REPORT TO COUNCIL
SUBJECT
Title
Approve Alternatives for Improvements on Tasman Drive Resulting from the Tasman Pedestrian and Bicycle Improvement Study (Study Issue DPW 21-03)
Report
BACKGROUND
Summary of Commission Action Regarding Concept Design and Environmental Review
The Bicycle and Pedestrian Advisory Commission (BPAC) considered this item at their May 15, 2025 meeting. Note that the Alternatives in this report have been revised since the BPAC staff report. At the meeting, staff recommended BPAC Alternative 2: Recommend to City Council to approve the concept plan (Design Alternative 2) to implement the improvements in two phases, find that the action is exempt from California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
Phase 1 of Design Alternative 2 includes the removal of one travel lane in each direction on Tasman Drive between Fair Oaks Avenue and Vienna Drive to install sidewalk and a Class IIB buffered bicycle lane on both north and south sides along this segment, and upgrading the existing sidewalk on the south side of Tasman Drive between Vienna Drive and Lawrence Expressway to current design standards, where feasible. Phase 2 includes the removal of one travel lane in each direction on Tasman Drive between Vienna Drive and Lawrence Expressway on both north and south sides of Tasman Drive to install sidewalk and a Class IIB buffered bicycle lane on both north and south sides along this segment.
The Commission voted 6-0, with Commissioner Mehlman recused, for Design Alternative 1 to be implemented in two phases, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
Per BPAC’s recommendation, Phase 1 of Design Alternative 1 includes the removal of one travel lane in each direction on Tasman Drive between Fair Oaks Avenue and Vienna Drive to install a Class I Multi-use path on both north and south sides of Tasman Drive. Phase 2 includes the removal of one travel lane in each direction on Tasman Drive between Vienna Drive and Lawrence Expressway on both north and south sides of Tasman Drive to install either a Class I Multi-use path or Class IIB buffered bicycle lane and sidewalk on both north and south sides of Tasman Drive. Additionally, BPAC discussed recommending to City Council to approve an additional temporary westbound Tasman Drive lane closure and a bike and pedestrian path between Vienna Drive and East Channel. The intention discussed by BPAC was to keep the existing temporary eastbound lane closure in addition to adding a new temporary westbound lane closure.
Temporary Eastbound Tasman Lane Closure and Bike and Pedestrian Path
On June 30, 2020, the City Council approved a temporary eastbound Tasman Drive lane closure during the COVID-19 pandemic (RTC No. 20-0633), but with a stipulation not to exceed ten (10) months, in order to create a temporary pathway for the public to perform outdoor activities and walk to and from the nearby grocery store. Staff was directed to monitor traffic conditions to ensure that the temporary lane closure did not negatively impact traffic along the segment of Tasman Drive between Fair Oaks Avenue and Vienna Drive and at the signalized intersection of Fair Oaks Avenue and Tasman Drive.
On August 31, 2021, City Council approved a 12-month extension of the temporary eastbound Tasman Drive lane closure with a peak hour trigger of meeting 720 vehicles per hour (RTC No. 21-0072) needed to restore the eastbound vehicular lane. At the end of the initial 10-month period, staff noted that traffic volumes were still well below the pre-pandemic levels, below the peak hour threshold of 720, and there was no congestion, queues or delays associated with the temporary lane closure.
On February 7, 2023, City Council approved an extension of the temporary eastbound Tasman Drive lane closure until December 2024 (RTC No. 23-0001), while still subject to the previously identified peak hour trigger of 720 vehicles needed to restore the eastbound vehicular lane. Staff noted that the peak hour volume in December 2022 was 63% of the established threshold and the regular observations conducted at the Fair Oaks Avenue/Tasman Drive and Tasman Drive/Vienna Avenue intersections did not identify any negative effects on queuing, delays, congestion or safety related to the temporary lane closure.
EXISTING POLICY
General Plan, Chapter 3, Land Use and Transportation Element:
• Policy LT-3.2. Refine land use patterns and the transportation network so they work together to protect sensitive uses and provide convenient transportation options throughout the planning area
• Policy LT-3.6. Promote modes of travel and actions that provide safe access to City Streets and reduce single-occupant vehicle trips and trip length locally and regionally
• Policy LT-3.21. Implement best practices, innovative facilities, and technology to enhance complete streets
• Policy LT-3.22. Provide safe access to city streets for all modes of transportation. Safety considerations of all transport modes shall take priority over capacity considerations of any one transport mode
• Policy LT-3.24. Ensure effective and safe traffic flows for all modes of transport through physical and operational transportation improvements
General Plan, Chapter 4, Community Character:
• Policy CC-1.6. Maintain City Neighborhoods as safe, healthy places to live
• Policy CC-1.7. Encourage Neighborhood Patterns that Encourage Social Interaction and Avoid Isolation
• Goal CC-12. Maximum access to recreation services, facilities and amenities
Resolution No. 793-16 Complete Street Policy (and Resolution No. 896-18 amending Resolution No. 793-16): The City wishes to improve its commitment to Complete Streets and desires that its streets form a comprehensive and integrated transportation network promoting safe, equitable, and convenient travel for all users while preserving flexibility, recognizing community context, and using the latest and best design guidelines and standards.
ENVIRONMENTAL REVIEW
CEQA contains a statutory exemption under Public Resources Code Section 21080.25(b)(1) for pedestrian and bicycle facilities that improve safety, access or mobility within the public right-of-way. In addition, the creation of bicycle facilities on existing rights-of-way is exempt under CEQA Guidelines Section 15304(h).
The temporary removal of one eastbound or westbound travel lane and the creation of a temporary pathway is categorically exempt under the California Environmental Quality Act (CEQA) pursuant to the CEQA Guidelines Section 15301 (c), for minor alterations of existing highways and streets that do not create additional automobile lanes and involving negligible or no expansion of existing or former use.
DISCUSSION
Temporary Eastbound Tasman Drive Lane Closure and Bike and Pedestrian Path
The temporary eastbound Tasman lane closure was initially installed in August 2020 with a monthly rental contract from a traffic control service provider. The traffic control devices used included one (1) solar powered arrow board trailer, six (6) barricades, five (5) water filled barriers, eight (8) signs, 236 surface mounted channelizers and one (1) temporary Americans with Disabilities Act (ADA) curb ramp. These devices are designed for temporary construction conditions and are not intended to be in use as a long-term condition. In June 2023, after the temporary lane closure was extended a second time, staff reviewed the lane closure and decided to purchase all installed traffic control devices rather than continue renting the equipment. Maintenance intervals and spot repairs were adjusted on an as-needed basis and continue to be contracted through the traffic control service provider. Staff conducts periodic site visits, as well as visits in response to residents’ inquiries, to ensure the devices are visible, properly installed and functioning correctly. The purchase of equipment and adjustments to maintenance needs have reduced overall costs for the traffic control devices. As a result, the remaining funds in Project 835260 - Tasman Drive Temporary Lane Closure are sufficient to sustain operations in their current form through August 2025.
Over the past two years, staff have continued to monitor traffic conditions along Tasman Drive near the temporary eastbound lane closure. Although traffic volumes continue to rise, as of April 2025, the average daily eastbound traffic volume in the closure segment was 5,540 per day, which is approximately 83% of the pre-pandemic 2017 level of 6,678 average daily eastbound traffic volume. Traffic volumes from 2017 were used as that was the latest pre-pandemic average daily traffic (ADT) count available. In April 2025, the peak hour volume reached 612 vehicles per hour, which is approximately 85% of the 720 vehicles per hour threshold established by City Council at the August 31, 2021 meeting. Staff have continued regular observations at the Fair Oaks Avenue/Tasman Drive and Tasman Drive/Vienna Avenue intersections to monitor any queuing, delays, congestion or safety issues related to the temporary lane closure and have observed no detrimental effects.
These devices are designed for temporary construction conditions and are not intended to be in use as a long-term condition. The temporary closure does not meet Americans with Disabilities Act (ADA) requirements. To serve both pedestrians and bicyclists, the closure path would need to be ADA compliant and acceptable to the Department of Public Safety for emergency response routes and activities. This would require design effort and reconstruction of portion of the roadway to meet ADA requirements. Optionally, the lane closure could be designed with buffered bike lanes to be installed temporarily until a final design is installed. Pedestrians could travel using pre-pandemic routes. Additional traffic control devices and signage will also be put in place to guide drivers and other road users appropriately along eastbound Tasman Drive.
Temporary Westbound Tasman Drive Lane Closure and Bike and Pedestrian Path
In June 2020, staff evaluated whether the temporary lane closure on Tasman Drive to create a bike and pedestrian path should be on the eastbound side, the westbound side, or both. Based on the evaluation, since an existing sidewalk on the south side of Tasman Drive between Fair Oaks Avenue to 800 feet east of Tasman Court creates a shorter pedestrian facility gap compared to the north side, staff recommended the eastbound lane closure. Additionally, the temporary bike and pedestrian path on the south side can serve bicyclists and pedestrians in both directions, with pedestrians on the north side able to access the path via existing traffic signals on Tasman Drive at Vienna Drive and at Fair Oaks Avenue.
Similar to the current temporary lane closure on eastbound Tasman Drive, the devices would not meet ADA requirements for pedestrian use. If installed with devices similar to the existing temporary devices, these are intended for temporary construction conditions and not for use in long-term conditions. To serve both pedestrians and bicyclists, the closure path would need to be ADA compliant and acceptable to the Department of Public Safety for emergency response routes and activities. This would require design effort and reconstruction of portions of the roadway to meet ADA requirements. Optionally, the lane closure could be designed with buffered bike lanes to be installed temporarily until a final design is installed. Pedestrians could travel using pre-pandemic routes. Additional traffic control devices and signage will also be put in place to guide drivers and other road users appropriately along westbound Tasman Drive.
FISCAL IMPACT
Concept Design and Environmental Review
The total project cost for Design Alternative 1 from Fair Oaks Avenue to Lawrence Expressway is approximately $18 million to $23 million. Phase 1 of Design Alternative 1 would be approximately $14M-17M. Phase 2 of Design Alternative 1 would be approximately $4M-6M. The total project cost for Design Alternative 2 from Fair Oaks Avenue to Lawrence Expressway is approximately $14 million to $19 million. Phase 1 of Design Alternative 2 would be approximately $12M-16M. Phase 2 of Design Alternative 2 would be approximately $2M-3M. There is currently no funding for further design or construction for either alternative. After the selection of the design alternative, staff will look for grant opportunities for the design and construction phases for the project and work through a future budget process to create a Capital Improvement Project for City Council consideration.
Maintain the Existing Temporary Eastbound Tasman Drive Lane Closure and Update the Equipment
Staff does not recommend maintaining the existing temporary lane closure. The current installation used temporary devices intended for construction zones and was not designed to meet ADA requirements.
If the closure is not extended beyond August 2025, the devices would be removed, and the conditions would revert back to Active Transportation Plan (ATP) conditions.
Optionally, the lane closure could be designed with buffered bike lanes to be installed temporarily as part of a future slurry seal project or restriped by City staff, until a final design is installed.
Removal of the Existing Temporary Eastbound Tasman Drive Lane Closure and Bike and Pedestrian Path
Capital Improvement Project 835260 - Tasman Drive Temporary Lane Closure has $3,905 in available funds, which is sufficient to remove all equipment and traffic control devices if City Council directs staff to remove the existing temporary eastbound Tasman Drive lane closure and restore the travel lane to its previous use, no additional funds would be required.
PUBLIC CONTACT
Public contact was made by posting the Council meeting agenda on the City's official-notice bulletin board at City Hall, at the Sunnyvale Public Library and in the Department of Public Safety Lobby. In addition, the agenda and this report are available at the City Hall reception desk located on the first floor of City Hall at 456 W. Olive Avenue (during normal business hours), and on the City's website.
ALTERNATIVES
Concept Design and Environmental Review
1. Multi-Use Path: Fair Oaks to Vienna. Approve Design Alternative 1 to remove one travel lane in each direction on Tasman Drive between Fair Oaks Avenue and Vienna Drive (Phase 1 segment) to install a Class I Multi-use path on both north and south sides of Tasman Drive, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
2. Multi-Use Path: Vienna to Lawrence. Approve Design Alternative 1 to remove one travel lane in each direction on Tasman Drive between Vienna Drive and Lawrence Expressway (Phase 2 segment) to install a Class I Multi-use path on both north and south sides of Tasman Drive, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
3. Sidewalk and Buffered Bicycle Lane: Fair Oaks to Vienna. Approve Design Alternative 2 to remove one travel lane in each direction on Tasman Drive between Fair Oaks Avenue and Vienna Drive (Phase 1 segment) to install sidewalk and a Class IIB buffered bicycle lane on both north and south sides along this segment, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
4. Sidewalk and Buffered Bicycle Lane: Vienna to Lawrence. Approve Design Alternative 2 to remove one travel lane in each direction on Tasman Drive between Vienna Drive and Lawrence Expressway (Phase 2 segment) to install sidewalk and Class IIB buffered bicycle lane on both north and south sides along this segment, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
5. Pre-Pandemic Configuration: Fair Oaks to Vienna. Maintain the existing (pre-COVID-19 pandemic) Tasman Drive configuration between Fair Oaks Avenue and Vienna Drive (Phase 1 segment) pursuant to the Active Transportation Plan (no change to pre-pandemic conditions).
6. Pre-Pandemic Configuration: Vienna to Lawrence. Maintain the existing (pre-COVID-19 pandemic) Tasman Drive configuration between Vienna Drive and Lawrence Expressway (Phase 2 segment) pursuant to the Active Transportation Plan (no change to pre-pandemic conditions).
Temporary Lane Closure and Bike and Pedestrian Path
7. Remove the existing temporary eastbound Tasman Drive lane closure and bike and pedestrian path.
8. Convert the eastbound temporary lane closure into a buffered bicycle lane and modify one westbound travel lane to install a buffered bicycle lane.
9. Other alternative as directed by Council.
STAFF RECOMMENDATION
Recommendation
Alternatives 3, 6 and 7:
Alternative 3: Sidewalk and Buffered Bicycle Lane: Fair Oaks to Vienna. Approve Design Alternative 2 to remove one travel lane in each direction on Tasman Drive between Fair Oaks Avenue and Vienna Drive (Phase 1 segment) to install sidewalk and Class IIB buffered bicycle lane on both north and south sides along this segment, find that the action is exempt from CEQA pursuant to CEQA Guidelines Section 15301(c) and Public Resources Code Section 21080.25(b)(1), and recommend that the City Council direct staff to include the concept plan as an unfunded project in the FY 2025/26 Budget pending future identification of funding.
Alternative 6: Maintain the existing (pre-COVID-19 pandemic) Tasman Drive configuration between Vienna Drive and Lawrence Expressway (Phase 2 segment) per the Active Transportation Plan (no change to pre-pandemic conditions).
Alternative 7: Remove the existing temporary eastbound Tasman Drive lane closure and bike and pedestrian path.
JUSTIFICATION FOR RECOMMENDATION
Concept Design and Environmental Review
Staff recommends approving Design Alternative 2 on Tasman Drive to be implemented between Fair Oaks Avenue and Vienna Drive. This would involve removing one travel lane in each direction to install a sidewalk and buffered bicycle lane in both directions on this segment. No vertical devices are recommended to allow for emergency access.
Staff does not recommend Design Alternative 1, the multi-use path with vertical separation between the path and the vehicle lanes, because it is detrimental to emergency access and public safety. Design Alternative 2, the sidewalk and buffered bicycle lanes, would provide additional space to accommodate emergency vehicles, provide space for public safety activities and facilitate the movement of mobile homes into and out of the two adjacent mobile home parks. Where a sidewalk currently exists within the segment, it will be evaluated during final design to ensure it meets current design standards, including ADA and emergency access requirements.
Staff recommends keeping the segment from Vienna Drive to Lawrence Expressway as existing (pre-pandemic conditions). This section has received numerous public concerns related to congestion, public safety, emergency access, and mobile home deliveries. This segment is located near Lawrence Expressway, a major commute connection with higher vehicle volumes and higher observed peak hour congestion and queueing than the other segment. Additionally, Fire Station 6 is located to the east of the project limits and is the first responding station for calls in the project area.
Temporary Lane Closure and Bike and Pedestrian Path
Staff recommends removing the existing temporary eastbound Tasman Drive lane closure and the bike and pedestrian path. The current closure was intended to be temporary during the emergency COVID-19 pandemic conditions. The current closure was not designed to meet the requirements of ADA or emergency access. The cost to implement a temporary condition that meets these requirements and provides access to both bicycles and pedestrians would likely be relatively high. The duration of a temporary closure is not yet determined and therefore creates uncertainty about the fiscal impact for maintenance. Evaluation of maintaining this temporary closure is outside of the scope of this study.
Levine Act
LEVINE ACT
The Levine Act (Gov. Code Section 84308) prohibits city officials from participating in certain decisions regarding licenses, permits, and other entitlements for use if the official has received a campaign contribution of more than $500 from a party, participant, or agent of a party or participant in the previous 12 months. The Levine Act is intended to prevent financial influence on decisions that affect specific, identifiable persons or participants. For more information see the Fair Political Practices Commission website: www.fppc.ca.gov/learn/pay-to-play-limits-and-prohibitions.html
An “X” in the checklist below indicates that the action being considered falls under a Levine Act category or exemption:
SUBJECT TO THE LEVINE ACT
___ Land development entitlements
___ Other permit, license, or entitlement for use
___ Contract or franchise
EXEMPT FROM THE LEVINE ACT
___ Competitively bid contract*
___ Labor or personal employment contract
___ Contract under $50,000 or non-fiscal
___ Contract between public agencies
_X_ General policy and legislative actions
* "Competitively bid" means a contract that must be awarded to the lowest responsive and responsible bidder.
Staff
Prepared by: Thinh Le, Transportation Engineer
Reviewed by: Angela Obeso, Interim Transportation and Traffic Manager
Reviewed by: Chip Taylor, Director, Department of Public Works
Reviewed by: Sarah Johnson-Rios, Assistant City Manager
Approved by: Tim Kirby, City Manager
ATTACHMENTS
1. Report to Bicycle and Pedestrian Advisory Commission 25-0057, May 15, 2025 (without attachments)
2. Corridor Map
3. Design Alternative 1 Cross Section Exhibit
4. Design Alternative 2 Cross Section Exhibit
5. Link to Tasman Drive Pedestrian and Bicycle Improvement Study - Draft Final Report
Additional Attachments for Report to Council
6. Excerpt of Minutes of the Bicycle and Pedestrian Advisory Commission Meeting of May 15, 2025