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Report regarding the El Camino Real Mobility Plan and the countywide Grand Boulevard Initiative (Megan Wooley-Ousdahl, Deputy City Manager)
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RECOMMENDATION
Recommendation
Receive a presentation from City and SamTrans staff on the El Camino Real Mobility Plan and Grand Boulevard Initiative and provide guidance on initial considerations and priorities.
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EXECUTIVE SUMMARY
The City Manager’s Office, Engineering Division, and Economic & Community Development Department have recently embarked on an effort to create an El Camino Real Mobility Plan. The purpose of this effort is to conduct community engagement and develop transportation-focused concept designs for El Camino Real.
The City is launching this initiative now so that we can provide community-informed feedback on a number of regional planning efforts, including the recently relaunched Grand Boulevard Initiative and California Department of Transportation (Caltrans) State Highway Operation and Protection Program (SHOPP) repaving and restriping projects. City staff are working to ensure that the vision and needs of the South San Francisco community are incorporated into these regional efforts.
BACKGROUND
Plan Overview
The El Camino Real (ECR) Mobility Plan will focus on El Camino Real from the Colma town limits to the San Bruno city limits (see Figure 1). This Plan will incorporate and tie into a proposed two-way Class I shared-use path on the western side of El Camino Real from the Town of Colma to the Hickey Boulevard intersection.
Figure 1. El Camino Real Mobility Plan boundary
Source: Map created using Google My Maps (created on August 5, 2025)
This plan is grounded in the vision for El Camino Real provided in the 2040 General Plan which states:
El Camino Real is a dynamic and re-envisioned boulevard that is a safe and healthy place for transit riders, pedestrians, and cyclists, with a diverse mix of commercial and residential, and open space uses (Chapter 6: Sub-Areas).
Building upon this vision, the ECR Mobility Plan effort is asking questions such as: How can we improve safety on El Camino Real? How can El Camino Real and the surrounding streets and trail network best serve transit riders, pedestrians, bicyclists, business owners and employees, families, older adults, motorists, and truck traffic - all those who travel across and along El Camino Real? What kinds of streetscape amenities do the South San Francisco residents and business community want on El Camino Real?
Echoing the vision for El Camino Real, the goals of this plan are to:
• Design a safer street that works for everyone, and
• Create a more comfortable and pleasant experience for people walking, bicycling, and taking transit.
The City has engaged the transportation consulting firm Fehr&Peers to support the development of the plan. Fehr&Peers’ subconsultant, Winter Consulting, will lead the community engagement and outreach. Stakeholders for this planning process include business owners and managers, nearby residents, City Council, City Committees and Commissions, and the South San Francisco community.
Staff began the ECR Mobility Plan effort in July 2025 and anticipate that the process will be completed by late Spring / early Summer 2026.
The ECR Mobility Plan builds upon the foundation established under CIP Project tr2402, which was created in 2023 to support studies for active transportation improvements on El Camino Real. Through tr2402, the City secured $100,000 in grant funding from the San Mateo County Transportation Authority and committed additional local funds to initiate planning and design efforts. This connection ensures that the City’s CIP resources and grant-funded activities remain aligned with broader regional planning and the Shape SSF 2040 General Plan mobility goals.
Plan Deliverables
Through this effort, the City seeks to evaluate alternatives and recommendations for El Camino Real that are identified in adopted plans and to identify priorities and trade-offs. The primary deliverables from this effort include:
• Thoughtful and meaningful engagement with the South San Francisco community and policymakers about the multimodal priorities for El Camino Real and parallel routes, such as Centennial Way Trail and Mission Road.
• Concept design alternatives and analysis for the longer-term vision of El Camino Real. Proposed improvements may include a combination of the following: pedestrian safety improvements and sidewalk widening; dedicated transit lanes and improvements; bicycle lanes; spot removal of parking; installation of additional trees, landscaping, and stormwater management; a possible road diet (i.e., removal of a travel lane(s) to create additional space for transit lanes, sidewalks, and/or bicycle lanes); and other improvements based on community input.
• Review of designs for two Caltrans-led SHOPP projects on El Camino Real. SHOPP projects are repaving and restriping projects that typically have very defined scopes of work which include restriping the street and may include: pedestrian-safety upgrades such as new high-visibility crosswalks, expanding pedestrian refuge islands, adding signage, and other changes.
One SHOPP Project (0Q140) begins in the City of San Francisco and continues south to Arroyo Drive in South San Francisco; construction for this project is anticipated to begin in 2027. The second SHOPP Project (0AA032) begins at Arroyo Drive in South San Francisco and continues south to the City of Millbrae; construction for this project is anticipated to begin in 2028.
Building Upon Recent Guidance and Input
The ECR Mobility Plan will build upon and implement past planning efforts, including:
• 2040 General Plan (2022) envisions El Camino Real as a grand boulevard that is “a safe and healthy place for transit riders, pedestrians, and cyclists.” The General Plan includes goals, policies, and actions to make this vision a reality; see the “Relationship to Strategic Plan” section of this staff report for additional information.
• Active South City Bicycle and Pedestrian Plan (2022) identifies pedestrian and bicycle improvements along and across El Camino Real. Recommendations include upgrading crosswalks across El Camino Real and closing the sidewalk gap near South San Francisco High School. Class IV separated bikeways are recommended for El Camino Real; however, most of El Camino Real is identified as a “study corridor” which means that additional traffic analysis, environmental analysis, community input, and coordination with State, County, and/or local transit agencies are needed. These additional studies are being undertaken as a part of this ECR Mobility Plan process.
• Local Roadway Safety Plan (2022) recommends Class IV separated bikeways, high-visibility straightened crossings, curb extensions, median refuge islands, and leading pedestrian internals at all major intersections on El Camino Real to increase safety for pedestrians, bicyclists, and motorists.
• Centennial Way Trail Master Plan (2023) identifies the need for enhanced connections between the trail to El Camino Real and nearby destinations.
• SamTrans ECR Bus Speed and Reliability Study (2022) recommends painting a transit priority lane along the curbside (outer) lane on both sides of El Camino Real from McLellan Drive in South San Francisco to northern Burlingame to provide faster, more reliable bus service.
Relaunched Grand Boulevard Initiative
The concept designs created through the ECR Mobility Plan process will fold into the countywide Grand Boulevard Initiative (GBI) that is being led by the San Mateo County Transit District (SamTrans). Begun approximately 20 years ago, GBI originally focused on land use and transportation improvements on El Camino Real in both San Mateo and Santa Clara counties. SamTrans recently took over the reins of the project from Joint Venture Silicon Valley, and in 2024, relaunched the Grand Boulevard Initiative with a focus on multimodal improvements on El Camino Real in San Mateo County (see Attachment 2: Grand Boulevard Initiative Fact Sheet).
SamTrans has convened a working group which includes staff from 15 jurisdictions along El Camino Real from Daly City to Menlo Park, four countywide agencies, and Caltrans. Staff from the City Manager’s Office and Engineering Division are actively participating in these workshops and discussions, as are staff from nearby jurisdictions including Colma, Daly City, San Bruno, and Millbrae. During the working group meetings, participants provide direction on the vision for the corridor, public and stakeholder engagement opportunities, corridor-wide challenges and needs, and potential solutions.
Through the GBI process, SamTrans will incorporate the input and proposed designs for El Camino Real from each jurisdiction into a comprehensive GBI Action Plan. This planning document will evaluate corridor-wide needs, establish a cohesive vision, and build momentum toward implementation. Once the GBI Action Plan is complete, SamTrans will lead the first phase of the coordinated Caltrans project development process, called a Project Initiation Document (PID), for all of El Camino Real in San Mateo County. The PID is the first phase in the Caltrans process to initiate change to a Caltrans-owned street. The PID will define the purpose and need for transportation improvements to the corridor as well as establish potential design alternatives. The concept designs developed as a part of South San Francisco’s ECR Mobility Plan will feed into this countywide GBI Action Plan and PID.
Historically, implementing changes to El Camino Real, as a Caltrans-owned facility, has been difficult. Participating in the Grand Boulevard Initiative and including our designs in the SamTrans-led PID process will save the City time and money, since the Caltrans process can be lengthy and expensive.
SamTrans anticipates submitting the GBI Action Plan and PID to Caltrans in Fall 2026. The City’s ECR Mobility Plan process will conclude in early Summer 2026, so that the concept designs can be incorporated into the countywide GBI Action Plan and PID.
El Camino Real - Most Dangerous Street in the Bay Area
Based on the number of fatalities and life-changing injuries that occur on El Camino Real in San Mateo and Santa Clara counties, this street is considered the most dangerous in the Bay Area. From 2020 to 2024, 87 collisions resulting in injuries, including six severe injury collisions, occurred on El Camino Real in South San Francisco. Of these collisions, 76% involved vehicles only, 17% involved pedestrians, and 7% involved bicyclists. Based on the data, pedestrians and bicyclists are more likely to be severely injured in a collision versus motorists, since pedestrians and bicyclists are more vulnerable street users. In South San Francisco, unsafe speeding is the leading cause of collisions that result in a person being injured (24% of collisions) with improper turning being the second leading violation (20% of collisions). The changes under consideration in the ECR Mobility Plan seek to address these causes and create a safer, more predictable, and more comfortable street for all users.
Related Efforts
The ECR Mobility Plan process will also incorporate the following related efforts:
• Proposed two-way Class I shared-use path on the western side of El Camino Real from the Town of Colma to the Hickey Boulevard intersection in South San Francisco. The shared-use path will connect with the Town of Colma’s proposed Class IV separated bikeways on El Camino Real. This project is currently moving through the Caltrans review process;
• Proposed traffic signal at Southwood Drive and 1st Street, as a part of the In-N-Out Burger development application;
• Bike Lanes for Boulevards, a City-led effort to develop multimodal designs for Junipero Serra Boulevard and Westborough Boulevard, including the Westborough Boulevard/Chestnut Avenue and El Camino Real intersection; and
• Concept designs for Hickey Boulevard to create a safer and more welcoming street for people walking, bicycling, taking transit, and driving.
Community Engagement
Community engagement and outreach is a cornerstone of this process. City staff and the consultant team are eager to hear from the community, businesses, and policymakers about their priorities for El Camino Real. The project team has developed a comprehensive engagement strategy to reach and engage stakeholders.
Past Engagement
Bicycle and Pedestrian Advisory Committee & Traffic Safety Commission
City staff and the consultant team presented an overview of the ECR Mobility Plan on September 3, 2025, to a joint meeting of the Bicycle and Pedestrian Advisory Committee and the Traffic Safety Commission. A key question for the members was their priorities for El Camino Real. Understanding the constraints of the right-of-way, the members said that their top two priorities are: a continuous, comfortable sidewalk and a transit priority lane to better serve transit riders. The members also said that, given the option, they would prefer to bicycle on Centennial Way Trail and other parallel routes, rather than on a separated bikeway on El Camino Real; however, they emphasized the importance of bicycle connections to destinations on El Camino Real, such as Kaiser which is difficult to reach by bike from the trail.
Concert in the Park
On September 20, 2025, City staff hosted an ECR Mobility Plan booth at Concert in the Park to solicit input from the community on their priorities for the street. Over 360 community members shared their input on their top priority for El Camino Real. The pedestrian-focus option (123 votes) and bicycle-focus option (116) received the most votes, with the transit-focus option receiving the third most votes (66). The “keep as is” / parking-focused option received the least number of votes (56).
Current & Upcoming Engagement
Online Engagement
The project team has created an ECR Mobility Plan webpage which can be found here: bit.ly/southcityecr. The webpage includes an online survey for community members and others to share their comments and priorities for El Camino Real. The online survey will be live throughout the fall.
Meetings & Outreach
City staff and the consultant team are looking forward to conducting additional community outreach and engagement including:
• Community Workshop on October 30, 2025 from 6:30-8:30PM at the Library | Parks and Recreation Center <https://www.ssf.net/Departments/Parks-Recreation/Library-Parks-and-Recreation-Center>
• Door-to-door outreach and mailings to businesses along and near El Camino Real
• Outreach to transit riders on El Camino Real routes
• Continued engagement with the Bicycle and Pedestrian Advisory Committee and the Traffic Safety Commission
• Continued online engagement
Staff will continue community engagement throughout the planning process.
DISCUSSION
The 2040 General Plan envisions El Camino Real as a “dynamic and re-envisioned boulevard that is a safe and healthy place for transit riders, pedestrians, and cyclists, with a diverse mix of commercial and residential, and open space uses” (El Camino Real Vision Statement, Chapter 6: Sub-Areas). The following are initial options and considerations to achieve this community-led vision.
Road Diet Considerations: Should We Reduce the Number of Travel Lanes?
In order to create a street that serves everyone, it will likely be necessary to remove some on-street parking and/or some travel lanes from El Camino Real and reallocate that space to other modes to create a safer, more comfortable street. Reallocated space could be used for dedicated transit lanes, wider sidewalks for pedestrians, or protected bikeways. The project team collected traffic counts to gather information about how many vehicles and trucks drive on El Camino Real throughout the day, and how many pedestrians and bicyclists use El Camino Real. The traffic counts and traffic levels are one consideration for travel lane reduction; the potential for crash reductions and improved comfort for people walking, living, and working on El Camino Real are other considerations. The project team will share these tradeoffs during the October 22nd Council meeting and October 30th Community Workshop to assist the community conversation about priorities for El Camino Real.
If travel lanes are removed, the project team anticipates that two through lanes would be maintained in each direction, as would an additional middle turn lane in certain locations. Additional turn lanes may also be maintained at key locations, such as into the Costco Warehouse parking lot.
Staff does not anticipate diversion of traffic to parallel streets if travel lanes are reduced. The majority of motorists traveling along El Camino Real are making local trips rather than traveling the entire length of the corridor. For example, less than 5% of northbound travelers entering the City limits from the south continue all the way through to the northern boundary of the city. This indicates that El Camino Real primarily serves as a series of local access trips rather than a regional cut-through route, and that reducing the number of lanes is unlikely to shift traffic onto surrounding streets.
Staff also notes that the intersections of Chestnut Avenue/El Camino Real and Chestnut Avenue/Civic Campus Way present unique operational challenges due to limited queueing space between these intersections. While these constraints would not be worsened by a reduction in travel lanes on El Camino Real, improvements are still needed to better manage traffic in this location. The City is evaluating improvements at the El Camino Real/Chestnut Avenue intersection to enhance safety and operations. It is anticipated that these intersections will ultimately need to be managed by the City, rather than the State, so that signal coordination can be optimized and adapted to changing traffic needs along the corridor.
Possible Options
If Caltrans approves removal of one travel lane in each direction, City staff and the consultant team anticipate that El Camino Real could accommodate up to two of the following “possible options,” as outlined in Table 1.
Table 1. Possible Options for the El Camino Real Corridor
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Possible Options |
Considerations |
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Option 1. Sidewalks. Construct continuous sidewalks and install street trees, plants, stormwater management, and other amenities along both sides of El Camino Real. |
- Sidewalks are currently missing near South San Francisco High School on the eastern side of El Camino Real between Country Club Drive to Ponderosa Road. - Depending on the available right-of-way, sidewalks could also be widened along El Camino Real to create space for two people to walk comfortably side by side; to more comfortably accommodate people in wheelchairs, people pushing strollers, and others; and to support business vibrancy. |
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Option 2. Transit. Paint a transit priority lane to allow for faster, more reliable bus travel for passengers on SamTrans’ buses and the Free South City Shuttle. |
- SamTrans’ Route ECR serves more low-income riders than any route in the Bay Area; providing dedicated space for bus lanes via a transit priority lane would provide faster, more reliable service for riders on Route ECR, other SamTrans’ routes, and the Free South City Shuttle. - SamTrans’ El Camino Real Bus Speed and Reliability Study (2022) recommends a transit priority lane starting at McLellan Drive in South San Francisco and continuing through San Bruno and Millbrae to Dufferin Avenue in Burlingame. To accommodate a transit priority lane, the curbside (outer) travel lane would be converted to a bus lane in both directions on El Camino Real. - Vehicles would be able to merge into the transit priority lane when making right turns at intersections and into driveways. - The transit priority lane could also be used by emergency vehicles. |
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Option 3. Bikeways. Separated bikeways along El Camino Real. |
- A key question during our community engagement is whether people would prefer to have a separated bikeway on El Camino Real, or whether they would prefer to bicycle on Centennial Way Trail and other parallel routes instead. - If people prefer to bicycle on Centennial Way Trail and other parallel routes, the Plan would still include recommendations to improve bicycle access to destinations on El Camino Real. |
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Option 4. Parking. Maintain On-Street Parking. |
- See considerations below. |
On-Street Parking on El Camino Real
Currently, El Camino Real has 479 on-street spaces (202 on El Camino Real, 277 on side streets) and 1,890 off-street spaces across 28 parking lots and facilities. On-street parking activity is generally concentrated in the central and southern portions of the corridor, particularly south of Arroyo Drive. North of Arroyo Drive, on-street parking is not permitted on most block faces on El Camino Real.
In May 2025, the City hired DKS Associates, a transportation engineering and planning firm, to conduct a Parking Study to better understand parking patterns and needs on El Camino Real and along side streets throughout the day and on the weekend. The study found:
• Peak overall occupancy on El Camino Real reached 49% (96 of 202 spaces), while side streets reached 66% peak occupancy (182 of 277 spaces).
• Although removing on-street parking along El Camino Real may create localized shortages, eliminating all curbside spaces appears feasible because nearby lots have ample unused capacity. The total off-street capacity (1,890 spaces) significantly exceeds the maximum observed on-street parking demand (96 vehicles).
• Regarding limitations of the study, only about 40% of the surveyed capacity (747 spaces) is available for unrestricted public use; most spaces are reserved for specific business patrons or employees. More fundamentally, the study documents when and where vehicles are parked along El Camino Real, but not the reasons for parking. Without insight into trip purposes, it may not be possible to determine whether displaced users could legally or practically utilize alternative facilities with access restrictions.
As mentioned above, as a part of the community outreach and engagement for this plan, City staff has been conducting outreach to businesses located on and near El Camino Real to better understand their parking needs. If on-street parking is needed for certain businesses for loading and unloading, or for short-term parking, the Plan can also consider locations for loading and unloading zones to support businesses and accommodate patrons.
Improvements Across El Camino Real
In addition, City staff and the consultant team will also propose changes across El Camino Real to make it safer to walk, bicycle, or roll across El Camino Real. These improvements could include:
• Upgrading crosswalks to high-visibility crosswalks;
• Constructing curb extensions at key intersection to reduce the crossing distances;
• Installing leading pedestrian intervals at crossings to allow pedestrians to enter the crosswalk before vehicles get the green light, thereby increasing visibility of pedestrians; and
• Straightening crosswalks at intersections to increase the visibility of people crossing the street and to slow vehicles, as needed.
City staff are eager to continue the community outreach to hear from residents and businesses about their priorities and preferences for El Camino Real.
FISCAL IMPACT
The total cost of the consultant contract for the ECR Mobility Plan is $304,950. The City secured $100,000 in grant funding from the San Mateo County Transportation Authority (TA) which is allocated to this plan. The remaining amount ($204,950) is funded by the CIP project TR2402. This is a one-time cost to develop the ECR Mobility Plan.
RELATIONSHIP TO STRATEGIC PLAN
The 2040 General Plan provides a clear vision and direction for the future of El Camino Real, as described below.
Chapter 6: Sub-Areas
El Camino Real Vision: El Camino Real is a dynamic and re-envisioned boulevard that is a safe and healthy place for transit riders, pedestrians, and cyclists, with a diverse mix of commercial and residential, and open space uses.
El Camino Real Vision Statement description: The General Plan aims to create a dynamic and accessible boulevard for all. El Camino Real transforms from a regional thoroughfare to a “Grand Boulevard,” complete with comfortable accommodations to facilitate multiple modes of transportation and generous street furniture, signage, and landscaping that enhance the appearance of the corridor. Improved bicycle, pedestrian, and transit connectivity provide opportunities for non-auto travel along and to the corridor. A new street will connect El Camino Real to Sunshine Gardens, improving connectivity to and from the El Camino Real sub-area.
GOAL SA-11: Active pedestrian-oriented, mixed use centers are created at the El Camino Real/Chestnut Avenue area.
GOAL SA-13: A quality public realm along El Camino Real with appropriate transitions to nearby neighborhoods.
• INTENT: To ensure El Camino Real has an inviting, memorable public realm.
• Policy SA-13.2: Implement El Camino Real streetscape enhancements. Transform El Camino Real into a boulevard with streetscape enhancements, including street furniture, signage, consistent landscaping on medians, and public art that enhance the appearance of the corridor.
• Policy SA-13.3: Require sidewalk widening along El Camino Real. Where feasible, widen sidewalks in areas with active ground floor uses and institutional uses to encourage pedestrian activity and allow for more space for seating, trees, and landscaping.
GOAL SA-14: Improved pedestrian, bicycle, and roadway connections between adjacent residential neighborhoods and El Camino Real.
• INTENT: To ensure everyone can easily access El Camino Real and nearby neighborhoods.
• Policy SA-14.3: Improve safety of El Camino Real crossings. Where feasible, employ median refuges, highly visible crosswalks, and flashing beacons to improve safety of El Camino Real crossings.
o Action SA-14.3.1: Implement El Camino Real wayfinding signage. Add wayfinding signage to improve connections to the South San Francisco BART station, Kaiser Permanente Medical Center, Colma Creek, and the Centennial Way Trail.
o Action SA-14.4.1: Chestnut Avenue and Antoinette Lane intersection improvement. Provide and maintain safe and convenient pedestrian and bicycle connections, including via improved signage, lighting, and flashing beacons, along Antoinette Lane across Chestnut Avenue to link the two ends of the Centennial Way Trail.
GOAL SA-27: There are safe, comfortable, and accessible pedestrian and bicycle facilities that connect people to Downtown, El Camino, and East of 101.
• INTENT: To foster pedestrian and bicycle connectivity from Lindenville to Downtown, El Camino Real, and East of 101.
GOAL SA-29: Avalon-Brentwood is a walkable, attractive, and safe neighborhood with a variety of housing options, accessible recreational amenities, and quality infrastructure.
• Policy SA-29.1: Provide connections to El Camino Real and South Spruce Avenue. Provide convenient bicycle, pedestrian, and auto connections to the node of amenities and services at El Camino Real and South Spruce Avenue and within the sub-area.
Chapter 9: Mobility and Access
Key Street Changes. El Camino Real and South Airport Boulevard Modernization: El Camino Real and South Airport Boulevard would be modernized into more walkable and bikeable ‘grand boulevards’ to support their evolution from low density auto-oriented corridors into mixed-use residential, employment, and hotel uses. Both streets have substantial right-of-way along most of the corridor: South Airport Boulevard is typically greater than 100 feet wide, while El Camino Real is typically greater than 120 feet wide. Wider sidewalks, buffered or protected bike lanes, enhanced bus stops, and landscaped medians and sidewalk buffers should be added, while maintaining existing vehicle lanes and a dedicated left turn lane. Signalized crossings should be provided for pedestrians and bicyclists at all marked crosswalks and accompanying bus stops, ideally no greater than ¼ mile apart.
CONCLUSION
For next steps, the City and consultant team will continue to conduct community engagement to hear from the community about their priorities for El Camino Real, including during the upcoming Community Workshop on October 30, 2025, through outreach to business along and near El Camino Real, and through the web-based survey and pop-up events.
Tonight, staff recommends that the City Council provide guidance regarding initial considerations and priorities for El Camino Real.
Attachments
1. Presentation
2. SamTrans’ Grand Boulevard Initiative Fact Sheet