highway Safety
Improvement Program
(HSIP)
California’s Local HSIP focuses on infrastructure projects with nationally recognized crash
reduction factors (CRFs). Local HSIP projects must be identified on the basis of crash
experience, crash potential, crash rate, or other data-supported means.
Active Transportation
Program (ATP)
ATP is a statewide competitive grant application process with the goal of encouraging
increased use of active modes of transportation. The ATP consolidates existing federal and
state transportation programs, including the Transportation Alternatives Program (TAP),
Bicycle Transportation Account (BTA), and State Safe Routes to School (SR2S), into a single
program with a focus to make California a national leader in active transportation. The ATP
administered by the Division of Local Assistance, Office of State Programs.
SB-1 Transportation
Funding
The State Transportation Improvement Program (STIP) is the biennial five-year plan for future
allocations of certain state transportation funds for state highway improvements, intercity rail,
and regional highway and transit improvements.
Caltrans Sustainable
Transportation Planning
Grant Program
This program is intended to encourage local and regional planning that furthers state goals,
including, but not limited to, the goals and best practices cited in the Regional Transportation
Plan Guidelines adopted by the California Transportation Commission.
California Office of
Traffic Safety (OTS)
OTS administers traffic safety grants in the following areas: Alcohol Impaired Driving,
Distracted Driving, Drug-Impaired Driving, Emergency Medical Services, Motorcycle Safety,
Occupant Protection, Pedestrian and Bicycle Safety, Police Traffic Services, Public Relations,
Advertising, and Roadway Safety and Traffic Records.
Affordable Housing
and Sustainable
Communities (AHSC)
The Affordable Housing and Sustainable Communities (AHSC) Program makes it easier for
Californians to drive less by making housing, jobs, and key destinations accessible by walking,
biking, and transit.
REGIONAL AND LOCAL FUNDING
Funding Source Program Purpose
MTC One Bay Area
Grant (OBAG) Program
Federally funded program administered by MTC to invest in local street and road maintenance,
streetscape enhancements, bicycle and pedestrian improvements, transportation planning,
and Safe Routes to School while advancing regional housing goals.
Measure B Santa Clara County’s 2016 Measure B is a voter approved, 30-year, half-cent countywide sales
tax to enhance transit, highways, expressways, and active transportation projects.
City of Palo Alto Capital
Budget
The City’s Capital Budget is focused on capital and infrastructure project investments.
OTHER FUNDING
Funding Source Program Purpose
Bloomberg Philanthropies
Asphalt Art
This program is intended to promote the use of asphalt art to enhance safety challenges.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX G
154 Palo Alto Safety Action Plan
APPENDIX G:
UPDATED POLICIES &
PROGRAMS LIST
● Tier 1: Remove Severe Conflicts
● Tier 2: Reduce Vehicle Speeds
● Tier 3: Manage Conflicts in Time
● Tier 4: Increase Attentiveness and Awareness
Long-Term Education Program
Source
Comprehensive Plan
Phasing
Longer-Term
Safe System Element Addressed
Safe Users ●
Existing Program/Policy Description
Create a long-term education
program to change the travel habits
of residents, visitors, shoppers, and
workers by informing them about
transportation alternatives, incentives,
and impacts. Work with the PAUSD and
with other public and private interests,
such as the Chamber of Commerce
and Commuter Wallet partners, to
develop and implement this program.
Recommended Safe System Pivot
Prioritize education of decision
makers and media/press.
Walk and Roll for
Private Schools
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Users ●
Existing Program/Policy Description
Encourage private schools to develop
Walk and Roll Maps as part of
Transportation Demand Management
strategies to reduce vehicle trips.
Evaluate locations near schools for
potential quickbuild improvements.
Recommended Safe System Pivot
Add Walk and Roll routes on low stress
streets: LTS network map and HIN
Coordination
Bicycle and Pedestrian Transportation
Plan, SRTS Program, and CSTC
Legend
Policies and Programs are labeled with colored
circles corresponding to their corresponding
tiers in the Safe System Hierarchy (see
Appendix A for full details), if applicable
Media Safety Training
Source
Staff working group
Phasing
Near-Term
Safe System Element Addressed
Post-Crash Care
Existing Program/Policy Description
The City of Palo Alto will share best
practices on how to communicate
traffic crashes and roadway
safety to the public from a Safe
System Approach. Coverage may
include developing press releases,
news coverage, talking points for
elected officials, etc. City to invite
Safe System Approach experts to
present, answer questions and
provide examples. This program
could be implemented by a future
Communications staffer dedicated
to Transportation projects if needed
due to increased safety projects.
Recommended Safe System Pivot
N/A
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UPDATED PROGRAMS AND POLICIES LIST
155
Street Closures - Open Streets
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Roads ●●
Existing Program/Policy Description
Consider marketing strategies such
as a recurring Palo Alto Open Streets
program of events, potentially in
coordination with local business
groups, which would include street
closures and programming.
Recommended Safe System Pivot
Prioritize street closures on
areas located on the HIN,
or where high bicycle and
pedestrian activity is expected
Safe Routes to Work, Shopping,
Downtown, Community
Services, and Parks
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Users ●
Existing Program/Policy Description
Follow the principles of the Safe
Routes to Schools program to
implement traffic safety measures
that focus on Safe Routes to work,
shopping, downtown, community
services, parks, and schools, including
all designated school commute
corridors. Consider the Adopted
School Commute Corridors Network
and adopted “Walk and Roll” maps
when reviewing development
applications and making land use and
transportation planning decisions.
Incorporate these requirements
into City code when feasible.
Recommended Safe System Pivot
Where safe routes overlap with HIN,
prioritize speed management and
pedestrian/bicycle enhancements,
especially at intersections: FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Crossing
Locations, FHWA Improving
Intersections for Pedestrians and
Bicyclists, DIB 94, FHWA Safe System
Approach for Speed Management.
Establish non-HIN routes as primary
access routes where possible and
prioritize improvements on access
routes with speeds over 25 mph: AB
43, countermeasure toolbox, DIB 94
Update CIP Funding to
Prioritize Bicycle and
Pedestrian Access and Route
Source
Comprehensive Plan
Phasing
Ongoing
Safe System Element Addressed
Safe Roads ●
Existing Program/Policy Description
Adjust the street evaluation criteria
of the City’s Pavement Management
Program to ensure that areas of the
road used by bicyclists are maintained
at the same standards as, or at
standards higher than, areas used
by motor vehicles. Include bicycle
and e-bike detection in intersection
upgrades. Prioritize investments for
enhanced pedestrian access and
bicycle use within Palo Alto and to/
from surrounding communities,
including by incorporating
improvements from related City
plans, for example the 2012 Bicycle
+ Pedestrian Transportation Plan
and the Parks, Trails & Open Space
Master Plan, as amended, into the
Capital Improvements Program.
Recommended Safe System Pivot
Prioritize paving bike routes, streets
on HIN, equity considerations: BPTP,
HIN, East Palo Alto Walk and Roll
Routes, Palo Alto Population Below
Poverty, Palo Alto Transit Corridors.
Ensure funding is allocated beyond
signing/striping so intersections
are also addressed through
these projects: FHWA Guide for
Improving Pedestrian Safety at
Uncontrolled Crossing Locations,
FHWA Improving Intersections
for Pedestrians and Bicyclists.
CIP Projects will align with Safe
System Approach: FHWA Safe
System Roadway Design Hierarchy,
CIP Implementation Guidance
Design and Emergency
Response Vehicles
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Post-Crash Care
Existing Program/Policy Description
Establish procedures for considering
the effects of street design on
emergency vehicle response time.
Recommended Safe System Pivot
Consider how to balance safer
pedestrian and bicycle facilities/
designs with designing to reduce
emergency vehicle response time.
Coordinate proactively with the
Fire Department to establish traffic
calming device guidelines that satisfy
both needs. Explore cargo bike use
for emergency services work and
adding cargo bikes as tools for moving
both people and goods locally.
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX G
156 Palo Alto Safety Action Plan
Systemic Uncontrolled
Crosswalk Placement/
Enhancement Program
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Roads ●●
Existing Program/Policy Description
Improve pedestrian crossings by
creating protected areas and better
pedestrian and traffic visibility.
Use a toolbox including bulb outs,
small curb radii, high visibility
crosswalks, and landscaping.
Recommended Safe System Pivot
Develop a systemic uncontrolled
crosswalk placement/enhancement
program for ped safety and
accessibility: DIB 94, FHWA Safe
System Roadway Design Hierarchy,
FHWA Guide for Improving Pedestrian
Safety at Uncontrolled Locations
E-Bike Street Ordinance
Source
Community feedback
Phasing
Near-Term
Safe System Element Addressed
Safe Vehicles
Existing Program/Policy Description
Develop an e-bike ordinance that
embraces e-bikes and e-scooters
as emerging mobility options while
establishing speed limits while
operating on-street. Determine the
allowable speed limit of e-bikes in
bicycle facilities. Reference available
means-based e-bike subsidies.
Recommended Safe System Pivot
Pair ordinance with bicycle
traffic calming on major bicycle
corridors. Consider partnering
with SV Bike Coalition and SRTS to
provide education on e-bike use:
DIB 94, NACTO Urban Bikeway
Design Guide, FHWA Safe System
Roadway Design Hierarchy, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Update Traffic Calming Program
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Speeds ●
Existing Program/Policy Description
Systemically identify speed
management needs and opportunities
(such as speed humps and
neighborhood traffic circle) and
prioritize into a yearly implementation
program based on kinetic energy
risk, equity, proximity to schools,
and similar factors. Most funds
should be programmed proactively,
but some can be reserved for quick
response discretionary purposes.
Add or reallocate staff to administer
program, including coordination,
evaluation, planning, and engineering.
Recommended Safe System Pivot
Implement speed management
strategies to slow vehicles to a
contextually appropriate target
speed: AB 43, countermeasure
toolbox, FHWA Safe System
Approach for Speed ManagementCrossing Guards
Source
Comprehensive Plan
Phasing
Near-Term
Safe System Element Addressed
Safe Users ●
Existing Program/Policy Description
In collaboration with PAUSD,
continue to provide adult crossing
guards at school crossings that
meet established warrants.
Recommended Safe System Pivot
Consider crossing guards on
all Walk and Roll routes
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UPDATED PROGRAMS AND POLICIES LIST
157
Rapid Response Team
Source
Staff working group
Phasing
Ongoing
Safe System Element Addressed
Post-Crash Care ●
Existing Program/Policy Description
Work with standing committees
and City staff across departments to
develop a rapid response team that
evaluates roadway design and context
of crash locations after KSI crashes
Recommended Safe System Pivot
Coordinate with other agencies to
evaluate the causes of the crash.
Evaluate historic crash data to
understand crash trends. Apply
safety improvements systemically
throughout the City.
Impact Review Updates
Source
Staff working group
Phasing
Ongoing
Safe System Element Addressed
Safe Roads ●
Existing Program/Policy Description
All street, land use, and
development projects will be
reviewed for compliance with
Safe System principles.
Recommended Safe System Pivot
Remove level of service as a
criteria from impact reviews and
roadway design. Level of service is
a performance metric that focuses
on vehicle capacity and delay, which
therefore results in justifications
to increase vehicle capacity at the
cost of roadway safety. Impact
review and roadway design will
instead be evaluated by metrics that
focus on safety risk, user comfort,
and access for all users including
pedestrians and bicyclists such as
kinetic energy risk, level of traffic
stress, and travel time by mode.
Construction Traffic
Management Plan
Source
Staff working group
Phasing
Near Term
Safe System Element Addressed
Safe Roads ●
Existing Program/Policy Description
N/A
Recommended Safe System Pivot
Create a Construction Traffic
Management Plan to manage traffic
and circulation while projects are
under development. Reviewers will
ensure that, to the extent possible,
pedestrian and bicycle facilities are
maintained during construction.
Where this is not feasible, safe
and alternative facilities should be
temporarily implemented. These
facilities will prioritize separation
and follow the most direct path
for pedestrians and bicyclists, and
sight distance should be evaluated
to improve visibility. Clear signage
is important to communicate new
traffic patterns to pedestrians,
bicyclists, and drivers.
Upgrade Repaving Program
Source
Staff working group
Phasing
Near-Term
Safe System Element Addressed
Safe Roads ??
Existing Program/Policy Description
Change approach to repaving
program to include pedestrian
improvements including sidewalk
widening and curb extensions. This
would require additional funding.
Recommended Safe System Pivot
Repaving Projects will align with
the Safe System Approach: FHWA
Safe System Roadway Design
Hierarchy, FHWA Safe System
Alignment Framework, NCHRP
1036, countermeasure toolbox
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
158 Palo Alto Safety Action Plan
California Avenue
Caltrain Station and
Transit Improvements
Source
Comprehensive Plan
Safe System Element Addressed
Safe Users ●
Existing Concept
In collaboration with Caltrain and
Stanford Research Park, pursue
expansion of service to the California
Avenue Caltrain Station including
connections to VTA bus service,
the Marguerite, and other private
shuttles serving the Research
Park and create an enhanced
transit center at the Station.
Recommended Safe System Pivot
Future BPTP Update should
include this connection
Prioritize vulnerable users
(pedestrians, bicyclists). Identify
weakest links present in first/
last mile connections: FHWA
Primer Safe System Approach for
Pedestrian and Bicyclists. Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Longer-Term
On HIN?
No
California Avenue Tunnel
Source
Valley Transportation Plan 2040,
2012 Bicycle and Pedestrian
Transportation Plan
Safe System Element Addressed
Safe Users ●
Existing Concept
Replacement of California Ave.
bicycle/pedestrian undercrossing
of Caltrain tracks with new
ADA compliant structure.
Recommended Safe System Pivot
Future BPTP Update should
include this connection
Prioritize vulnerable users
(pedestrians, bicyclists). Identify
weakest links present in first/
last mile connections: FHWA
Primer Safe System Approach for
Pedestrian and Bicyclists. Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Additional Bicycle and
Pedestrian Crossings Along
the Caltrain Corridor
Source
Valley Transportation Plan 2040,
2012 Bicycle and Pedestrian
Transportation Plan
Safe System Element Addressed
Safe Users ●
Existing Concept
Construct grade separated bicycle/
pedestrian crossing between
California Ave. Caltrain station and
at-grade crossing on E. Meadow Dr.
Recommended Safe System Pivot
Future BPTP Update should
include this connection
Prioritize vulnerable users
(pedestrians, bicyclists). Identify
weakest links present in first/
last mile connections: FHWA
Primer Safe System Approach for
Pedestrian and Bicyclists. Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Alternatives Analysis In Progress
On HIN?
Yes
APPENDIX H:
UPDATED PROJECT LIST
●Tier 1: Remove Severe Conflicts
●Tier 2: Reduce Vehicle Speeds
●Tier 3: Manage Conflicts in Time
●Tier 4: Increase Attentiveness and Awareness
Legend
Projects are labeled with colored triangles
corresponding to their corresponding tiers
in the Safe System Hierarchy, if applicable
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
159
Faber Place Bike Route
Source
2012 BPTP, Community feedback
Safe System Element Addressed
Safe Roads ●
Existing Concept
Designate Faber Place as a bike route
at a minimum. It connects the Renzel
Trail to Embarcadero Road. Right
now, it has very minimal signage.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate bicycle
facilities: DIB 94 and NACTO
Urban Bikeway Design Guide
Phasing
Near-Term
On HIN?
Yes
Pedestrian Access
Improvements to Palo
Alto Caltrain Center
Source
Comprehensive Plan, Valley
Transportation Plan, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Collaborate with Stanford University,
VTA, Caltrain, and other agencies to
pursue improvements to the Palo
Alto Transit Center area aimed at
enhancing pedestrian experience
and improving circulation and
access for all modes, including
direct access to El Camino Real
for transit vehicles. Construct new
bicycle/pedestrian undercrossing
of Caltrain tracks, near Everett or
Lytton Streets, to connect Downtown
with the University, Medical Center,
and multi-modal transit center.
Recommended Safe System Pivot
Future BPTP Update should
include this connection.
Prioritize vulnerable users. Identify
weakest links present in first/last
mile connections: FHWA Primer
on Safe System Approach for
Pedestrian and Bicyclists; Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Longer-Term
On HIN?
Yes
Pedestrian Safety
on Alma Street
Source
Comprehensive Plan, Community
feedback, 2012 Bicycle and
Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Address pedestrian safety along
Alma Street between Embarcadero
Road and Lytton Street. Increase the
number of east-west pedestrian and
bicycle crossings across Alma Street
and the Caltrain corridor, particularly
south of Oregon Expressway. Address
the Churchill Aveue and Alma Street
intersection in coordination with
Connecting Palo Alto project. . . OOT
has a consultant on board for the
project to conceptually design up to 2
additional crossings south of California
Ave. Near-term, safety improvements
for Alma Street and Churchill Avenue
are currently under construction.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate crossing
improvements to improve access
and encourage crossings at the
designated locations where safety
mitigations have been deployed:
FHWA Guide for Improving Pedestrian
Safety at Uncontrolled Locations,
FHWA Improving Intersections
for Pedestrians and Bicyclists
Phasing
Near-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
160 Palo Alto Safety Action Plan
Signalized Intersection
Enhancements
Source
Comprehensive Plan, Valley
Transportation Plan
Safe System Element Addressed
Safe Speeds ●
Existing Concept
Implement a program to monitor,
coordinate, and optimize traffic signal
timing a minimum of every two years
along arterial and residential arterial
streets. Project includes upgrades
to signalized pedestrian facilities to
enhance safety and update pedestrian
crossing times. Project is a citywide
program to adjust signal timing to
give priority to emergency vehicles.
Recommended Safe System Pivot
Update signal coordination to
manage speeds on arterials to
contextually appropriate target
speeds: AB 43, FHWA Safe System
Approach for Speed Management
Signalized intersection enhancements
should be categorized into
1) Operations optimization/
enhancement of existing conditions,
upgrade hardware; and 2) Capital
Improvement projects to modify
signals, phasing, lane configurations,
multi-modal facilities. Signalized
intersection treatments may include
implementation of LPI, rest on red
at night, no RTOR in the downtown
and with LPIs, protected left turn
phasing, detection of pedestrians
in the crosswalk to implement an
extended walk time, pedestrian
countdown timers, and adequate
pedestrian crossing times: MUTCD,
FHWA Improving Intersections
for Pedestrians and Bicyclists,
Countermeasures toolbox.
Suggest that technology be
employed to allow for real time
near miss and other surrogate
safety monitoring: City of Bellevue
Phasing
Near-Term
On HIN?
No
Safety Improvements at
Stanford Shopping Center
Source
Comprehensive Plan, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Provide safe, convenient pedestrian,
bicycle, and transit connections
between the Stanford Shopping
Center/Medical Center areas and
housing along the Sand Hill Road/
Quarry Road corridors to Palo Alto
Caltrain Station, Downtown Palo
Alto, and other primary destinations.
Consider upgrading existing Class
II bike lanes to include buffer and
evaluate improvements to multi-
use paths along Sand Hill Road.
Recommended Safe System Pivot
Consider pedestrian connections
on both Sand Hill Road and Quarry
Road: Countermeasures toolbox,
FHWA Safe System Roadway
Design Hierarchy, DIB 94
Phasing
Longer-Term
On HIN?
Yes
Grade separation for Caltrain
Source
Comprehensive Plan
Safe System Element Addressed
Safe Roads ●, Safe Users ●
Existing Concept
Undertake studies and outreach
necessary to advance grade separation
of Caltrain to become a “shovel ready”
project and strongly advocate for
adequate State, regional, and federal
funding for design and construction
of railroad grade separations.
Recommended Safe System Pivot
Consider pedestrian and bicycle
sense of comfort (good lighting
and wayfinding) and develop short
and direct routes: NACTO Urban
Street Design Guidelines, FHWA
Primer on Safe System Approach
for Pedestrian and Bicyclists
Upgrade multi-use paths and
separated bikeways where
appropriate: DIB 94 and NACTO
Urban Bikeway Design Guide
Phasing
Near-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
161
Quarry Road Transit Connection
to Palo Alto Caltrain Station
Source
2012 Bicycle and Pedestrian
Transportation Plan, Standford
University Land Use and
Environmental Planning
Safe System Element Addressed
Safe Roads ●, Safe Users ●
Existing Concept
As envisioned in the Palo Alto
Comprehensive Plan as Program
T3.10.4 (2017), the proposed
Quarry Road Transit Connection
project would create a direct transit
connection between the transit
center bus bays and El Camino Real
at the Quarry Road traffic signal. In
addition to transit improvements, the
project would also include multiple
active transportation and safety
improvements at the intersection
of Quarry Road and El Camino Real.
Additional active transportation and
safety improvements within El Camino
Park adjacent to or near the proposed
transit connection, as well as within
University Circle, are also being
considered as part of this project.
Specifically, the proposed
project would focus on:
• Upgrading pedestrian crossings at
the intersection of Quarry Road and
El Camino Real to accommodate
pedestrians and cyclists across all
legs of the redesigned intersection.
The proposed design would
reduce crossing distances and
potentially reduce crossing time;
• Implementing safety and
accessibility measures at the
intersection of Quarry Road
and El Camino Real (e.g., curb
extensions and tighter turning
radii, new pedestrian/bicycle
ramps, pedestrian and bicycle
refuge islands, dedicated
pedestrian and bicycle crossings,
high-visibility bicycle markings,
enhanced wayfinding, and Leading
Pedestrian Intervals (or a protected
pedestrian and bicycle phase)
are currently being considered)
In addition to these changes,
pedestrian and bicycle wayfinding
improvements within El Camino
Park and short-term bicycle
connectivity improvements to the
Embarcadero Trail within University
Circle are also being considered..
Recommended Safe System Pivot
Review final design with the following
considerations: . - Consider operational
plans for protected intersection
to manage conflicts. Evaluate the
use of bicycle signals and Leading
Pedestrian/Bicycle Interval Phases
based on the results of the upcoming
traffic analysis. The analysis will
aim to balance the need for transit
travel time improvements and safety
improvements while maintaining
acceptable traffic operations at the
intersection of Quarry Road and El
Camino Real. . . . FHWA Safe System
Roadway Design Hierarchy, DIB
94, NACTO Urban Bikeway Design
Guide, and FHWA Primer on Safe
System Approach for Pedestrians
and Bicyclists, Informational
Guide: Improving Intersections
for Pedestrians and Bicyclists
Phasing
Longer-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
162 Palo Alto Safety Action Plan
Palo Alto Avenue/
Alma Crossing Study
Source
Comprehensive Plan, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Complete a Palo Alto Avenue crossing
study to identify potential near-term
safety and accessibility improvements.
Recommended Safe System Pivot
Implement speed management
strategies to slow vehicles to a
contextually appropriate target
speed: AB 43, countermeasure
toolbox, FHWA Safe System
Approach for Speed Management
Identify crossing locations and
enhancements consistent with
the STEP guide: FHWA Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Pedestrian Safety on
Shared Use Paths
Source
Comprehensive Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Address pedestrian safety on
shared-use paths through the use
of signs, pavement markings, and
outreach to users, encouraging
them to be safe and courteous.
Recommended Safe System Pivot
Consider bicycle traffic calming
at intersections and consider
implementing speeds limits for e-bike/
e-scooters: DIB 94, NACTO Urban
Bikeway Design Guide, FHWA Safe
System Roadway Design Hierarchy,
FHWA Primer on Safe System
Approach for Pedestrians and Bicyclists
Phasing
Near-Term
On HIN?
No
Pedestrian Improvements
on Embarcadero Road
Source
Comprehensive Plan, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
West of Emerson on Embarcadero,
the City has approved plans
that identify and design safety
improvements on Embarcadero
Road including traffic signal
modifications, sidewalk realignment,
high-visibility crosswalks, signing
and striping, bicycle treatments,
landscaping and traffic calming
elements. Future projects include
construction of a stairway on the
north side of the undercrossing with
a bicycle tunnel and implementation
of bicycle facilities west of the
Embarcadero Road underpass.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Phasing
Near-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
163
Bicycle Connections to Region
Source
Comprehensive Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Identify and improve bicycle
connections to/from neighboring
communities in Santa Clara
and San Mateo counties to
support local trips that cross city
boundaries. Also advocate for
reducing barriers to bicycling and
walking at freeway interchanges,
expressway intersections, and
railroad grade crossings.
Recommended Safe System Pivot
Prioritize projects along HIN
that have regional significance:
HIN, DIB 94, FHWA Safe System
Roadway Design Hierarchy
Phasing
Near-Term
On HIN?
No
Roadway Space Reallocation
on El Camino Real
Source
Comment from PTC 10/11
Safe System Element Addressed
Safe Roads ●●
Existing Concept
Remove vehicle lane and add Class IV
protected bike lanes along corridor.
Long-term, vision includes working
with Caltrans to seek lane conversion
and create more space to better
integrate bus boarding and bike lanes.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide
Phasing
Near-Term
On HIN?
Yes
East Meadow Drive
Source
Systemic Crash Analysis
Safe System Element Addressed
Safe Roads ●
Existing Concept
Upgrade bicycle facilities to
provide protected bicycle facilities.
Review intersection control on
minor street at Ross Rd.
Recommended Safe System Pivot
Suggest speed management strategies
and separating users where possible:
AB 43, countermeasure toolbox,
FHWA Safe System Approach for
Speed Management, DIB 94
Phasing
Near-Term
On HIN?
Yes
Bicycle Detected Signal Heads
Source
Pedestrian and Bicycle
Advisory Committee
Safe System Element Addressed
Safe Roads ●
Existing Concept
Add “Bicycle Detected” signal
heads to recommended bike
routes intersecting with arterials
where feasible. Pilot metrics to
identify impacts and outcomes.
Recommended Safe System Pivot
Should be applied to Class I
and Class IV bikeways and must
be MUTCD compliant.
Phasing
Near-Term
On HIN?
No
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
164 Palo Alto Safety Action Plan
Homer Avenue from Alma
Street to High Street
Source
Community feedback, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●●
Existing Concept
Evaluate Homer Avenue and Channing
Avenue as couplet. Consider reducing
lanes and adding protected bike
lane. Address intersection controls.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide
Consider uncontrolled crosswalk
enhancements: FHWA Guide
for Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
El Camino Real Regional
Corridor Improvements:
PAMF to Churchill Avenue
Source
Valley Transportation Plan 2040
Safe System Element Addressed
Safe Roads ●
Existing Concept
Long term vision to reconfigure
El Camino Real between Palo Alto
Medical Foundation and Churchill
Avenue. Improvements focus on
utility undergrounding, new median
islands and streetscape-focused
improvements, and operational
enhancements along adjacent streets.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Update coordination on manage
speeds on arterials to contextually
appropriate target speeds: AB
43, FHWA Safe System Approach
for Speed Management
Phasing
Longer-Term
On HIN?
Yes
El Camino Real and
California Avenue
Source
Community feedback, 2012 Bicycle
and Pedestrian Transportation Plan
Safe System Element Addressed
Safe Roads ●●
Existing Concept
Install Class IV bikeways on El Camino
Real. eastbound approach may be
reconfigured as part of the El Camino
Real repaving project to include a
left turn lane, bike lane, and right-
turn lane. The intersection includes
bike boxes and skipped bike lane
striping through the intersection.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide
Address signal head visibility on ECR
Phasing
Near-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
165
Middlefield Road: Midtown
Corridor Improvements
Source
Valley Transportation Plan 2040
Safe System Element Addressed
Safe Roads ●
Existing Concept
Project includes sidewalk
enhancements, transit stop.
improvements, lighting
improvements, and traffic signal
improvements between Oregon
Expressway and Loma Verde.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Phasing
Near-Term
On HIN?
Yes
Churchill Avenue Rail
Grade Separation and
Safety Improvements
Source
Capital Proposed Budget (2024 FY)
Safe System Element Addressed
Safe Roads ●
Existing Concept
This project provides for the planning,
design, and construction of the
grade separation at the existing at-
grade crossing on Churchill Avenue
in the Caltrain Rail Corridor. The
project will provide improvements to
accommodate bicycles, pedestrians,
and vehicular movement at the
crossing. In 2021, the City Council
selected partial underpass as the
preferred alternative, with closure
as a backup alternative. The partial
underpass will require a new bicycle
and pedestrian connection. Council
recently endorsed Seale Ave as
the location for that connection.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Phasing
Longer-Term
On HIN?
No
Matadero Creek Trail
Undercrossing
Source
Valley Transportation Authority
Resolution 2016.06.17 for
Measure B, Staff working group
Safe System Element Addressed
Safe Roads ●
Existing Concept
This project includes a Class I shared
use path along Matadero Creek.
Alternatives include alignments
along side the creek or off street
facilities on Loma Verde.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Ensure alignment with the safe
system approach: FHWA Safe
System Alignment Framework
Phasing
Longer-Term
On HIN?
No
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
166 Palo Alto Safety Action Plan
Meadow Drive/Charleston
Road Rail Grade Separation
and Safety Improvements
Source
Capital Proposed Budget (2024 FY),
Valley Transportation Authority
Resolution 2016.06.17 for Measure B
Safe System Element Addressed
Safe Roads ●
Existing Concept
This project provides for the planning,
design, and construction of the grade
separations at the existing at-grade
crossings on Meadow Drive and
Charleston Road in the Caltrain Rail
Corridor. The project will provide
improvements to accommodate
bicycles, pedestrians, and vehicular
movement at the crossings. In
2021, the City Council narrowed the
alternatives under consideration at
these locations to trench, hybrid,
and underpass. Currently, the Rail
Committee is reviewing these
alternatives to further narrow and
select the preferred alternative(s) for
recommendation to the City Council.
The project has gone out to RFP and
will be designed by a consultant in
partnership with the City of Palo Alto.
In addition to the bicycle and
pedestrian facilities that will
be incorporated into the grade
separations, up to two additional
crossings will be pursued prior to
grade separation construction to
ensure safe crossing for bicyclist and
pedestrians during construction.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists.
Ensure alignment with the safe
system approach: FHWA Safe
System Alignment Framework
Phasing
Near-Term
On HIN?
Yes
California Avenue
Streetscape Update
Source
Capital Proposed Budget (2024 FY)
Safe System Element Addressed
Safe Roads ●
Existing Concept
This project provides initial funding
for conceptual design and community
engagement to develop options
for expanding pedestrian and
outdoor spaces in the California
Avenue retail core to facilitate
car-free streets. The project also
provides funding to provide flexible
opening and closing of streets on
a trial basis in the short term
The City is currently designing the
street with the goal to formally
close it per State law. The City
Manager’s Office is leading on the
design of the car-free street.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Ensure alignment with the Safe
System Approach: FHWA Safe
System Alignment Framework
Phasing
Near-Term
On HIN?
No
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
167
Oregon Expressway, Page Mill
Road, and Foothill Expressway
Class I Shared Paths
Source
County 2024 Draft Active
Transportation Plan
Safe System Element Addressed
Safe Roads ●●
Existing Concept
The County’s 2024 Draft Active
Transportation Plan recommends
a Class I shared-use path for
Oregon Expressway, Page Mill
Road, and Foothill Expressway.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Ensure alignment with the Safe
System Approach: FHWA Safe
System Alignment Framework
Phasing
Near-Term
On HIN?
Yes
Oregon Expressway
Traffic Calming
Source
Systemic Collision Analysis
Safe System Element Addressed
Safe Roads ●●
Existing Concept
This project includes various
traffic calming treatments to
reduce vehicle speeds.
Recommended Safe System Pivot
Coordinate with the County to
identify roadway improvements to
reduce speed and conflict points
(e.g. with protected signal phasing,
separating active transportation
users from motorists). Implement
speed management strategies to slow
vehicles to a contextually appropriate
target speed: AB 43, countermeasure
toolbox, FHWA Safe System
Approach for Speed Management
Phasing
Near-Term
On HIN?
Yes
Future BPTP Update
Quick Build Projects
Source
Staff working group
Safe System Element Addressed
Safe Roads ●●
Existing Concept
These are quick to install infrastructure
improvements focused on bicycle and
pedestrian safety. Projects should
include crash analysis to identify
the best quick build improvements
for the location. Improvements
could be piloted or temporarily
installed first before adding more
permanent solutions. Evaluation
should be included to monitor
project effectiveness. This project
would require more engineering
capacity (including signals, design,
and project management) to meet
the Vision Zero target date.
Recommended Safe System Pivot
Coordinate with BPTP to ensure there
are adequate bicycle and pedestrians
connections: DIB 94 and NACTO Urban
Bikeway Design Guide, FHWA Safe
System Roadway Design Hierarchy,
FHWA Primer on Safe System
Approach for Pedestrians and Bicyclists
Ensure alignment with the Safe
System Approach: FHWA Safe
System Alignment Framework
Phasing
Ongoing
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
168 Palo Alto Safety Action Plan
repaving projects
Source
Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Repave streets and upgrade striping.
Recommended Safe System Pivot
Prioritize repaving for equity, HIN,
and Vulnerable Road Users: Repaving
Plan Report Section, FHWA Safe
System Roadway Design Hierarchy,
HIN, East Palo Alto Walk and Roll
Routes, Palo Alto Population Below
Poverty, Palo Alto Transit Corridors
Inform community through
notifications, mailers, graphics, etc.
of potential roadway changes, but
for safety related improvements,
reference NCHRP 1036 as guidance
on when to make trade-off decisions
Add appropriate pedestrian and
bicycle facilities: DIB 94, NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian Safety
at Uncontrolled Locations, FHWA
Primer on Safe System Approach
for Pedestrians and Bicyclists
Ensure alignment with the Safe
System Approach: FHWA Safe System
Alignment Framework, NCHRP
1036, countermeasure toolbox
Phasing
Near-Term
On HIN?
No
Middlefield Road Repaving
Source
PABAC recommendations for
FY 2029 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Daylight on Middlefield Rd. from
Oregon Expressway to Loma Verde
Ave. by installing quickbuild curb
extensions and refuge islands
as part of repaving project.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox, FHWA
Safe System Approach for Speed
Management. Add appropriate
pedestrian and bicycle facilities:
DIB 94 and NACTO Urban Bikeway
Design Guide, FHWA Guide for
Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
Yes
new plans
San Antonio Road Area Plan
Source
Housing Element
Safe System Element Addressed
Safe Roads ●
Existing Concept
Prepare an area plan for the San
Antonio Road Corridor, including the
ROLM/GM Focus Area. Collaborate
with local organizations and residents
to facilitate neighborhood planning
that integrates housing with safe
multi-modal transportation and
provides access to amenities, parks
and open space, placemaking
improvements, and mitigations
for environmental impacts.
Recommended Safe System Pivot
Note that San Antonio Road is a
truck route and is on the HIN. Use
the guidance listed in Appendix A of
this Plan to develop transportation
infrastructure in alignment with
the Safe System Approach.
Phasing
Near-Term
On HIN?
Yes
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
169
Embarcadero Road Repaving
Source
PABAC recommendations for FY 2025
Repaving Plan, Community Feedback
Safe System Element Addressed
Safe Roads ●
Existing Concept
Consider improved bicycle and
pedestrian crossing on Embarcadero
Road from Alma Street to Emerson
Street and Greer Road to Saint
Francis Drive as part of repaving
project. Consider dedicated left
turn lanes at traffic signals and
protected left turn movements.
Recommended Safe System Pivot
Consider a corridor study on
Embarcadero before repaving.
. Manage speeds: AB 43,
countermeasure toolbox,
FHWA Safe System Approach
for Speed Management. Add
appropriate pedestrian and
bicycle facilities: DIB 94, NACTO
Urban Bikeway Design Guide
Phasing
Near-Term
On HIN?
Yes
University Avenue Repaving
Source
PABAC recommendations for FY 2025
Repaving Plan, Community Feedback
Safe System Element Addressed
Safe Roads ●
Existing Concept
Repaving to maintain existing 13
foot shared bicycle and vehicle
lanes from Stanford University to
the Circle. Consider dedicated left
turn lanes at traffic signals and
protected left turn movements.
Recommended Safe System Pivot
Add appropriate pedestrian
and bicycle facilities. Consider
designated bike lanes on University
Avenue: DIB 94, NACTO Urban
Bikeway Design Guide
Phasing
Near-Term
On HIN?
Yes
Fabian Way Repaving
Source
PABAC recommendations for FY 2026
Repaving Plan, Community Feedback
Safe System Element Addressed
Safe Roads ●
Existing Concept
Implement lane conversion on Fabian
Way from Charleston Rd. to Bayshore
Rd. as part of repaving project. A
pilot demonstration project of this
striping plan is funded by SS4A for
potential implementation in Fall 2025.
Recommended Safe System Pivot
Add appropriate pedestrian and
bicycle facilities. DIB 94, NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Louis Road Repaving
Source
PABAC recommendations for
FY 2029 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Update bicycle facilities on Louis
Rd. from Stelling Dr. to Loma Verde
Ave. as part of repaving project.
Recommended Safe System Pivot
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Hamilton Avenue Repaving
Source
PABAC recommendations for
FY 2029 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Add sharrows on Hamilton Ave.
from Cowper St. to Webster St.
as part of repaving project.
Recommended Safe System Pivot
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
APPENDIX H
170 Palo Alto Safety Action Plan
Webster Street Repaving
Source
PABAC recommendations for FY
2027, FY 2029 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
If the Future BPTP Update retains
Webster as a bicycle boulevard,
implement sharrows and other
traffic calming elements on Webster
St. from Lytton Ave. to University
Ave., California Ave. to Oregon
Ave., Coleridge Ave. to Lowell
Ave., and Seale Ave. to Santa Rita
Ave. as part of repaving project.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox, FHWA
Safe System Approach for Speed
Management. Add appropriate
pedestrian and bicycle facilities:
DIB 94, NACTO Urban Bikeway
Design Guide, FHWA Guide for
Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Arastradero Road Repaving
Source
PABAC recommendations for
FY 2028 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Implement sharrows and other traffic
calming elements on Arastradero
Rd. from City Limit to Caballo Ln.
as part of repaving project near
Pearson-Aratradero Preserve.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox, FHWA
Safe System Approach for Speed
Management. Add appropriate
pedestrian and bicycle facilities:
DIB 94, NACTO Urban Bikeway
Design Guide, FHWA Guide for
Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
Yes
Hamilton Avenue Repaving
Source
PABAC recommendations for
FY 2028 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Implement sharrows and other traffic
calming elements on Ramona St. to
Waverly St. as part of repaving project.
Recommended Safe System Pivot
Manage speeds: AB 43,
countermeasure toolbox, FHWA
Safe System Approach for Speed
Management. Add appropriate
pedestrian and bicycle facilities:
DIB 94, NACTO Urban Bikeway
Design Guide, FHWA Guide for
Improving Pedestrian Safety
at Uncontrolled Locations
Phasing
Near-Term
On HIN?
Yes
California Avenue Repaving
Source
PABAC recommendations for
FY 2029 Repaving Plan
Safe System Element Addressed
Safe Roads ●
Existing Concept
Consider adding bike lanes in the
uphill direction on California Ave.
from Dartmouth St. to Hanover
St. as part of repaving project and
removing parking on one side.
Recommended Safe System Pivot
Add appropriate pedestrian and
bicycle facilities: DIB 94 and NACTO
Urban Bikeway Design Guide, FHWA
Guide for Improving Pedestrian
Safety at Uncontrolled Locations
Phasing
Near-Term
On HIN?
No
Addison Avenue Repaving
Source
PABAC recommendations for FY 2025
Repaving Plan, Community Feedback
Safe System Element Addressed
Safe Roads ●
Existing Concept
Retain Class II bike lane in one
direction and convert the substandard
door zone bike lane to a bike route
with sharrows as part of repaving
project on Addison Avenue from
Bryant Street to Middlefield Road.
Parking is already removed on one
side of the residential street.
Recommended Safe System Pivot
Add appropriate pedestrian and
bicycle facilities: DIB 94, NACTO
Urban Bikeway Design Guide
Phasing
Near-Term
On HIN?
No
Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
UPDATED PROJECT LIST
171
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Docusign Envelope ID: D265FCAC-2DAC-4570-81B7-C3C52BD096B5
Certificate Of Completion
Envelope Id: D265FCAC-2DAC-4570-81B7-C3C52BD096B5 Status: Completed
Subject: RESO 10226 - Resolution Approving the Safe Streets for All Safety Action Plan
Source Envelope:
Document Pages: 174 Signatures: 5 Envelope Originator:
Certificate Pages: 2 Initials: 0 Christine Prior
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Time Zone: (UTC-08:00) Pacific Time (US & Canada)
250 Hamilton Ave
Palo Alto , CA 94301
Christine.Prior@PaloAlto.gov
IP Address: 165.225.242.87
Record Tracking
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Holder: Christine Prior
Christine.Prior@PaloAlto.gov
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Tim Shimizu
Tim.Shimizu@CityofPaloAlto.org
Assistant City Attorney
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Ria Hutabarat Lo
Ria.Lo@paloalto.gov
Chief Transportation Official
City of Palo Alto
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Ed Shikada
Ed.Shikada@CityofPaloAlto.org
City Manager
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(None)Signature Adoption: Pre-selected Style
Using IP Address: 199.33.32.254
Sent: 6/9/2025 9:57:45 AM
Viewed: 6/9/2025 3:53:52 PM
Signed: 6/9/2025 3:54:37 PM
Electronic Record and Signature Disclosure:
Not Offered via Docusign
Ed Lauing
Ed.Lauing@CityofPaloAlto.org
Security Level: Email, Account Authentication
(None)
Signature Adoption: Pre-selected Style
Using IP Address: 67.188.59.65
Sent: 6/9/2025 3:54:41 PM
Viewed: 6/10/2025 7:58:54 AM
Signed: 6/10/2025 7:59:21 AM
Electronic Record and Signature Disclosure:
Not Offered via Docusign
Signer Events Signature Timestamp
Mahealani Ah Yun
Mahealani.AhYun@paloalto.gov
Security Level: Email, Account Authentication
(None)
Signature Adoption: Pre-selected Style
Using IP Address: 76.132.2.224
Signed using mobile
Sent: 6/10/2025 7:59:25 AM
Viewed: 6/10/2025 8:00:40 AM
Signed: 6/10/2025 8:00:49 AM
Electronic Record and Signature Disclosure:
Not Offered via Docusign
In Person Signer Events Signature Timestamp
Editor Delivery Events Status Timestamp
Agent Delivery Events Status Timestamp
Intermediary Delivery Events Status Timestamp
Certified Delivery Events Status Timestamp
Carbon Copy Events Status Timestamp
Witness Events Signature Timestamp
Notary Events Signature Timestamp
Envelope Summary Events Status Timestamps
Envelope Sent Hashed/Encrypted 6/9/2025 8:39:41 AM
Envelope Updated Security Checked 6/9/2025 4:22:59 PM
Certified Delivered Security Checked 6/10/2025 8:00:40 AM
Signing Complete Security Checked 6/10/2025 8:00:49 AM
Completed Security Checked 6/10/2025 8:00:49 AM
Payment Events Status Timestamps