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HomeMy WebLinkAboutStaff Report 2603-6116CITY OF PALO ALTO CITY COUNCIL Special Meeting Monday, June 08, 2026 Council Chambers & Hybrid 5:30 PM     Agenda Item     15.San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan. CEQA Status: Exempt under CEQA Guidelines Section 15262. Staff Presentation, Public Comment CITY COUNCIL Staff Report From: City Manager Report Type: ACTION ITEMS Lead Department: Planning and Development Services Meeting Date: June 8, 2026 Report #: 2603-6116 TITLE San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan. CEQA Status: Exempt under CEQA Guidelines Section 15262. RECOMMENDATION Staff recommends that the City Council: 1. Endorse the core scenario for the San Antonio Road Area Plan as the basis for Phase 3 analysis, modified as needed to reflect Council priorities; and 2. Authorize the transportation analysis described in Attachment A, to be completed and presented to Council in Q4 2026 alongside a recommended land use and transportation plan. EXECUTIVE SUMMARY The San Antonio Road Area Plan is a City-led initiative to develop an integrated land use and transportation vision for the 275.3-acre corridor along San Antonio Road, with goals of increasing housing production, improving multimodal mobility, creating new outdoor spaces, and supporting commercial vitality. Based on feedback received at the April 6, 2026 study session, staff has developed a core scenario -- a defined set of land use and mobility assumptions -- to serve as the foundation for Phase 3 analysis. Council is asked to endorse the core scenario and authorize the transportation analysis that will evaluate its implications. Endorsing the core scenario today is not a final land use decision. It is the step that allows staff to focus analytical resources on a well-grounded set of assumptions so that a rigorous transportation analysis can be conducted. That analysis will validate, refine, or adjust the core scenario as needed, and will be presented to Council in Q4 2026 alongside a recommended plan for a decision on the preferred alternative to carry into environmental review. If, after reviewing the Q4 analysis, Council wishes to pursue a different direction, the project team will adjust accordingly. The core scenario and the transportation analysis work plan are described in Attachment A. A summary is provided in the Analysis section of this report. BACKGROUND The vision for San Antonio Road is of a vibrant mixed-use corridor connecting pedestrian-oriented neighborhoods where people of all incomes can live, work, and thrive; where safe streets, transit, and green infrastructure can support shorter commutes, reliable transit, and climate resilience; and where a dynamic economy attracts new businesses while sustaining local shops and services that define the community. 1 The session marked a pivotal milestone in Phase 2 of the planning 1 April 6, 2026, City Council Meeting: https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=87034&dbid=0&repo=PaloAlto process, with staff presenting alternatives that explored meaningful tradeoffs across building heights and residential densities, the role of office development in the CTI (Commercial Street, Transport Street, and Industrial Avenue) sub-area, bicycle and pedestrian facility design, and the distribution of parks and ground-floor retail across four primary sub-areas: Central San Antonio, South Fabian, North Fabian, and CTI. Financial analysis presented at the session identified the 90-foot mid-rise building type as the most financially feasible near-term option for apartment housing production with townhome development being the most feasible overall. Office development in the CTI sub-area was identified as a potential mechanism to improve project feasibility and fund public benefits such as parks and infrastructure. ANALYSIS Core Scenario Overview The core scenario covers land use, outdoor space, and mobility. Its purpose is not to finalize a plan but to establish a defined starting point that focuses the transportation analysis and subsequent policy development. Attachment A provides full detail, including the alternative concepts that will be examined alongside the core scenario. Attachment B provides background on how land use and transportation planning are integrated in the Area Plan framework, including the tradeoffs between office, residential, and mixed-use development types. The following summarizes the key elements for Council's consideration. Building Heights and Density The core scenario establishes 90 feet (8 stories) as the height standard across all primary sub- areas – CTI, North Fabian, South Fabian, and Central San Antonio – reflecting the most financially feasible building type under current market conditions for near-term apartment housing production, which is consistent with development applications already in the pipeline. Where primary sub-areas abut lower-density residential neighborhoods, a 60-foot maximum applies as a transition, with setbacks and step-downs as additional tools. Secondary sub-areas and areas of stability maintain existing height limits. To provide a meaningful basis for comparison, the transportation analysis will evaluate the core scenario against a current-zoning baseline – not simply existing conditions, but the development that could reasonably be expected to occur under current zoning. This comparison isolates the transportation effects attributable to the higher household densities the core scenario enables, which is the primary driver of changes in travel demand. Under current zoning, the plan area could yield up to approximately 5,700 residential units. The core scenario – by increasing allowed heights and densities in key areas – could yield up to approximately 6,700 units, roughly 1,000 more. Office and Retail New office and R&D is limited to the CTI sub-area, focused on conversion of existing older commercial and industrial space to Class A office at a scale intended to maintain employment levels while reducing the City's jobs-housing imbalance. Retaining a meaningful commercial component in the plan area also supports the City's long-term fiscal health. Higher-density residential development advances important housing and State policy goals but tends to generate a more modest return to the City's General Fund relative to commercial uses; without some equivalent growth in commercial activity, per-capita General Fund revenue can decline over time, placing pressure on the City's ability to maintain service levels. Preserving office development in the plan area helps balance this fiscal equation as the corridor grows. The core scenario includes 750,000 square feet of office and R&D space in the CTI sub-area (gross, not net new), with an overall net reduction in commercial square footage across the plan area. Neighborhood-serving retail is required at key nodes -- within CTI, within North Fabian, and at the San Antonio Road/Middlefield Road intersection -- and is designed to be co-located with outdoor space to support walkable, community-oriented neighborhoods. Where retail is not required, expanded ground-floor use allowances encourage active frontages without mandating retail. decision on the preferred alternative to carry into the administrative draft of the Area Plan and environmental review. NEXT STEPS POLICY IMPLICATIONS public spaces. Program L2.4.1 required the City to amend the Housing Element to increase housing sites along San Antonio Road between Middlefield Road and East Charleston Road. FISCAL/RESOURCE IMPACT STAKEHOLDER ENGAGEMENT • Pedestrian and Bicycle Advisory Committee -- March 3, 2026 • Human Relations Commission -- March 17, 2026 • Architectural Review Board -- March 19, 2026 • Parks and Recreation Commission -- March 24, 2026 • Planning and Transportation Commission -- March 25, 2026 • City/School Transportation Safety Committee -- March 26, 2026 • Youth Council -- March 31, 2026 ENVIRONMENTAL REVIEW The actions recommended in this report are exempt from review under the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15262: a project involving only feasibility or planning studies for possible future actions that has not been approved, adopted, or funded would not have significant impact on the environment. The City will prepare an environmental analysis for the San Antonio Road Area Plan when more project specifics have been identified. ATTACHMENTS Attachment A: San Antonio Road Area Plan Core Scenario Attachment B: San Antonio Road Area Plan Integrated Land Use and Mobility Approach APPROVED BY: Jonathan Lait, Planning and Development Services Director 1 San Antonio Road Area Plan Core Scenario The following topics are addressed in this attachment: Overview ....................................................................................................................................... 1 Land Use ....................................................................................................................................... 2 Growth Projections ....................................................................................................................... 5 Outdoor Space ............................................................................................................................ 11 Mobility ....................................................................................................................................... 14 Core Scenario and Work Plan Summary ...................................................................................... 21 Overview The proposed work plan for phase three of the project, described in this attachment, focuses on a single core scenario (a high-level set of standards and development concepts) based on feedback received from the City Council, advisory bodies, and the public. For portions of the Area Plan for which there was no consensus, or for which Council members requested additional information, staff will also analyze additional concepts that the project team will explore. The Area Plan will create a 20-year vision for the San Antonio Road corridor, with a focus on four main goals: • Create a more livable community: Encourage residential and mixed-use development, with housing at all income levels, and access to well-designed public spaces and neighborhood services and retail. • Improve mobility and safety: Enhance streets, sidewalks, bike lanes, and transit connections for easier and safer travel for all users. • Support sustainability: Promote development with fewer, shorter commutes, integrate green infrastructure, increase tree canopy, and build resilience to climate change. • Enhance economic vitality: Attract new businesses, strengthen Palo Alto’s economy, and preserve valued local businesses. To achieve these goals, staff recommends an approach which divides the plan area into sub areas and then separates these into areas of change and areas of stability. Land use priorities are proposed for the areas of change, while mobility priorities apply to the entire plan area. Combined, staff refers to the policy recommendations for land use and mobility provided in this report as the core scenario. The core scenario includes how to develop new neighborhoods in the Commercial Street, Transport Street, and Industrial Avenue (CTI) area and along Fabian Way, as well as new development along San Antonio Road itself. There will be a focus on how 2 to create new outdoor and community spaces, integrate local-serving retail and employment, create connections to existing and new transit, and improve bike and pedestrian safety and connectivity. Land Use The core scenario divides the plan area into Primary Sub-Areas, Secondary Sub-Areas, and Areas of Stability (refer to Figure A). The Primary Sub Areas include the CTI (Commercial Street, Transport Street, Industrial Avenue) area, North Fabian, South Fabian, and Central San Antonio. These areas have the greatest potential for redevelopment and can contribute to creating new neighborhood-serving amenities like outdoor space and retail. The Secondary Sub-Areas include East and West Bayshore, and Alma Street. These areas have limited redevelopment potential in the near term. Areas of Stability include Greenhouse, Green Meadow, and South San Antonio; areas that are 100% built-out with low redevelopment potential. While Green Meadow is not part of the plan area, parts of Green Meadow and South San Antonio are within the impact area of Senate Bill 79 (2025, SB 79), which allows higher density for projects meeting specific criteria. Utilization of SB 79 in these neighborhoods, however, is likely very low due to existing conditions in these areas. The land use direction for the Plan Area is summarized below, addressing identified issues and opportunities in the Plan Area: • Create new neighborhoods in the CTI and North Fabian sub-areas, focusing on appropriate land use mixes to encourage housing diversity, while encouraging infill residential development in the Central San Antonio and South Fabian sub-areas. • Focus outdoor space, neighborhood-serving retail, services, and amenities in new neighborhoods, to create spaces for community interaction and to promote walkability. • Create smaller, walkable blocks where possible. • Infill San Antonio Road with residential uses, supported by pedestrian-focused public realm improvements such as separated bike lanes (also known as cycle tracks), shade trees and vegetation, etc. Figure A. Sub-Areas for Alternatives 3 Housing Reflecting feedback received from the Council study session and given high housing demand and developer interest in the plan area, the core scenario will examine increasing allowed maximum building heights to 90 feet in a way that allows for a height transition to low-density residential neighborhoods. Under the core scenario, new development south of San Antonio Road (including the CTI neighborhood) as well as areas between Fabian Way and San Antonio Road would allow buildings up to 90 feet in height, with remaining areas remaining at a maximum of 60 feet in height (refer to Figure B). Increasing allowed heights to 90 feet allows maximizing midrise buildings, the most typical feasible building type under current market conditions, and consistent with development applications received for the south side of San Antonio Road. This will encourage redevelopment and could deliver new housing and amenities sooner. However, the Area Plan will also include policies or regulations to minimize abrupt height transitions to adjacent, lower- density residential neighborhoods through a 60-foot maximum height in some areas, and possible setbacks and step-downs as additional tools. Based on comments heard at the April 6, 2026, study session with Council, the project team will evaluate this core scenario against an alternative where the zoning does not change and the entire area remains at a maximum of 60 feet in height in order to understand the transportation-related effects between the two scenarios (refer to the Mobility section for more information). The work plan will also include an exploration of potential effects if limited commercial development is allowed to exceed 90 feet in the CTI neighborhood, which could increase project profitability and could provide for additional community benefits (such as public outdoor space and affordable housing), as well as the potential increasing minimum densities in North Fabian sub area (Maxar site) to incentivize greater housing variety and affordability. Commercial Development – Office and Research & Development (R&D) The core scenario will include development of parameters for office/R&D space in the CTI neighborhood. The City has long been an employment center, which has benefited the City financially but has also resulted in a jobs/housing imbalance. In order to maintain the economic health of the plan area, the core scenario will support the conversion of existing commercial (office, R&D, light industrial, and manufacturing space) to class A office/R&D space. This will provide the benefit of refreshing the City’s commercial building stock, allowing it to remain competitive when attracting employers, while also leveraging developer benefits for the City. The level of office space proposed in the core scenario, when combined with the housing units allowed, will reduce the City’s jobs/housing imbalance. The project team will develop a methodology to calculate the amount of new office/R&D space that will maintain employment levels, explore mechanisms for regulating office/R&D space, develop a methodology to assess community benefits from commercial development, and determine if office/R&D space should be restricted to specific parcels of the CTI sub-area. 4 5 Commercial Development – Retail The core scenario will include requirements related to local-serving retail within the plan area. The City has, and is adjacent to, several regional retail draws such as the Stanford Shopping Center, El Camino Real corridor, and shopping centers in Mountain View and East Palo Alto. The Area Plan will therefore not propose another regional drawing retail center, but instead encourage local-serving retail to support the existing and future neighborhoods within and nearby the plan area. The core scenario will explore the creation of retail nodes that concentrate these uses where they are most needed, the CTI and North Fabian sub-areas and the intersection of San Antonio Road and Middlefield Road, while allowing (but not requiring) retail in other locations in the Area Plan. Neighborhood-serving retail will be needed to aid in reducing reliance on personal vehicles by providing daily necessities close to new housing. This retail design will work in conjunction with the outdoor space design to create walkable, mixed- use, community-oriented neighborhoods by encouraging “third places” for community gathering by clustering outdoor spaces, retail, and other amenities. Size standards will ensure that new outdoor spaces are well-designed, usable, and accessible for all (refer to the section on outdoor space). The project team will also explore allowing expanded commercial uses for the ground floor in buildings where neighborhood-serving retail is not required. Retail is most successful in locations with specific characteristics, and requiring retail as ground floor use in all new projects could be a barrier for redevelopment or result in a retail vacancy problem. To promote active ground floors in areas where retail is not critically needed, the range of allowed uses can be expanded to provide developers with more flexibility. Overall, the project team will analyze and confirm key locations for required retail, including the minimum amount of retail needed to support existing and future residents, and assess the location and amount of (new and existing) retail recommended for the Area Plan to support more ped/bike trips and reduce vehicle travel. Growth Projections Feedback provided in the Council study session on April 6, 2026, included concern from both residents and Councilmembers about the projected growth represented in the materials presented. This has led the project team to conduct additional analysis related to both current zoning and the proposed core scenario. This analysis included some additional assumptions, described below: • To simplify the comparison of the no plan/current zoning and core scenarios, the analysis looks at a 100% build-out of the sites identified for potential redevelopment 6 in all the sub-areas except for CTI, which has smaller parcel sizes. The build-out for CTI is assumed to be 50% of the sub-area for residential uses.1 1 Note on Buildout Assumptions: Tables A and B reflect 100% buildout of all sub-areas. In practice, buildout rates vary by scenario and sub-area. Under current zoning (Table A), an estimated 60% buildout across much of the plan area can be expected, due to existing parcel configurations, market conditions and various redevelopment incentives. North Fabian is an exception – the planned loss of Maxar's office and R&D operations make full – or nearly full – conversion to housing likely under either scenario. CTI is expected to reach approximately 50% of capacity under current zoning, meaning fewer residential units and more retained commercial space than Table A reflects. Under the core scenario (Table B), overall buildout is expected to increase to approximately 75% across much of the plan area, with North Fabian performing similarly to Table A and CTI seeing meaningfully greater redevelopment activity due to anticipated lot consolidation and development incentive structures. This higher level of redevelopment is also expected to generate increased access to open space and community gathering places, additional affordable housing, greater capacity to help fund corridor mobility improvements, and increased likelihood of successful neighborhood-serving retail and amenities that will support creating a walkable district and reduce vehicle trips. Staff will be prepared to discuss these assumptions in greater detail at the June 8 hearing. 7 Figure C. Potential "change parcels" in Plan Area 8 • The analysis assumes maximum allowed densities for calculating potential yield. For the Maxar site, the minimum gross density is analyzed based on the existing market demand for lower-density for-sale residential development. • The analysis assumes that some existing commercial/industrial uses may be lost as part of the redevelopment. While not shown in the build-out calculations, the plan will require a certain amount of neighborhood-serving retail and services (the amount is to be determined after further analysis). • The analysis has refined the list of potential redevelopment sites and updated the yield of pipeline projects as per new application submittals received by May 1, 2026. Combining both residential and commercial development in the core scenario, and other factors such as current use and ownership, the project team has created a map of which parcels are most likely to redevelop over the next 25 years (Figure C). This analysis, combined with proposed standards under the core scenario and existing pipeline development applications, results in some assumptions about the maximum potential build out under both current zoning (60 feet/five stories) and the core scenario (increase to 90 feet/eight stories in some areas). For purposes of this analysis, the current baseline reflects the development that could reasonably be anticipated under existing conditions, not simply existing conditions, but the redevelopment likely to occur given current zoning, market demand and demonstrated developer interest. As these parcels are under private ownership, there is no guarantee that these parcels will be fully built out during the Area Plan time frame. Contributing factors to potential development include: • Palo Alto’s Housing Element (2023-2031) has identified 53 opportunity sites and allocates 1,559 new housing units to the Plan Area, representing 26% of the citywide housing allocation. • The GM and ROLM zoned parcels within the Area Plan are designated as Focus Area, allowing for more housing production within the Area Plan. Currently, GM and ROLM allow commercial development but very limited office development. • The City’s HIP also applies to a portion of the Area Plan, substantially increasing the development capacity along the San Antonio Road. Maximum development under current zoning (60-foot building height, 90 dwelling units per acre (du/ac) density) yields a total of 5,700 residential units, and a loss of up to 1,484,000 sq ft of existing commercial and industrial uses. Table A below shows the development capacity possible under current zoning for each sub-area. For simplicity, the table does not include potential ground floor uses and potential minimum retail requirements in the CTI and Maxar redevelopment areas. 9 Table A. Current Zoning Potential Development Sub-Areas Existing Commercial Area Existing Residential Units Existing Zoning* Commercial Net Change Residential Net Change (units) CTI Neighborhood 528,800 sf 0 -499,000 sf 1,200 North Fabian 683,000 sf 0 -599,000 sf 1,500 South Fabian 177,000 sf 384 -177,000 sf 800 Central San Antonio 449,000 sf 0 -209,000 sf 1,900 East Bayshore 414,000 sf 0 No change No change West Bayshore 35,000 sf 0 No change 200 Greenhouse 0 sf 228 No change No change South San Antonio 99,000 sf 125 No change No change Alma Street 13,600 sf 65 No change 100 Total 2,399,400 sf 802 units -1,370,000 sf 5,700 units The core scenario includes similar heights and residential densities as the current zoning in some areas, while increasing building heights to 90 feet and 135 du/ac in some areas, while also including 750,000 square feet of new office/R&D space in the CTI neighborhood (gross, not net new). This scenario could yield up to a maximum of 6,700 residential units, an increase of 1,000 units over what current zoning allows, and 750,000 square feet of new office/R&D space with a net loss of 734,000 square feet of existing commercial uses. Table B below shows the development capacity for this alternative for each sub-area. For simplicity, the table does not include potential ground floor uses and potential minimum retail requirements in the CTI and Maxar redevelopment areas. Table B. Core Scenario Potential Development Sub-Areas Existing Commercial Area Existing Residential Units Core Scenario* Commercial Net Change Residential Net Change (units) CTI Neighborhood 528,800 sf 0 251,000 sf 1,800 North Fabian 683,000 sf 0 -599,000 sf 1,500 South Fabian 177,000 sf 384 -177,000 sf 800 Central San Antonio 449,000 sf 0 -209,000 sf 2,300 East Bayshore 414,000 sf 0 No change No change West Bayshore 35,000 sf 0 No change 200 Greenhouse 0 sf 228 No change No change South San Antonio 99,000 sf 125 No change No change Alma Street 13,600 sf 65 No change 100 Total 2,399,400 sf 802 units -734,000 sf 6,700 units 10 11 Outdoor Space The core scenario seeks to ensure that all residents within the plan area are no more than a 10- minute walk from a City park, nature reserve, or privately owned/publicly accessible outdoor space. As the Area Plan sub-areas become more residential and their populations grow, the need for outdoor space (parks, plazas, playgrounds, parklets, etc.) becomes a critical design consideration. Phase One analysis identified gaps in access to outdoor space (refer to Figure D), where much of the Plan Area lacks a park or public outdoor space within a ten-minute walk. These gaps overlap with the CTI and North Fabian sub-areas, where most future development is expected. This will be achieved through improving bike and pedestrian connections to existing outdoor spaces, as well as creating policies that will lead to the creation of new outdoor spaces in the portions of the plan between E. Charleston Road and U.S. 101 (the CTI area and along Fabian Way). In addition, the core scenario will seek to collocate retail and services alongside outdoor space to increase their activation. Based on the feedback received so far, the core scenario (refer to Figure E) will seek to create the largest parks possible supplemented by smaller outdoor spaces. This could include a 3- to 3.5-acre park in the Fabian Way area should the Maxar site redevelop, while an outdoor space larger than 1.5 acre is less likely in the CTI area, due to the small lots found there. These parks would be complemented by paseos and other bike/ped connection improvements (see Mobility section below), including increasing the tree canopy along areas people walk and bike. It is important to note that the City currently owns no parcels within these areas and will need to work with property owners and developers to create new outdoor spaces. The core scenario will set minimum size and location criteria for new outdoor spaces and set minimum requirements for providing these on-site (compared to in-lieu fee). The standards created may differ from those currently applied to low- to mid-density residential developments. Additionally, the project team will coordinate with connectivity and mobility improvements to ensure low-stress and direct pedestrian and bike access to existing and new outdoor spaces. Key street improvements related to outdoor space include: • San Antonio Road is envisioned as a key east-west ped/bike connection with continuous tree canopy to create a pleasant experience connecting new residential areas to amenities and transit. • E. Charleston Road is envisioned as a key north-south ped/bike connection, linking schools and other destinations across San Antonio Road and to Mountain View. • Fabian Way becomes a key bike connection to the Baylands, utilizing the ped/bike bridge over U.S. 101. 12 Table C. Summary of Core Scenario by Sub-Area Primary Sub-Areas CTI Neighborhood Land use: Residential mixed-use, with neighborhood retail required in key location(s). Study the effects of office/research & development space which keep employment in the plan area stable. Height: 90 feet maximum (8 stories). Concepts to explore: Evaluate the comparative effects of 60-foot maximum and 90-foot maximum. Evaluate the effects of allowing Provide new outdoor space in North Fabian sub-area, co-located with neighborhood-serving retail, amenities Provide new outdoor space in interior of CTI sub-area, co-located with neighborhood- serving retail, amenities Proposed new outdoor space in Mountain View project Coordinate with planned US-101 interchange ped- bike improvements Coordinate outdoor spaces with bike-ped improvements on major streets and intersections for enhanced connectivity Figure E. Outdoor space and connectivity strategies for the CTI and North Fabian sub-areas 13 buildings to exceed 90 feet. Evaluate the effects of a reduced office/research & development allowance. North Fabian Land use: Residential mixed-use, with neighborhood retail required in key location(s). Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). Concepts to explore: Explore setting minimum density to encourage midrise residential and minimize townhomes. Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. South Fabian Land use: Residential mixed-use, neighborhood retail allowed but not required. Study expanded list of allowed uses for active ground floors. Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). Concepts to explore: Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. Central San Antonio Land use: Residential mixed-use, with neighborhood retail required in key location(s). Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). Concepts to explore: Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. Other Sub-Areas (Maintain Existing Zoning and Development Standards) East Bayshore Land use: Low-density commercial (maintain existing development standards including heights). West Bayshore Land use: Low-density commercial with residential uses allowed (maintain existing development standards including heights). Greenhouse Land use: Low-density residential (maintain existing development standards including heights). South San Antonio Land use: Low to medium-density residential (maintain existing development standards including heights). Alma Street Land use: Low to medium-density residential with institutional/civic uses (maintain existing development standards). Note that SB 79 will allow higher-density residential for qualifying projects, and two sites are both Housing Opportunity Sites and subject to Senate Bill 4 (2023), the Affordable Housing on Faith Lands Act, which allow for greater development if certain conditions are met. This will be studied by the City as part of separate initiatives. 14 Mobility The Area Plan will reimagine the San Antonio Road corridor as a multimodal spine that balances mobility with placemaking. Any approach needs to incorporate existing users, including those who live in or adjacent to the plan area, those who travel to jobs, retail, and services in and around the plan area and in neighboring communities, and trucks which rely on this route to connect from U.S. 101 to Alma Street and beyond into Mountain View, Los Altos, and Los Altos Hills. The project team’s approach to mobility recognizes that land use and transportation are interdependent and must be planned as a single, integrated system. Travel demand and mode choice are shaped by where homes, jobs, services, and public spaces are located; and mobility strategies are most effective when they reinforce compact, mixed-use, and pedestrian-oriented land use patterns. By aligning transportation investments with planned growth areas and community-serving destinations, the approach focuses on reducing the need for vehicle- dependent trips while expanding the ability of current and future residents, workers and visitors to walk, bike, and take transit to their destinations. To that end, the project team will perform analysis to understand the transportation benefits and considerations of the proposed land use in the core scenario within and through the Area Plan. When staff returns to Council in Q4 2026, it will provide a qualitative and quantitative assessment for the core scenario and defined alternatives under consideration. This will include an understanding of how the proposed land use is expected to affect single-occupancy driving and vehicle miles traveled (VMT), and whether the core scenario gets the City closer to achieving its greenhouse gas (GHG)/air quality, congestion, mode shift, public health, and safety goals. VMT is a useful proxy for evaluating land use options because it shows how location and urban form affect how much people need to drive. VMT can be used as an indicator of land use efficiency, transportation emissions, and system performance and is also correlated with accessibility, safety, and traffic congestion. In practice, lower per-capita VMT generally points to less auto dependence, more efficient land use, and stronger support for walking, biking, and transit. The project team will: • Use transportation-related metrics (such as proximity to similar land use types and effects on VMT) for all of the land use-related options to help inform the decision- making process; • Develop a methodology to evaluate the number and/or proportion of residents within a 10-minute walk or 10-minute low-stress bike ride of key destinations, such as retail, employment, transit stops, schools/child care, grocery stores, and medical/dental facilities, as well as the effects of the proposed mobility interventions (new/enhanced bike facilities, improved transit, etc.); and 15 • Develop a methodology that highlights the different transportation-related benefits and considerations of the current zoning compared to the Core Scenario using proximity to similar land use types and effects on VMT, for Council’s consideration in Q4 of 2026. Mobility strategies emphasize place-based solutions that respond to existing and planned land uses. Street design, transit service, curb and parking policies, and other strategies are used proactively to support desired land use outcomes, such as vibrant commercial corridors, equitable access to jobs and services, and sustainable growth, rather than reacting to congestion after it occurs. By reinforcing the land use-mobility nexus, this approach advances multiple goals simultaneously: improving accessibility, reducing greenhouse gas emissions, enhancing safety, and supporting livable, economically resilient neighborhoods. Key strategies include: • Pedestrian-first design which prioritizes comfortable, accessible, and inviting streets that encourages walking and biking (while recognizing San Antonio as a regional corridor and truck route). • Low-stress bike routes which provide high quality bikeways that meet the needs of people of all ages and abilities. • First/last mile connections which integrate walking, biking, shuttles, and shared mobility to create a seamless journey from doorstep to destination, as well as creating one or more mobility hubs. • Parking and demand management which apply strategies to reduce travel demand and organize allocation of curb space to improve access and efficiency. • Smart corridor technology which uses real-time data, adaptive signals, and digital tools to optimize traffic flow and enhance multimodal safety. The Area Plan will: • Build on and coordinate with prior and current planning and design efforts, including the 2026 Bicycle and Pedestrian Transportation Plan (currently scheduled for final adoption in June 2026), South Palo Alto Bike/Ped Connectivity Project, US-101 Interchange Project, and Fabian Way South Palo Alto Bikeways Demonstration Project. • Prioritize safer connections to schools, parks, retail, and transit, and improved crossings of San Antonio Road at Nita Avenue, Middlefield Road, and Charleston Road. • Enhance connections to San Antonio Caltrain Station and create additional transit options for the area. • Create a comfortable walking and biking experience along and across San Antonio Road, providing separated bikeways or multi-use paths. • Consider an increase in vehicle and truck traffic related to new development in Mountain View and Palo Alto. 16 Figure F. Overall Mobility Direction 17 In the core scenario, primary interventions will focus on the major street corridors: San Antonio Road, East Charleston Road, Middlefield Road, and Alma Street. Where possible, new connections will be made to increase walkability, bikability, and transit accessibility. Connections to Caltrain will be improved, and policies to provide additional transit and create pedestrian-friendly neighborhoods in the CTI area and the Fabian neighborhoods will be included. Bike/ped routes through residential neighborhoods and anti-traffic intrusion measures into residential neighborhoods will also be examined (refer to Figure F). Bike/Ped Infrastructure The Area Plan aims to create a fully connected, accessible, and prioritized network of sidewalks and low-stress bikeways which promote walkability, bicycling, safety, and connection to destinations. Establishing publicly accessible private paths and paseos to bridge existing gaps and shorten walking/biking distances will further ensure a comfortable and convenient pedestrian and bicycle network within the Area Plan, and connect seamlessly into the City’s existing network. The proposed bike network incorporates separated bikeways for busier streets, well-designed intersections connecting to traffic-calmed bike boulevards, wayfinding signage, and ample bike parking to encourage travel by bike throughout the Area Plan. The Area Plan also seeks to improve connections into Mountain View. Because San Antonio Road is the only east-west truck route in the City and services the cities of Mountain View and Los Altos and the Town of Los Altos Hills, extra care needs to be taken to ensure cyclist and pedestrian comfort and safety. The project team will incorporate standards from the City’s complete streets policy as well as the 2024 American Association of State Highway and Transportation Officials (AASHTO) guidance on complete streets for truck routes and other design standards. The core scenario will examine improvements that can be implemented with relatively low cost and high speed in the short term while leaving options open for more advanced improvements to follow. These short-term improvements would include projects such as removing parking on San Antonio Road to create street-level separated bike-lanes and other restriping projects. More advanced options could include sidewalk-level separated bike lanes or multi-use paths (which would require the City to acquire land or easements to expand the existing right-of- way), or moving curbs inward to create room for side-walk level facilities (which would require reconstruction of parking lanes and potentially replanting of street trees and movement of utilities and stormwater infrastructure). Transit The mobility framework focuses on designing intuitive, accessible, and safe routes to local and regional transit through priority pedestrian and bike streets, wayfinding signage to navigate to Caltrain, enhanced bus stop amenities for passengers, and mobility hubs within the plan area. This plan sets the stage for expanded transit services, coordinating with Valley Transportation 18 Authority (VTA) or other partners, to strengthen San Antonio Road as a multimodal corridor, supporting planned land uses and providing access to Caltrain and other destinations. Transportation Demand Management (TDM) TDM strategies will be applied to make sure that new development is designed to make it easier for tenants, residents, and employees to get around using sustainable modes. A focus will be put on managing demand through programs, incentives, and policies that make walking, biking, transit, and shared travel more convenient and cost-effective. Key TDM strategies include creating a supportive mix of land use; streetscape improvements that make it easy and comfortable to walk and bike; providing designated secure areas for bike parking and bike maintenance and repair; providing car-share parking and bike fleets on-site and offering subsidized memberships; and integrating real-time transit information and wayfinding. Early implementation with new development will ensure programs are in place at occupancy and adjusted over time as travel patterns evolve. The standards, guidelines, programs, and policies in this Area Plan will be informed and in conformance with foundational City plans and policies including the 2030 Comprehensive Plan, 2026 Bicycle and Pedestrian Transportation Plan (scheduled to be finalized in June 2026), Parks, Trails, Natural Open Space, and Recreational Master Plan, Green Stormwater Infrastructure Plan, and Public Art Master Plan. This plan would implement design guidance and projects identified by the City and implement policies, programs, and practices to support and achieve these mobility goals. Mobility hubs are a key component to developing TDM. They are places where multiple transportation modes are cohesively and conveniently located to provide an integrated suite of mobility services and amenities. They may feature a transit stop, enhanced crossings, bike racks and secure bike parking, shared micromobility services, real-time transit information, car share parking, passenger loading zones, electric vehicle parking, and vehicle parking. Potential locations within the plan area include at San Antonio Road/Charleston Road, San Antonio Road/Middlefield Road, and near the San Antonio Caltrain Station. Vehicle Circulation Vehicle circulation strategies are aimed to prioritize local circulation and access, prevent auto intrusion into neighborhoods, encourage low speeds, and reduce potential for conflicts with other modes. This is especially critical as San Antonio Road, E. Charleston Road, Middlefield Road, and Alma Street all play critical roles in connecting Palo Alto to neighboring communities, and San Antonio Road is the City’s only east-west truck route. These strategies are not focused solely on maximizing vehicle throughput and reducing vehicle delay. The strategies prioritize the following: • Maintaining reliable access to residences and businesses; • Reducing cut-through traffic and managing traffic through operations and designs: o Intersection reconfigurations 19 o Signal timing modifications, and o Modal filters to restrict or discourage through movements; and • Maintaining local vehicle access for residents, deliveries, and emergency services. Parking and Curb Management The parking and curb management strategy establishes a coordinated approach to using limited street- and curb-space more efficiently. Rather than prioritizing long-term vehicle storage, the strategy treats parking and curb areas as flexible assets that must balance loading and deliveries, short-term parking, transit operations, active transportation, and public realm needs. This approach aligns curb and parking policies with surrounding land uses, travel demand, and peak activity periods to reduce conflicts, improve turnover, and support local businesses and residents. Overall, the strategy emphasizes managing demand over increasing supply by right- sizing parking, improving pricing and time limits where appropriate, and reallocating curb space to higher-value uses as needs evolve. Street, Sidewalk, and Bikeway Improvements The core scenario will provide a framework for the creation of a safe and low-stress bike facility on San Antonio Road connecting from the proposed US-101 interchange to Caltrain, as well as improving facilities on San Antonio Avenue, Fabian Way, E. Charleston Road, Middlefield Road, and Alma Street (including intersection improvement options described below). An alternative will also seek to acquire access across private property through acquisition of easements or purchasing land to connect Sutherland Drive and Wyandotte Street to San Antonio Road. San Antonio Road and San Antonio Avenue are divided into three sections: (1) east of E. Charleston Road, (2) west of E. Charleston Road and east of Middlefield Road, and (3) west of Middlefield Road. The core scenario will create the framework for the creation of: • A two-way, separated bikeway on the north side of San Antonio Road connecting E. Charleston Road to the planned U.S.-101/San Antonio Road interchange improvements; • A near-term, street-level separated bikeway on both sides of San Antonio Road which leaves open the possibility of future development; and • A two-way, separated bikeway on the north side of San Antonio Road to San Antonio Avenue and across Alma Street to the Caltrain station. As part of this workplan, the project team will examine the comparative costs associated with two potential future facilities along the central portion of San Antiono Road. One is a sidewalk- level, two-way either cycle track or mixed used path only on the north side of San Antonio Road, which would require the acquisition of land or easements to build. The second is a sidewalk-level facility on one or both sides of San Antonio Road which would require the existing curbs to be moved, as well as street trees and utilities. The project team will explore the feasibility and potential costs of these options. Key improvements are detailed in Figure G. 20 Figure G. Key San Antonio Road Improvements 21 Additional improvements to bike/ped facilities on E. Charleston Road, Fabian Way, and Alma Street, including new separated bikeways, will be explored in this work plan. The focus will be on improving connections, safety, and comfort into adjacent neighborhoods in Palo Alto and the City of Mountain View. The project team will explore improving a bike route parallel to Alma Street instead of, or in addition to, creating a new bikeway along it. Intersection Improvements The core scenario will seek to create a grade-separated connection between the CTI and North Fabian sub areas, as well as improve existing intersections. Improvements could include creating protected intersections,2 creating pedestrian zones, providing median refuges at longer crossings, consolidating existing driveway access, extending existing bike lanes through the intersections, and enhancing connections to bike boulevards. Core Scenario and Work Plan Summary The below table provides a summary of the work described above, broken down by topic area, for ease of understanding what Staff is proposing as part of the core scenario and the limited alternatives. More detailed description of this can be found in Attachment A. Table D. Summary of Work Plan Topic Area Core Scenario Concepts to Explore Building Heights Increase to 90 feet in CTI, between Fabian Way and San Antonio Road, and south of San Antonio Road; remain at 60 feet elsewhere Limited development taller than 90 feet in CTI sub-area Minimum Residential Density Determine the appropriate minimum density Office and R&D Space Allow sufficient office/R&D space within the CTI sub-area to keep employment steady, and reduce jobs/housing imbalance through the creation of new residential units 2 A protected intersection (or “Dutch-style intersection”) is an at-grade road design that uses physical separation, such as raised curbs, bollards, or corner islands, to separate cyclists and pedestrians from motor vehicles. 22 Topic Area Core Scenario Concepts to Explore Retail Require neighborhood-serving retail at specific nodes (within CTI and North Fabian, at intersection of San Antonio Road and Middlefield Road); Expand allowed uses for ground floor commercial spaces where neighborhood- serving retail is not required Outdoor Space Require new outdoor spaces as part of future development in the CTI and North Fabian sub-areas Require outdoor spaces to be co- located/clustered with neighborhood- serving retail and amenities Transportation Network Priorities Prioritize improving the pedestrian realm, bike network, transit, vehicle circulation, freight circulation, and parking and curb management Transit Develop a microtransit strategy to enhance existing and future resident and employee access to the Caltrain station and other key destinations, while continuing to work with VTA to expand bus service on San Antonio Road in Palo Alto San Antonio Road Create framework for a Class IV separated bikeway along San Antonio Road and Avenue, from the Baylands to the Caltrain station, with a near-term, cost- efficient design that leaves open the ability to improve to a side- walk-level bike facility in the future Explore sidewalk-level bike facility on both sides of San Antonio Road from Nita Avenue to E. Charleston Street Explore sidewalk level two-way multi- use path or separated bikeway (cycle track) on north side of San Antonio Road Cross Streets Create framework for improved ped/bike facilities on roads running perpendicular to San Antonio Road Explore acquisition of easements or purchasing land to connect Sutherland Drive and Wyandotte Street to San Antonio Road for bike/pedestrian use 23 Topic Area Core Scenario Concepts to Explore Improve Intersections Identify best-practice design strategies for key intersections along San Antonio Road (E. Charleston Road, Middlefield Road, Nita Avenue/McKay Drive, Alma Street), San Antonio Avenue and Briarwood Way, and at Fabian Way and E. Charleston Road to enhance safety, reduce cut- through traffic, and manage vehicle flow Enhance Access to Caltrain Create framework for improving ped/bike access to the San Antonio Caltrain Station in Mountain View via enhanced crossing of Alma Street at San Antonio Avenue Explore possibility of acquiring legal access through Google X campus from San Antonio Avenue and Nita Avenue parallel to San Antonio Road on-ramp to existing signalized crossing at Mayfield Avenue and Central Expressway in coordination with Mountain View Alma Street Create framework for improved ped/bike facilities on the east side of Alma Street from San Antonio Avenue to E. Meadow Drive and create high visibility ped/bike crossing markings at intersections Improve interior neighborhood routes including better wayfinding on ped/bike routes parallel to Alma Street 1 San Antonio Road Area Plan Integrated Land Use and Mobility Approach The following topics are addressed in this attachment: Overview ......................................................................................................................................... 1 Integrating Land Use and Mobility ................................................................................................. 1 Diversity of Land Uses ..................................................................................................................... 3 Overview The San Antonio Road Area Plan (Area Plan) seeks to create the capacity to meet not only the requirements assigned to the City through the Regional Housing Needs Allocation (RHNA) tied to the sixth cycle of the Housing Element, but also additional housing needs beyond 2031 (the end of the sixth cycle). It also seeks improvements in transportation conditions for all roadway users and encourages more neighborhood amenities, such as parks and local-serving retail. Integrating Land Use and Mobility In Palo Alto, a lower-traffic land use mix is not simply “commercial plus residential.” It is a pattern that allows people to live near work, meet daily needs locally, access schools, parks, and civic uses, and reach local and regional transit by a comfortable walk or bike trip. In land use and transportation planning, the “6 Ds” framework (density, diversity, design, destination accessibility, distance, and demand management) describes how the built environment influences travel behavior and urban form. Each of the 6 Ds is described below: 1. Density refers to the intensity of development, including housing and employment concentration. Higher density can support transit, place more destinations within walking distance, and reduce per-capita vehicle travel when paired with supportive land use and design. On its own, however, density does not guarantee reduced driving. Key Takeaway: More housing/jobs in accessible infill areas can support lower vehicle trips. 2. Diversity refers to the mix of housing, jobs, services, schools, parks, civic uses, and neighborhood-serving commercial uses. Mixed-use environments can shorten trips and increase the share of trips made by walking, bicycling, or transit. The key issue is not simply allowing multiple uses, but whether they are close enough to function together in daily life. Key Takeaway: Mixed-use environments can shorten trips and increase internal trip capture. 2 3. Design refers to the layout and quality of the transportation network and public realm, including street connectivity, sidewalks, bike facilities, crossings, frontage design, and parking placement. Good design makes non-auto travel safer, more comfortable, and more direct. Key Takeaway: Connected, pedestrian-, and bicycle-friendly design can shift short trips away from driving. 4. Destination accessibility refers to how easily people can reach important local and regional destinations such as jobs, schools, retail, civic uses, parks, and transit hubs. A place may be walkable locally but still generate high vehicle travel if major destinations are far away or poorly connected. Key Takeaway: Sites with better access to jobs, services, and transit tend to generate lower trips than peripheral locations. 5. Distance refers to the need to keep trips short if people are to realistically be expected to mode shift away from automobiles. This includes collocating housing with jobs, neighborhood serving retail, and other services and amenities. Key Takeaway: Keep as many trips as short as possible to encourage people to walk, bike, or use transit. 6. Demand management, or transportation demand management (TDM) refers to strategies, programs, services, and physical improvements intended to reduce single- occupancy vehicle travel and peak-period vehicle trips and to encourage travel by transit, walking, bicycling, carpooling, vanpooling, telecommuting, and other alternatives. Key Takeaway: Create policies/programs that encourage walking, biking, transit use, vanpooling, telecommuting, etc., such as transit pass subsidies, bike parking and showers, and unbundled parking. The 6 D’s work best in combination. Higher density with poor design may still produce auto dependence, while good design in a low-density area may improve walkability but not support frequent transit. Together, all six create the strongest conditions for reducing vehicle dependence. For the Area Plan, the goal is to support enough people and jobs to sustain activity (density), enough land use mix to enable short local trips (diversity), enough connectivity and safety to make those trips practical without driving (design), and enough regional access to connect local places to the broader area (destination accessibility) while creating destinations that residents need to travel to in close proximity to housing (distance) and implementing strong policies to encourage mode shift for some trips (demand management). 3 Diversity of Land Uses At a high level, office development tends to generate the strongest near-term municipal revenue per square foot; higher-density housing tends to produce broader community and State-policy benefits but can create nearer-term service and infrastructure costs; and mixed- use development often offers the best balanced outcome by diversifying the tax base, supporting walkability, and reducing some transportation externalities (although it is usually more complex to deliver). Table A below summarizes the costs and benefits of these development types specific to the Area Plan. Table A: Development Type Analysis Development Type Residential Neighborhoods High assessed value, jobs, daytime spending, supports economic base supports RHNA and fair housing, can reduce regional walkability, better jobs- housing balance, corridor activation Main Costs/Risks Traffic, jobs-housing imbalance, housing pressure, infrastructure infrastructure needs, possible weaker fiscal to deliver, retail risk High-Level Fiscal Effect to City Often strongest positive near-term fiscal return fiscally on a standalone basis depending on program mix High-Level Policy Effect Can undermine housing/climate goals if not paired with State housing and sustainability goals well located and designed If Palo Alto allows more office, the City may see strong municipal fiscal upside, but potentially significant indirect social and transportation costs unless office growth is paired with housing production, TDM requirements, and infrastructure investment. Higher-density residential may produce the strongest policy and community-wide benefit, especially on housing affordability VMT reduction, and sustainability, but may present a more challenging municipal fiscal equation unless supported by impact fees, infrastructure financing, and careful unit mix/location strategy. Mixed-use development is often the best compromise strategy for Palo Alto since it can capture part of the fiscal upside of commercial uses while also advancing housing, walkability, and climate goals. The main challenge is ensuring the form, location, and economics are realistic. City Council Meeting #3 June 8, 2026 Presenter: Robert Cain,​ Principal Planner www.PaloAlto.gov SAN ANTONIO ROAD AREA PLAN Based on feedback received at the April 6, 2026 study session, staff has developed a core scenario -- a defined set of land use and mobility assumptions -- to serve as the foundation for Phase 3 analysis. •Council is asked to endorse the core scenario and authorize the transportation analysis that will evaluate its implications. •Endorsing the core scenario today is not a final land use decision. •Analysis will validate, refine, or adjust the core scenario as needed. •If, after reviewing the analysis, Council wishes to pursue a different direction, the project team will adjust accordingly. Staff intends to return to Council in Q4 2026 to finalize a preferred alternative to begin drafting the Area Plan and environmental review. 2 Purpose of Tonight’s Item SAN ANTONIO ROAD AREA PLAN Project Area and Goals 3 •275.3 acres along Palo Alto’s border with Mountain View •1.8-mile length of San Antonio Road •Contains a mix of industrial, office, service commercial, and residential uses. •Adjacent neighborhoods in both Palo Alto and Mountain View are residential. •Southern part within a half-mile of San Antonio Caltrain station. CREATE A MORE LIVABLE COMMUNITY PR O J E C T G O A L S FEASIBLE DESIGN ALTERNATIVES ZONING + DEVELOPMENT STANDARDS IMPLEMENTATION TOOLS AND STRATEGIES PR O J E C T O U T C O M E S IMPROVE MOBILITY AND SAFETY SUPPORT SUSTAINABILITY ENHANCE ECONOMIC VITALITY SAN ANTONIO ROAD AREA PLAN 4 Project Timeline Workshop (Pop-up TBD) Online Survey Walk Audit CAG+TAG Meetings Council, Commissions, Boards Policy Recommendations + Draft Development Standards Engagement Strategy, Materials, Existing Conditions Report Final Area Plan + EIR Admin. Draft Area Plan + EIR Land Use + Mobility Alternatives, Preferred Alternative ARB + CSTSC + PABAC + PTC + CC Public Review Draft Area Plan + EIR ARB + PRC + HRC + CSTSC + PABAC + PTC + CC PTC + CC Adoption Hearings 20282025 Phase 1 Project Initiation + Existing Conditions Assessment Phase 2 Vision + Land Use/ Mobility Alternatives Phase 3 Analysis + Policy Recommendations Phase 4 Draft Area Plan + EIR Phase 5 Plan Adoption + Implementation 2026 2027 ARB + PRC + HRC + CSTSC + PABAC + PTC + CC SAN ANTONIO ROAD AREA PLAN What We Heard 5 •Dividing the plan area into sub areas is the right approach to developing the plan. •The area is a key housing production area, and should contain housing of diverse type and affordability levels. •Housing growth needs to be supported by mobility improvements; travel along and across San Antonio Road should be comfortable for all users. •Office and research & development space should be designed as to improve the City’s jobs/housing balance. •The Area Plan should incentivize the creation of large neighborhood parks in the areas closest to U.S. 101. •Retail should be neighborhood serving and of a sufficient amount to help reduce trips outside of the area. •Building heights should be considerate of neighboring parcels, especially single-family homes and creeks. SAN ANTONIO ROAD AREA PLAN In order to advance the Area Plan, staff proposes advancing a “core scenario” from which to conduct additional analysis and start building policies around. The core scenario achieves the following: •Creates new residential and mixed-use neighborhoods at a diversity of income levels. •Creates multiple new outdoor spaces. •Improves the jobs-housing balance while allowing office/R&D uses. •Adds new retail and commercial uses needed to serve residents. •Enhances streets, sidewalks, bike lanes, and transit connections to support easier and safer travel for all users. •Reduces commute trips, integrate green infrastructure, and build resilience to climate change. •Establishes new development standards which encourage new development while protecting existing neighborhoods. Core Scenario 6 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Residential mixed -use, with ground floor neighborhood retail required in key location(s). •Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). •Transportation: Separated bikeways along San Antonio, improved intersections/crossings, transit, mobility hub. Concepts to explore: •Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. •Alternative ground floor uses. •Connection to Wyandotte Street (MV), outdoor space. Central San Antonio 7 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Residential mixed -use, with office/ R&D space allowed and neighborhood retail required in key location(s); New outdoor space(s). •Height: 90 feet maximum (8 stories). •Transportation: Improve pedestrian realm, create paseos to reduce block sizes, connect to Mountain View and U.S. 101 interchange. Concepts to explore: •Evaluate the comparative effects of 60-foot maximum and 90-foot maximum. •Evaluate the effects of allowing buildings to exceed 90 feet. •Evaluate the amount of office/research & development. CTI (Commerce St, Transport St, Industrial Ave) 8 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Residential mixed -use, with ground floor neighborhood retail required in key location(s); new park/outdoor space(s). •Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). •Transportation: Separated bike lanes on Fabian Way, create paseos to reduce block sizes, connect to U.S. 101 interchange. North Fabian 9 Concepts to explore: •Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. •Explore setting minimum density to encourage midrise residential and minimize townhomes. SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Residential mixed -use, neighborhood retail allowed but not required. •Height: 90 feet maximum (8 stories), height transitions required when adjacent to existing low-density residential neighborhoods (60 feet maximum). •Transportation: Separated bike lanes on Fabian Way, improved intersections/crossings Concepts to explore: •Evaluate the comparative effects of 60 feet maximum and 90 feet maximum. •Alternative ground floor uses. South Fabian 10 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Low-density commercial (no change; maintain existing development standards including heights). •Transportation: Connect to U.S. 101 interchange. East Bay Shore 11 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Low-density commercial with residential uses allowed (no change; maintain existing development standards including heights). West Bayshore 12 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Low-density residential (no change; maintain existing development standards including heights). Concepts to explore: •Easements along San Antonio to improve bike/ped facilities, easements to connect bike route from Southerland Drive to San Antonio. Greenhouse 13 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Low to medium-density residential (no change; maintain existing development standards including heights). •Transportation: Separated bikeways along San Antonio Road and/or Avenue, improved intersections/crossings, improve connection to Cal Train. Concepts to explore: •Preventing auto intrusion to single-family neighborhoods. •Easement through Google X property. South San Antonio 14 SAN ANTONIO ROAD AREA PLAN Core Scenario •Land use: Low to medium-density residential with institutional/civic uses (no change; maintain existing development standards). •Note that SB 79 will allow higher -density residential for qualifying projects, and two sites are both Housing Opportunity Sites and subject to Senate Bill 4 (2023), the Affordable Housing on Faith Lands Act. This will be studied by the City as part of separate initiatives. •Transportation: Separated bikeway along Alma, improved intersections/crossing to Cal Train. Concepts to explore: •Improving alternative bike route parallel to Alma Alma 15 SAN ANTONIO ROAD AREA PLAN The San Antonio Road Area Plan is both a land use and transportation plan. To help aid land use decisions, the transportation analysis will include the following: •Evaluation of the core scenario against the current-zoning baseline using transportation-related metrics to quantify the relative benefits and tradeoffs of each approach, including: •Vehicle trip generation; •Mode share; •Vehicle miles traveled; and •Transit viability. •Assessment of multimodal access for residents to key destinations and the anticipated effects of proposed mobility improvements. This analysis will directly inform whether the core scenario's land use assumptions should be confirmed, refined, or adjusted in scale. Transportation Analysis 16 SAN ANTONIO ROAD AREA PLAN Comparison of Core Scenario and Current Zoning 17 Core Scenario Current Zoning Allows up to 6,700 units (realistic 4,700) with more potential for affordable units in the plan area Allows up to 5,700 units (realistic 3,100) with a lower number of affordable units, potentially located elsewhere Allows new office/R&D space within the CTI sub -area to keep employment steady and fund plan area improvements, while reducing jobs/housing imbalance Allows for general manufacturing and light industrial uses, with limited office allowances without funding improvements Creates a program to deliver new outdoor spaces focused on neighborhood parks and plazas No mechanism for assuring new outdoor spaces within the plan area Creates a plan to deliver neighborhood serving retail and other needed uses Allows or requires retail without coordination Improves the transportation network, prioritizing improvements to the pedestrian realm, bike network, transit, vehicle circulation, freight circulation, and parking and curb management Transportation improvements occur in a piecemeal fashion, if at all Creates pedestrian-oriented neighborhoods Corridor is dominated by automobiles and freight SAN ANTONIO ROAD AREA PLAN Staff Recommendations 18 • Endorse the core scenario for the San Antonio Road Area Plan as the basis for Phase 3 analysis, modified as needed to reflect Council priorities; and •Authorize the transportation analysis described in Attachment A, to be completed and presented to Council in Q4 2026 alongside a recommended land use and transportation plan. Thank you! From:Manuel Salazar To:Council, City; Stone, Greer; Reckdahl, Keith; Lythcott-Haims, Julie; Lu, George; Lauing, Ed; Burt, Patrick; Veenker, Vicki Cc:Regina Celestin Williams; Alison Cingolani Subject:Agenda Item 15 – San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan Date:Monday, June 8, 2026 10:55:17 AM Attachments:image003.png SVH Letter RE - Agenda Item 15 – San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan.pdf CAUTION: This email originated from outside of the organization. Be cautiousof opening attachments and clicking on links. i Dear Mayor Veenker and Members of the Palo Alto City Council, On behalf of Silicon Valley at Home (SV@Home), thank you for the opportunity to comment on the San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan. As a countywide housing advocacy organization, we appreciate the City's ongoing efforts to plan for future housing growth while advancing broader goals related to mobility, sustainability, and quality of life. We appreciate the significant work City staff has invested in developing a coordinated framework for housing, transportation, economic vitality, and public space improvements along the San Antonio corridor. The proposed core scenario reflects a thoughtful approach to accommodating future growth while recognizing the importance of creating complete, connected neighborhoods. In particular, we support the City's effort to evaluate additional housing capacity in one of Palo Alto's most transit accessible corridors. The San Antonio Road area represents a meaningful opportunity to add homes near jobs, transit, services, and regional transportation infrastructure while improving connections for people walking, biking, and using transit. The integrated land use and mobility framework proposed by staff recognizes that housing and transportation outcomes are inherently linked, and that planning for both together will produce stronger long-term results for the corridor and the broader community. We would also like to commend staff for pairing housing growth with investments in neighborhood serving retail, public open space, and multimodal transportation improvements. The emphasis on creating walkable, mixed-use neighborhoods connected to the San Antonio Caltrain Station and surrounding destinations reflects the type of integrated planning needed to meet the region's housing and climate goals. As this work moves into the next phase of analysis, we encourage the City to remain ambitious. The This message needs your attention This is their first email to your company. Mark Safe Report San Antonio Road Area Plan represents one of Palo Alto's most significant opportunities to advance housing production in a transit accessible location while supporting broader community goals related to mobility, sustainability, and economic vitality. The corridor also plays an important role in the City's broader strategy for meeting its RHNA obligations across all income levels and directly advances Housing Element Program 6.6(C), which calls for the preparation of an area plan that integrates housing with safe multimodal transportation, access to amenities and open space, and placemaking improvements. As Palo Alto continues pursuing a Prohousing designation, we encourage Council to view this effort as an opportunity to demonstrate the type of proactive, housing forward planning that designation is intended to recognize. Thank you for your leadership on this important effort. We look forward to continued engagement as the Area Plan advances. Sincerely, Regina Celestin Williams Executive Director Manuel Salazar (he/him) Planning and Production Associate| SV@Home (925) 584-9558 | manuel@siliconvalleyathome.org Silicon Valley Is Home. Join our Houser Movement. Become a member! 110 N. Third Street, San Jose, CA 95112 Instagram | Facebook | LinkedIn 350 W. Julian Street, Building 5, San José, CA 95110 www.svathome.org • info@siliconvalleyathome.org June 8th, 2026 Palo Alto City Council 250 Hamilton Avenue Palo Alto, CA 94301 RE: Agenda Item 15 – San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan Dear Mayor Veenker and Members of the Palo Alto City Council: On behalf of Silicon Valley at Home (SV@Home), thank you for the opportunity to comment on the San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan. As a countywide housing advocacy organization, we appreciate the City's ongoing efforts to plan for future housing growth while advancing broader goals related to mobility, sustainability, and quality of life. We appreciate the significant work City staff has invested in developing a coordinated framework for housing, transportation, economic vitality, and public space improvements along the San Antonio corridor. The proposed core scenario reflects a thoughtful approach to accommodating future growth while recognizing the importance of creating complete, connected neighborhoods. In particular, we support the City's effort to evaluate additional housing capacity in one of Palo Alto's most transit accessible corridors. The San Antonio Road area represents a meaningful opportunity to add homes near jobs, transit, services, and regional transportation infrastructure while improving connections for people walking, biking, and using transit. The integrated land use and mobility framework proposed by staff recognizes that housing and transportation outcomes are inherently linked, and that planning for both together will produce stronger long-term results for the corridor and the broader community. We would also like to commend staff for pairing housing growth with investments in neighborhood serving retail, public open space, and multimodal transportation improvements. The emphasis on creating walkable, mixed-use neighborhoods connected to the San Antonio Caltrain Station and surrounding destinations reflects the type of integrated planning needed to meet the region's housing and climate goals. As this work moves into the next phase of analysis, we encourage the City to remain ambitious. The San Antonio Road Area Plan represents one of Palo Alto's most significant opportunities to advance housing production in a transit accessible location while supporting broader community goals related to mobility, sustainability, and economic vitality. The corridor also plays an important role in the City's broader strategy for meeting its RHNA obligations across all income levels and directly advances Housing Element Program 6.6(C), which calls for the preparation of an area plan that integrates housing with safe multimodal transportation, access to amenities and open space, and placemaking improvements. As Palo Alto continues pursuing a Prohousing designation, we encourage Board of Directors Nevada Merriman, Chair MidPen Housing Corporation Randy Tsuda, Treasurer Alta Housing Pilar Lorenzana, Secretary Silicon Valley Community Foundation Steven Yang Northern CA LIIF Candice Gonzalez Sand Hill Property Company Chad Bojorquez Destination: Home Maria Noel Fernandez Working Partnerships USA Alison Brunner Law Foundation of Silicon Valley Victor Vasquez SOMOS Mayfair Julie Mahowald Housing Trust Silicon Valley Wendi Baker Harmonie Park Development Staff Regina Celestin Williams Executive Director June 8th, 2026 Re: Agenda Item 15 – San Antonio Road Area Plan Core Scenario and Transportation Analysis Work Plan Page 2 of 2 350 W. Julian Street, Building 5, San José, CA 95110 408.780.8411 • www.svathome.org • info@siliconvalleyathome.org Council to view this effort as an opportunity to demonstrate the type of proactive, housing forward planning that designation is intended to recognize. Thank you for your leadership on this important effort. We look forward to continued engagement as the Area Plan advances. Sincerely, Regina Celestin Williams Executive Director Silicon Valley @ Home is a nonprofit advocacy organization that supports housing and affordable housing development throughout Santa Clara County. SV@Home works with a broad coalition of strategic partners to address the urgent housing needs of the diverse residents across all our communities. We advocate for solutions including increasing production of homes at all income levels, especially affordable housing; preserving existing affordable housing; and protecting our community’s most vulnerable residents from displacement.