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HomeMy WebLinkAboutStaff Report 2511-5416, Staff Report 2510-5311CITY OF PALO ALTO Climate Action and Sustainability Committee Thursday, November 20, 2025   Agenda Item     1.Status Update on Sustainability and Climate Action Plan Mobility Goals and Key Actions and Request for Feedback on Tentative 2026-2027 Work Plan Items. CEQA Status - Not a project. Late Packet Report Added, Staff Presentation Climate Action and Sustainability Committee Staff Report Report Type: ACTION ITEMS Lead Department: Transportation Meeting Date: November 20, 2025 Report #:2511-5416 TITLE Status Update on Sustainability and Climate Action Plan Mobility Goals and Key Actions and Request for Feedback on Tentative 2026-2027 Work Plan Items. CEQA Status - Not a project. This report will be a late packet report published on November 13, 2025 8 3 8 8 Climate Action and Sustainability Committee Staff Report From: City Manager Report Type: ACTION ITEMS Lead Department: Public Works Meeting Date: November 20, 2025 Report #:2510-5311 TITLE Status Update on Sustainability and Climate Action Plan Mobility Goals and Key Actions and Request for Feedback on Tentative 2026-2027 Work Plan Items. CEQA Status – Not a project. RECOMMENDATION This is a discussion item, and no action is requested. Staff is seeking feedback on the tentative Mobility-related work items for the 2026-2027 Sustainability and Climate Action Plan (S/CAP) Work Plan and the City’s current level of effort on Vehicle Miles Traveled (VMT) and mode shift S/CAP Goals. EXECUTIVE SUMMARY This report provides an update on progress on the City’s S/CAP Mobility Goals and tentative work items for the 2026-2027 S/CAP Work Plan. As of the 2023 community greenhouse gas (GHG) inventory, the community had exceeded its 2030 VMT reduction goal but had not made significant progress on its mode shift goal. Many of the gains in VMT reduction were driven by remote work and vacancies during the pandemic, and there has been some erosion of those gains. It remains to be seen whether there will be additional increases in VMT in the 2024 GHG inventory or in future years, but regardless, the City has made significant progress. Staff has tentatively identified various 2026-2027 S/CAP Work Plan work items to continue to implement efforts to expand the bicycle and pedestrian transportation system, enhance transit access, pilot micromobility programs, and improve safety. Although resource needs are outlined, staff expects needs to be considered in the context of the FY 2027 budget process which is expected to bring ongoing expense reductions. BACKGROUND 8 3 8 8 The S/CAP adopted in June 20231 has a goal of 80% reductions in transportation emissions from 1990 levels by 2030. As of 2019, transportation represented about 60% of remaining greenhouse gas emissions. Reducing single-occupancy vehicle travel not only has GHG reduction benefits, but also improves community sustainability in other ways, as discussed in the S/CAP Co-Benefits Analysis.2 These impacts are reflected in two key Mobility goals: Reduce total vehicle miles traveled 12% by 2030, compared to a 2019 baseline Increase mode share of biking, walking, and transit work trips from 19% to 40% by 2030 3 to achieve the City's Mobility Goals listed above. The 2021 Impact Memo4 by a City consultant, AECOM, assessed one possible pathway to achieve those reductions includes about 22,200 metric tons of carbon dioxide equivalent (MT CO2-e) per year from reductions in vehicle miles traveled (VMT) through telecommuting and mode shift. Table 1: VMT and GHG Trends, 2019 to 2023 Methodology 2019 2023 VMT (miles)952 million 598 millionFehr and Peers (2019) + Google EIE (2023)GHG (MT CO2-e)293,413 225,386 VMT (miles)739 million 598 millionBased on Google EIE only, both years GHG (MT CO2-e)302,000 225,386 1 https://www.paloalto.gov/files/assets/public/v/1/sustainability/reports/2022-scap-report_final.pdf 2 https://www.paloalto.gov/files/assets/public/v/1/sustainability/reports/palo-alto-action-evaluation-memo-2021- 02-11.pdf 3 See page 53 of the S/CAP: https://www.paloalto.gov/files/assets/public/v/1/sustainability/reports/2022-scap- report_final.pdf#page=53 4 https://www.paloalto.gov/files/assets/public/v/2/sustainability/reports/aecom-palo-alto-action-impact- memo_final_rev-210607.pdf 8 3 8 8 ANALYSIS 2-e per year in 2023. Based on back of the envelope estimates by staff (since it is not possible to disaggregate the source of the emissions reductions using Google EIE data), vehicle electrification and improved fuel efficiency likely contributed around 30% of that emissions reduction, which would mean close to 48,000 MT CO2-e per year resulted from VMT reduction, exceeding the assumption in the 2021 impact analysis. 2-e per year as the 2030 target for emissions reduction from VMT reduction, and the community had achieved a 48,000 MT CO2-e per year reduction as of 2023. Regional VMT models suggest that VMT continues to increase post-pandemic, and therefore some of these gains may erode, but at minimum, the community has made progress toward its 2030 VMT goal. Table 2: OOT Work Plan Items Impacting VMT and Mode Shift Long-term VMT Reduction / Mode Shift Short-term VMT Reduction / Mode Shift Implementation of the Bike and Ped Plan and Safety Action Plan, which will enhance the attractiveness of transportation options and provide a complete, connected low- stress network South Palo Alto Bike and Pedestrian Connectivity project Rail grade separations Development and implementation of a Transit Priority Policy Development, implementation and monitoring of a Travel Demand Management (TDM) ordinance for development Safe Routes to School (SRTS) and other bicycle and pedestrian safety programs Near-term bike and pedestrian capital projects e.g. Churchill Enhanced Bikeway Completion of traffic speed surveys and increased speed enforcement efforts Traffic calming projects Bike and pedestrian Municipal Code updates Short-term reduction pilots or opportunities under study Traffic calming policy change Parking policy analysis Micromobility Feasibility Study Palo Alto Link 8 3 8 8 Because of the challenges of measuring the mode shift and VMT reduction results of individual programs and investments, especially when multiple programs and investments work in concert to contribute to VMT reduction, it is unclear how much mode shift these efforts will produce. In some cases, it is possible to measure results, such as with the Palo Alto Transportation Management Association (PATMA). PATMA has expanded its activities due to increased Council funding. VMT reduction associated with PATMA’s work was estimated at 1,540,000 miles in 2024 while estimated GHG reduction was 603.4 tons. Table 3: Tentative 2026-2027 S/CAP Work Plan Items Work Item Description Resource Availability Bicycle and Pedestrian Capital Projects Complete three bicycle / pedestrian projects Funded, proceed as staff time available Implement Micromobility Feasibility Study recommendations Pursue a bike/e-bike/e-scooter share pilot program or recommendations of the Micromobility Feasibility Study Fully staffed and funded (study) Downtown Parking Pricing and Management Develop parking policy options for Council consideration Proceed as staff time is available (advancement within a year requires 0.5 FTE) Traffic Signal Upgrades and Timing Efforts Upgrade traffic signals to optimize multimodal performance Proceed as staff time and funding are available Housing Element Implementation / Land Use Planning and Policy Implement the goals, policies, and programs in the City's 2023-2031 Housing Element of the Comprehensive Plan to improve the City's jobs-housing balance and to reduce vehicle miles traveled (VMT) Funded Table 4: Potential Additional Work Items for Higher Level of Effort Work Item Additional FTE Additional Non -Salary Advance Downtown Parking Pricing and Management and Traffic Signal Upgrades and Timing Efforts (see Table 3) by one year 1 FTE Associate Engineer Accelerating infrastructure investment: Accelerate design and delivery of planned improvements 2 FTE Engineer Launching and operating a Micromobility Program 0.5 FTE Planner $200,000 8 3 8 8 Expanding transit service such as shuttles or Palo Alto Link $2,000,000 per year Table 4 (continued): Potential Additional Work Items for Higher Level of Effort Work Item Additional FTE Additional Non -Salary Conduct a Land Use and Transportation Study: Identify and utilize a data platform to project scenarios of housing growth and mobility impacts to inform next CIPs and Comprehensive Plan 0.5 FTE Planner $300,000 Establish Transportation Demand Management Ordinance (TDM): Update TDM requirements 1 FTE Planner Adult-Focused Bike, Walk, Transit Education & Encouragement Programs: Create education & encouragement programs for adult commuters and older adults 0.3 FTE Planner $600,000 per year FISCAL/RESOURCE IMPACT The work items included in the 2026-2027 S/CAP Work Plan (Table 3) are funded in the FY 2026 budget, with some additional funding that would be proposed in the FY 2027 budget. The tentative 2026-2027 S/CAP Work Plan (Table 3) includes items, such as Bicycle and Pedestrian Capital Projects and Housing Element Implementation, which are funded in the FY 2026 budget and will proceed as staff time is available. Table 4 includes items that could be proposed in the FY 2027 budget if the City Council wished to expand the level of effort on Mobility goals. However, staff are expecting a need to reduce expenses in FY 2027 and beyond as noted in a recently released Finance Committee staff report. Therefore, resource needs and funding availability is recommended to proceed in-line with the FY 2027 citywide budget process and priority setting. STAKEHOLDER ENGAGEMENT For non-traffic signal items, typical stakeholder engagement includes outreach via social media and mailers to local residents, and engagement via community meetings and advisory committees. ENVIRONMENTAL REVIEW The Committee’s discussion of the status of current City efforts on the Mobility element of the S/CAP is not a project as defined by CEQA because it does not involve any commitment to any specific project which may result in a potentially significant physical impact on the environment. CEQA Guidelines section 15378. ATTACHMENTS 8 3 8 8 Attachment A: Tentative 2026-2027 S/CAP Work Plan Mobility Items APPROVED BY: Attachment A 9 7 8 9 Tentative 2026-2027 S/CAP Work Plan Mobility Items Mobility Achieve Benchmarks for Bicycle and Pedestrian Capital Improvement Projects S/CAP Key Action(s): M1, M2, M3 Target Completion Date: Varying, by 2027 Resource Availability: Varying Description: South Palo Alto Bikeways Demonstration Project: Upgrade crossings and bicycle facilities on East Meadow Dr and Fabian Way to improve safety, especially for students traveling to school. Pilot construction anticipated for summer 2027. Project is fully staffed and funded. Churchill Avenue Enhanced Bikeway Project: Improve walking and bicycling on Churchill Avenue with a multi-use path, intersection improvements, and landscaping. Project work is focused between the Caltrain tracks and El Camino Real. Construction is scheduled to finish by fall 2026. Quarry Road Extension at El Camino Park: Develop underused portion of El Camino Park to provide a direct connection from El Camino Real to the Palo Alto Transit Center. Project is led by Stanford. By fall 2027, project will complete the Caltrans process for the Encroachment Permit and prepare plans, specifications, and estimate construction documents for the project in both Caltrans and City right-of-way. In addition, the team will perform both a bike and transit operations assessment and recommend operational scenarios to inform future bikes, bus and shuttle operations in and around the Transit Center. South Palo Alto Bike/Ped Connectivity: Identify locations and design concepts for additional east-west bicycle and pedestrian crossings of the Caltrain railroad tracks in the southern part of the City. Study will complete following Council adoption of a final report in fall 2026, and next steps include securing grant funding for final design and construction. Implement Micromobility Feasibility Study recommendations S/CAP Key Action(s): M1, M2 Target Completion Date: 2027 Resource Availability: Fully staffed and partially funded, need to evaluate based on recommendation. Description: Pursue a bike/e-bike/e-scooter share pilot program or other recommendation as advised by the Micromobility Feasibility Study, to be finalized in early 2026. Conduct a Land Use and Transportation Study S/CAP Key Action(s): M6 Target Completion Date: Unknown Resource Availability: Proceed as staff time is available. Will need staff time and a cross- departmental committee. Attachment A 9 7 8 9 Description: Develop a data platform to project various scenarios of housing growth and subsequent mobility impacts. This internal study would inform future discussions for the City’s next comprehensive plan and area plans. Downtown Parking Pricing and Management S/CAP Key Action(s): M5, M10 Target Completion Date: 2028 Resource Availability: Proceed as staff time is available for parking policy and operations. Description: Explore parking policy and pricing options to manage parking supply and availability. Work will include engagement of business community, residents and City Council on options to be developed in conjunction with a new parking permit vendor. Following Council consideration and selection of preferred options, staff will explore next steps for implementation Establish Transportation Demand Management Ordinance (TDM) S/CAP Key Action(s): M4 Target Completion Date: Ongoing Resource Availability: Currently unstaffed. Description: Clarify existing TDM conditions of approval and monitoring procedures. Formalize TDM requirements by ordinance and require new developments above a certain size threshold to prepare and implement a TDM Plan to meet specific performance standards. Require new development projects to pay a Transportation Impact Fee for all those peak-hour motor vehicle trips that cannot be reduced via TDM measures. Evaluate possible alternatives to expand voluntary TDM services (e.g. expanding the Transportation Management Association). Adult-Focused Bike, Walk, Transit Education/Encouragement Programs S/CAP Key Action(s): M1, M4 Target Completion Date: 2027 Resource Availability: Proceed as staff time and funding is available. Description: Create education and encouragement programs for adult commuters and older adult residents and visitors. Partner with local organizations with expertise in this area. City could direct funding to Palo Alto TMA or others to do this work. Utilize HRC or create a stakeholder committee to understand pain points in mode shift journey for adults. Traffic Signal Operations and Multimodal Improvements S/CAP Key Action(s): M8 Target Completion Date: On-going Resource Availability: Mostly funded, long- term funding needs being evaluated Description: Maintain and modernize current traffic signals and central management systems. Use technology to improve traffic operations and safety. Work with transit providers on transit signal priority where feasible. Projects that include operational improvements include the Quarry Road Intelligent Transportation Systems and Operations Improvement (in-progress), Citywide Central Attachment A 9 7 8 9 Management and ITS Updates (Ongoing), Citywide Arterial Operations Optimization (on- going pending staff resources), and Automated Traffic Signal Performance Measure (ATSPM) implementation (near-future). Each of these projects includes multimodal improvements and optimization to improve operations and reduce emissions. Housing Element Implementation / Land Use Planning and Policy S/CAP Key Action(s): M7, M9 Target Completion Date: 2030 Resource Availability: Funding via grants and annual City budget process Description: Implement the goals, policies, and programs in the City's 2023-2031 Housing Element of the Comprehensive Plan to improve the City's jobs-housing balance and to reduce vehicle miles traveled (VMT). Implementation will continue creating a housing density and land use mix that supports transit and non-SOV (Single Occupancy Vehicle) transportation modes. Implementation includes efforts on land use and area plans, housing plans, development standards, and affordable housing projects. Update City’s Traffic Calming Policy and Process S/CAP Key Action(s): M1, M2 Target Completion Date: End of 2027 Resource Availability: Proceed as staff time available Description: Update the City’s Traffic Calming Process to provide more clarity on traffic calming design details and criteria for consideration in relation to engineering judgment Status Update on Mobility Work Plan Climate Action and Sustainability Committee November 20, 2025 www.paloalto.gov 2 2Acting Now for A Resilient Future paloalto.gov/ClimateAction Objectives •Provide a status update on Mobility goals and key actions •Share planned and potential 2026-2027 S/CAP Work Plan Mobility work items •Seek Committee feedback on the work items 3 3Acting Now for A Resilient Future paloalto.gov/ClimateAction Status: Mobility Goals and KPIs •Goal 1: Reduce total vehicle miles traveled (VMT) 12% by 2030, compared to a 2019 baseline. –Status: At least a 25% reduction 2019 through 2023 •Goal 2: Increase the mode share for active transportation (walking, biking) and transit from 19% to 40% of local work trips by 2030 –Status: Mode share remains at about 20% 4 4Acting Now for A Resilient Future paloalto.gov/ClimateAction Challenges with VMT Measurement •No access to detailed monitoring of every vehicle entering and leaving Palo Alto and its origin, destination, and type –2019: used Valley Transportation Authority (VTA) model –Since then have relied on Google Environmental Insights Explorer (EIE) data. 2019 Google EIE estimate lower than VTA model •Google EIE has not yet published 2024 data, normally would be published by now –Has not communicated why, or timeline for release –Staff exploring alternatives •This limits our ability to understand how VMT is changing from 2023 levels and impact on status of our KPIs 5 5Acting Now for A Resilient Future paloalto.gov/ClimateAction Current OOT Work Items Long-term VMT Reduction / Mode Shift Short-term VMT Reduction / Mode Shift •Bike and Ped Plan and Safety Action Plan implementation •South Palo Alto Bike and Pedestrian Connectivity project •Rail grade separations •Transit Priority Policy •Travel Demand Management (TDM) ordinance development, implementation, and monitoring •Safe Routes to School (SRTS) and other bicycle and pedestrian safety programs •Near-term bike and pedestrian capital projects e.g. Churchill Enhanced Bikeway •Completion of traffic speed surveys and increased speed enforcement efforts •Traffic calming projects •Bike and pedestrian Municipal Code updates •Pilots and opportunities under study •Traffic calming policy change •Parking policy analysis •Micromobility Feasibility Study •Palo Alto Link 6 6Acting Now for A Resilient Future paloalto.gov/ClimateAction 2026-2027 S/CAP Work Plan Items Planned Items Work Item Description Bicycle and Pedestrian Capital Projects Complete three bicycle/pedestrian projects Implement Micromobility Feasibility Study recommendations Pursue a bike/e-bike/e-scooter share pilot program or recommendations of the Micromobility Feasibility Study Downtown Parking Pricing and Management Develop parking policy options for Council consideration Traffic Signal Upgrades and Timing Efforts Upgrade traffic signals to optimize multimodal performance Housing Element Implementation / Land Use Planning and Policy Implement the City's 2023-2031 Housing Element of the Comprehensive Plan to improve the City's jobs-housing balance 7 7Acting Now for A Resilient Future paloalto.gov/ClimateAction 2026-2027 S/CAP Work Plan Items Potential Additional Items Work Item Additional FTE / Non-Salary Advance Downtown Parking Pricing and Management and Traffic Signal Upgrades and Timing by one year 1 FTE Associate Engineer Accelerating infrastructure investment 2 FTE Engineer Launching and operating a Micromobility Program 0.5 FTE Planner and $200,000 Expanding transit service (such as shuttles or Palo Alto Link)$2,000,000 per year Conduct a Land Use and Transportation Study 0.5 FTE Planner and $300,000 Establish Transportation Demand Management Ordinance (TDM)1 FTE Planner Adult-Focused Bike, Walk, Transit Education & Encouragement Programs 0.3 FTE Planner and $600,000 per year