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HomeMy WebLinkAboutStaff Report 8544 City of Palo Alto (ID # 8544) City Council Staff Report Report Type: Consent Calendar Meeting Date: 10/30/2017 City of Palo Alto Page 1 Summary Title: Delivery Robot Permitting Title: Adoption of a Resolution Authorizing the City Manager to Regulate Operation of Personal Delivery Devices, also known as Autonomous Robots within the City of Palo Alto for an Approximately 1-year Period From: City Manager Lead Department: Planning and Community Environment Recommendation Staff recommends that Council adopt a resolution (Attachment A) authorizing the City Manager to create a pilot program to allow the use of autonomous robots, also known as personal delivery devices (PDDs), in the City of Palo Alto by issuing Encroachment Permits to PDD operators. These Encroachment Permits will be issued by the Public Works Department through the Development Center, and will permit the operation of PDDs within the City right-of-way, subject to terms and conditions set by the City Manager or his designee. This pilot program would expire on December 31, 2018, or upon adoption of permanent regulations by the City Council. Background A handful of companies have launched autonomous delivery robots, also known as personal delivery devices (PDDs), in cities throughout the United Kingdom, Germany and United States. In the San Francisco Bay Area, pilot delivery robot programs are underway in Concord, Foster City, Redwood City, San Carlos, Sunnyvale and Walnut Creek. PDDs typically deliver groceries, restaurant take-out items, and other items. They can carry approximately three-grocery-bags- worth of goods and weigh about 50 pounds, when fully loaded. PDDs are autonomous, using on-board cameras to assist in travels along the sidewalks at no more than four miles per hour, which is estimated to be a fast walk. Many PDDs have a human attendant to ensure proper functionality and safety. Over time, they will likely transition to 100% autonomous delivery, with remote human monitoring. PDDs generally run on electric power and have zero emissions. A photo of a typical PDD is included as Attachment C. City of Palo Alto Page 2 At street crossings, PDDs can be assisted by human attendants, if needed. The attendant is able to ensure it is safe for the robot to cross the street and that it will not impede traffic. PDDs are generally capable of traveling within a five-mile radius of their docking points. The actual areas of operation will be approved through the encroachment permit process, but is anticipated to be primarily in business districts. Customers can establish their delivery times, track their items while in transit on a mobile application, and securely retrieve their items with their unique code that opens the robot. Payment for the PDD delivery service is conducted online, similar to Lyft or Uber, so no cash is involved in the delivery transaction. Discussion More than one PDD operator has expressed an interest in piloting their devices in the City of Palo Alto. These operators plan to work with existing food delivery service partners to bring goods directly to employees and residents. The operators will assume all liability for the use of the PDDs on City sidewalks and streets. The operators will be permitted through the City’s existing Encroachment Permit process, which requires insurance coverage, and will be subject to operating regulations established by the City Manager pursuant to the attached resolution. A draft policy establishing regulations is included as Attachment B. The Encroachment Permits will be issued by the Public Works Department at the Development Center, with review by other departments as necessary. Staff recommends that all Encroachment Permit issued to PDD operators include the following conditions on the operators:  Assume all liability associated with the use of PDDs  Provide no less than two million dollars ($2,000,000) combined single limit per occurrence or four million dollars ($4,000,000) annual aggregate limit for bodily injury, personal injury, and property damage in insurance  Monitor PDDs at all times they are operating within the City right-of-way, either through an accompanying robot attendant or remotely  Report any significant collisions or other operational safety issues to the City within 24 hours  PDDs cannot travel faster than 3.5 feet per second when on sidewalks, on ADA ramps, or within crosswalks  PDDs cannot block accessible path of travel for disabled individuals using mobility devices  PDDs must include the operator’s name and phone number in a location visible to the public when in operation  PDDs may be temporarily prohibited from sidewalks and crosswalks within specific construction and special event areas by the City Manager or his designee at any time (with notice)  PDDs may be permanently prohibited from sidewalks and crosswalks within business districts by the City Manager or his designee at any time (with notice) City of Palo Alto Page 3 PDDs would be primarily limited to sidewalks, crosswalks and other areas typically used for pedestrian travel rather than streets or areas used for bicycle or motor vehicle travel. The City would retain the ability to cancel the Encroachment Permits with no notice. Staff has outreached to Redwood City and Sunnyvale to determine how the PDDs have been received. Staff from both cities reported no major issues with the operation of PDDs. However, Redwood City has experienced minor issues with robot-pedestrian and robot-motorist interactions, where the robots failed to take the right-of-way when appropriate. Policy Implications The following Comprehensive Plan goals, programs and policies are relevant to the permitting of PDDs:  POLICY T-39: To the extent allowed by law, continue to make safety the first priority of citywide transportation planning. Prioritize pedestrian, bicycle, and automobile safety over vehicle level-of-service at intersections.  POLICY B-4: Nurture and support established businesses as well as new businesses.  POLICY B-7: Encourage and support the operation of small, independent businesses.  POLICY B-9: Encourage new businesses that meet the City’s business and economic goals to locate in Palo Alto.  POLICY B-10: Promote Palo Alto’s image as a business-friendly community. Assume an active role in fostering new business, particularly small, start-up businesses in emerging industries.  POLICY B-16: Encourage streamlining of City administrative and regulatory processes wherever possible. Reduce inefficiencies, overlap, and time delays associated with these processes. Resource Impact The issuance of Enchroachment Permits for PDDs will be done through the Development Center, and require resources from the Development Services Department, Public Works Department, Planning and Community Environment Department, Police Deaprtment and other departments. Ongoing monitoring for compliance will also require the use of existing departmental resources. A portion of these costs can be recouped through the Encroachment Permit application fee. City of Palo Alto Page 4 Timeline Staff recommends an initial pilot period of approximately one year, during which staff will evaluate the possibility of more permanent regulation in the Palo Alto Municipal Code. Environmental Review This program is exempt from the requirements of the California Environmental Quality Act (CEQA) pursuant to Section 15061(b)(3) of Title 14 of the California Code of Regulations since it can be seen with certainty that there is no possibility the adoption and implementation of this program may have a significant effect on the environment and Section 15301 in that this proposed resolution will have a minor impact on existing facilities. Attachments: Attachment A - Draft Resolution Authorizing Personal Delivery Devices Pilot Program (PDF) Attachment B - Draft Personal Delivery Devices Policy (PDF) Attachment C - Stock Photo of Personal Delivery Device (PDF) Resolution No. ________ Resolution of the Council of the City of Palo Alto Authorizing the City Manager to Establish a Pilot Program for the Operation of Personal Delivery Devices, also known as Autonomous Robots in the Public Rights of Way The Council of the City of Palo Alto RESOLVES as follows: SECTION 1. Findings and Declarations. a. The City of Palo Alto desires to implement a pilot program to temporarily allow the use of Personal Delivery Devices (PDDs), also known as Autonomous Robots for the purpose of delivering goods from Palo Alto businesses to Palo Alto customers. b. The use of the PDDs, activated by customers’ smartphones, will initiate the delivery of purchases when convenient for the customer and the robots will deliver the items directly to the customer’s location. c. PDD technology may reduce the inefficiencies associated with failed deliveries, facilitate the return of unwanted goods, and reduce the number of vehicle trips and the resultant emissions associated with the delivery of goods from local establishments. d. Palo Alto Municipal Code Chapter 12.09 sets forth regulations applicable to the operation and maintenance of equipment in the public rights of way and Chapter 12.12 authorizes the City Manager to issue permits for structures encroaching on public rights of way, but the City does not currently have a regulation that specifically addresses the operation of PDDs on City sidewalks, crosswalks and other public rights-of-way. e. PDDs are an emerging technology with an unproven track record with respect to public safety and impacts on the flow and circulation of pedestrian, bicycle, and vehicle traffic. Additional regulation is necessary to ensure the safe and harmonious use of sidewalks and public rights of way in the City of Palo Alto consistent with the public health and welfare. SECTION 2. Pilot Program Regulations. a. PDD means a motorized device used to transport items, products, or any other materials, and that is guided or controlled without a human operator sitting or standing upon and actively and physically controlling the movements of the device. b. The City Manager or his designee is hereby authorized to adopt, and from time to time amend, regulations governing the operation of PDDs within the City of Palo Alto. Such regulations shall address, at a minimum, the following topics: 1. Maximum speed; 2. Areas of operation; 3. Paths of travel; 4. Additional precautions to ensure safe and convenient pedestrian circulation. SECTION 3. Environmental Review. The Council finds that the adoption of this resolution is exempt from review under the California Environmental Quality Act because it can be seen with certainty that there is no possibility of a significant effect on the environment as a result of the PDD pilot program. INTRODUCED AND PASSED: AYES: NOES: ABSENT: ABSTENTIONS: ATTEST: __________________________ _____________________________ City Clerk Mayor APPROVED AS TO FORM: APPROVED: __________________________ _____________________________ Deputy City Attorney City Manager _____________________________ Director of Development Services _____________________________ Director of Public Works Page 1 of 2 INTERIM AUTONOMOUS ROBOT REGULATIONS I. Scope Consistent with Palo Alto City Council Resolution No. _____, this policy applies to any proposed deployment of an autonomous robot in public spaces, sidewalks, and public rights of way within the City of Palo Alto’s jurisdictional boundaries. For the purposes of this policy, autonomous robot means a motorized device used to transport items, products, or any other materials, and that is guided or controlled without a human operator sitting or standing upon and actively and physically controlling the movements of the device. II. Procedures a. Any person seeking to operate an autonomous robot within the City of Palo Alto shall first obtain an encroachment permit conditioned on compliance with the Operating Regulations contained in this policy. No person shall operate an autonomous robot in public spaces or in public rights of way within the City except pursuant to such permit. b. The City Manager, in consultation with the City Engineer and Chief Transportation Official, shall establish Operating Regulations governing the operation of autonomous robots. All Permittees shall be required to comply with these regulations as they may be amended from time to time. III. Operating Regulations a. Maximum speed. When operating on public sidewalks, ADA ramps or within crosswalks, robots shall not travel faster than 3.5 feet per second. b. Paths of Travel. Autonomous robots shall yield to pedestrians and other users of sidewalks and public rights of way. Robots shall not block accessible paths of travel for disabled individuals using mobility devices or otherwise interfere with accessibility features in the public rights of way. Robots shall not travel on roadways except in designated crosswalks. c. Area of operation. Permittees shall operate autonomous robots only within the operating areas described and shown in Exhibit A. These operating areas are subject to change by the City Manager or his designee upon 24 hours’ notice. In addition, robots may be temporarily prohibited from sidewalks and crosswalks within business districts, specific construction areas, and special event areas at any time. d. Visibility. Permittees shall ensure adequate visibility of all autonomous robots during daytime and nighttime hours of use, including but not limited to, the use of flags and flashing lights in order to increase the visibility of the robot. During night time operations robots shall have reflectors at least in front and back, and lights that cover the direction of movement, including white lights in front and red lights in the back, that are is visible up to 300 feet away under normal weather and operating conditions. Robots must include the operator’s name and phone number in a location visible to the public when in operation. e. Human Monitor or Attendant. Permittees shall monitor autonomous robots at all times that they are operating in the public rights of way, either through an attendant who accompanies the robot or through real-time, remote monitoring. For first 30 days that Page 2 of 2 any model of robot is operated in the City of Palo Alto, Permittees shall provide a human attendant to travel with the robot. f. Reporting. Permittees shall report any significant collisions or other operational safety issues to the City within 24 hours of the incident. IV. Effective Dates This Interim Autonomous Robot Policy shall be effective from the date of its approval by the City Manager and shall terminate upon the earlier of December 31, 2018 or the adoption of an ordinance regulating autonomous robots by the Palo Alto City Council. Approved: ___________________________ _______________ City Manager James Keene Date University Avenue Embarcadero Road El Camino Real Alma Street Alma Street Middlefield Road U niversi A l m a S t E m ba r c a de r o R o a Oxford Avenue Harvard enue Wellesley Street Princeton StreetOberlin Street Cornell Street Cambridge Avenue College AvenueWilliams Street Yale Street Staunton Court Oxford AvenueEl Ca mino R eal Churchill Avenue P ark B o ule v ar d Park Avenue E scobita Avenue Churchill Avenue S e q u oia A v e n u e Maripos a Avenue Castilleja Avenu e Mira m o nte A v en ue M adrono Avenue P ortola A venue Manzanita Avenue Coleridge Avenue Leland Avenue Stanford Avenue Birch Street Ash Street Lowell Avenue Alma Street Tennyson Avenue Grant Avenue Sheridan Avenue Jacaranda Lane El Camino Real Sherman Avenue Ash Street Page Mill Road Mimosa Lane Pepper Avenue Olive Avenue AcaciaA Page Mill Road Ash Street College Avenue Cambridge Avenue New Mayfield Lane Birch Street California Avenue Park Boulevard Nogal Lane Rinconada Avenue Santa Rita Avenue Park Boulevard Seale Avenue Washington Avenue Santa Rita Avenue Waverley Stree Bryant Street High Street Emerson Street Alma S treet Hig t Waverley Oaks Emerson Street Nevada Avenue North California Avenue Santa Ramona S High Street North California Av Oregon Expresswa Homer Avenue Lane 8 West M e d i c al F o u n d a tio n W ay Lane 7 West Lane 7 East E mb a r c a de ro R o a d E n cin a A ve n u e El C a mino R eal U r b a n L a n e W ells A v en ue Forest Avenue High Street Emerson Street Channing Avenue Alma Street Alma Street El Camino Real Mitchell Lane enue Everett Avenue Lytton Avenue Lane 15 E High Street t Bryant Street Lan e 6 E Lane 11 W Lane 21 High Street Gilman Street Hamilton Avenue University Avenue Bryant Court Lane 30 Florence Street Kipling Street Tasso Street Cowper Street Ruthven Avenue Hawthorne Avenue Lane 33 PaloAltoAvenue Everett Avenue Poe Street Waverley Street Tasso Street Cowper Street alo Alto Avenue Webster Street Everett Court Lytton Avenue Byron Street Street Middlefield Road Churchill Avenue Lowell Avenue Seale AvenueTennyson Avenue Melville Avenue Cowper Street Tasso Street Webster Stre Byr Coleridge Avenue Waverley Street Bryant Street Emerson Street Kellogg Avenue Kingsley Avenue Lane A West Lane B West Lane B East Lane D West Lane 59 East Whitman Court Kellogg AvenueEmbarcadero R o a d Kingsley Avenue Lincoln AvenueAddison Avenue Lincoln Avenue Forest Avenue Downing Lane Homer Avenue Lane D East Lane 39 Lane 56 Hamilton Avenue Webster Street Waverley Street Kipling Street Bryant StreetRamona Street Addison Avenue Scott Street Byron Street Seneca Street Lytton Avenue Guinda Street aloAltoAve Fulton StreetMiddlefield Road Forest Avenue Webster Street Kellogg Avenue Middlefield Road Byron Street Webster Street Cowper Street Tasso Street Cowper Street Addison Avenue Lincoln Avenue Boyce Avenue Forest AvenueHamilton Avenu Homer Avenue Guinda Street Middlefield Road Channing Avenue Un Channing Avenue Addison Avenue Lincoln Avenue Regent Pl Guinda Street Lincoln Avenue Fulton Street Melville Avenue Byron Street Kingsley Avenue Melville Avenue Forest AvenueForest Somerset Pl Pitman Avenue Fife Avenue Forest Avenue Linco Coleridge Avenue Lowell Avenue Fulton StreetCowper Street Tennyson Avenue Middlefield Road Guind Webster Street Kirby Pl Kent Place Tevis Pl Martin Avenue Center Drive Harriet Street Wi l s o n S t r e e t Cedar Street Harker Avenue Greenwood Avenue Hutchinson Avenue Channing Avenue Hopkins Avenue E mb a r cad e r o R oad Ashby Drive Dana Pitman Avenue Arcadia Place New Sharon Ct W Newell Road Parkinson Avenue Pine Street Kings La Ramona Street Addison AvenueChanning Avenue Waverley Street Tennyson Avenue Seale Avenue M Sedro Lane Peral Lane Paulsen Ln Community Lane Lane 15 E Sheridan Avenue Emerson Street Lane 20 WLane 20 E University Avenue CalTrain RO W CalTrain RO W Emerson Street Waverley Street Kipling Street Bryant Street Ramona Street Stanford Avenue Lane 12 WLane 5 E Lasuen Street Escondido Road Olmst e d Road L a n e B L a n e C Everett Avenue Homer Avenue Community Lane Greenwood Avenue Harker Avenue Parkinson Avenue Byron Street Emerson Street z Mall Abrams Court A ngell C ourt Arguello Way Arguello Way Avery M all Ayrshire Farm Lane Barnes CourtBonair Sidin g Bo wdoin S C a m pus Drive Cam pus Drive Ca m pus Drive Campus Drive Campus Drive Campus Dr i v es D riv e C hurchill M all Comstock Circle Aboretum Road Blackwelder Court Cowell Ln ay Dud l ey Lane Escondido Road Escondido Road Escondido Road Galvez Mall G alv e z S tr e e t Galvez Street Galvez Street Hoskins Court Hulme Court Jen k insCour t Knight Way M asters M all McFarland Court Memorial Way N elson M all Nelson Road Oberlin St Comstock Circle Escondido Mall Olmsted Road Olmsted Road Olmsted R o ad Olmsted Road Olms ted Road Palm Drive P a m pas Lane Quillen Ct Rosse Lane Running Farm Lane err a eet Serra Street S erra Street Serra Street Thoburn Court Wellesley St Wilbur Way Yale St Alma Street Alma Street Alma Street Alma Street Hawthorne Avenue Lytton Avenue Sa m M c D onald R o ad Sa m M cD onald M all Bowdoin Lane Arguello Way Birch Street California AveBusiness District Downtown Palo Alto EvergreenMayfield RPP Downtown RPP This map is a product of the City of Palo Alto GIS This document is a graphic representation only of best available sources. Legend City Jurisdictional Limits Cal Ave Business District Downtown Palo Alto Assessment Parcel 0'800' Palo Alto Business DistrictsCITYOF PALO A L TO I N C O R P O R ATE D C ALIFOR N IA P a l o A l t oT h e C i t y o f A P RIL 16 1894 The City of Palo Alto assumes no responsibility for any errors. ©1989 to 2016 City of Palo Altortong, 2017-10-17 16:47:54 (\\cc-maps\Encompass\Admin\Personal\rtong.mdb) EXHIBIT A