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Home My WebLink AboutStaff Report 2403-2802CITY OF PALO ALTO Rail Committee Regular Meeting Tuesday, April 16, 2024 2:30 PM Agenda Item 2.Review additional analysis to evaluate the merits of the Kellogg Avenue and Seale Avenue Bicycle and Pedestrian Crossings, and discuss next steps in providing a recommendation from the Rail Committee to the City Council for a Bicycle and Pedestrian Crossing location associated with the Churchill Avenue Underpass Alternative. Public Comments, Presentation Rail Committee Staff Report From: City Manager Report Type: ACTION ITEMS Lead Department: Transportation Meeting Date: April 16, 2024 Report #:2403-2802 TITLE Review additional analysis to evaluate the merits of the Kellogg Avenue and Seale Avenue Bicycle and Pedestrian Crossings, and discuss next steps in providing a recommendation from the Rail Committee to the City Council for a Bicycle and Pedestrian Crossing location associated with the Churchill Avenue Underpass Alternative. RECOMMENDATION Staff Recommends that the Rail Committee review additional analysis to evaluate the merits of Kellogg Avenue and Seale Avenue Bicycle and Pedestrian Crossing locations based on the Bicycle and Pedestrian Transportation Plan Report. Depending on the Rail Committee’s preference, discuss next steps in providing a recommendation to the City Council regarding the preferred location for advancing the crossing associated with the Churchill Avenue Underpass Alternative into the preliminary engineering and environmental documentation phase. EXECUTIVE SUMMARY The City Council in November 2021 directed staff to evaluate the merits of Seale Avenue and Kellogg Avenue crossing as part of the Bicycle and Pedestrian Transportation Plan (BPTP) update for the Churchill Avenue Underpass Alternative. The BPTP has completed its evaluation and provided the assessment. Staff requests that the Rail Committee review the technical memorandum (Attachment A) and to evaluate the bicycle and pedestrian crossing locations. Depending upon the Rail Committee’s preference, the committee discuss next steps in providing a recommendation to the City Council for the selection of crossing location for advancement of the Churchill Avenue Underpass Alternative into the Preliminary Engineering and Environmental Documentation Phase. BACKGROUND & ANALYSIS After receiving the final report from the Expanded Community Advisory Panel (XCAP), staff presented a detailed review of Churchill Avenue crossing alternatives for grade separation on November 1 & 29, 2021 (Staff Report 135431) & (Staff Report 137462). At the November 29, 2021, City Council meeting, the Council directed staff to ensure that Bicycle and Pedestrian Transportation include evaluation of the merits of the bicycle and pedestrian crossing across the Caltrain rail corridor at Kellogg Avenue and Seale Avenue. The Bicycle and Pedestrian Transportation Plan included an initial evaluation for consideration of crossing across the Caltrain corridor at Kellogg Avenue and Seale Avenue and a technical memorandum summarizing the assessment (Attachment A: Technical Memorandum Seale vs Kellogg Grade Separated Rail Crossing Assessment). The assessment included a review of the prior analysis and plans, proximity to alternative routes, landing locations, network connectivity, and community input. The analysis found that a bicycle and pedestrian crossing at Seale Avenue would fill a longer gap between alternative locations and would increase connectivity. However, a crossing at Seale Avenue would involve the use City parkland at Peers Park. This would require additional analysis of requirements associated with parkland improvements and the compatibility of the proposed bicycle and pedestrian infrastructure with parkland uses. Pedestrians and bicycles would no longer be able to cross the tracks at Churchill Avenue, and access to Palo Alto High School would need to occur via Seale Avenue or Embarcadero Road. The Kellogg Avenue location also faces a few challenges: Due to right-of-way constraints on the west side of the railroad tracks at the Kellogg Avenue location, there is potential for additional impact on the Palo Alto Unified School District property. The Kellogg location also requires additional turns on the west side of the tracks to connect to the Embarcadero Bike path which is currently within the easement on the Caltrain property. Finalizing the location of a Bicycle and Pedestrian crossing present complexities when considered with the planned partial underpass at Churchill including but not limited to land use and right of way. If the Rail Committee chooses the Seale Avenue location as the preferred crossing location, in lieu of the current Churchill crossing with the preferred Churchill partial underpass alternative, staff recommends conducting additional targeted outreach and stakeholder engagement and further review of the integration with Peers Park. This additional outreach aims to incorporate input from stakeholders including but not limited to Palo Alto Unified School District (PAUSD, residents around the crossings, and bike and pedestrian users including students at key locations such as Palo Alto High School and affected neighborhood streets. In addition, this will allow staff to review crossing layout and the integration of a 1 Item 15, Action Item https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=3277&compileOutputTyp e= 1 2 Item 11, Action Items https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=3241&compileOutputType= 1 potential underpass with parkland uses at Peers Park before the Rail Committee makes its final recommendation to the City Council. FISCAL/RESOURCE IMPACT The resources required for performing additional work depend upon the selection of the preferred crossing location. Depending upon the final determination and the scope of work, the Caltrain and City staff will likely require additional resources. The scope of work in the existing contract with AECOM Consultants and Caltrain Service Agreement does not cover the additional work that may result in the redesign efforts if the Seale Avenue crossing is selected as the preferred alternative. Therefore, amendments to the existing agreements may be required. Staff will prepare the amendment with AECOM and seek City Council Approval accordingly. STAKEHOLDER ENGAGEMENT The Rail Committee meetings are open to the public and therefore provide the community with opportunities to provide comments to the rail committee and City. The Rail Committee meetings are regularly conducted, and their information is posted on the City Calendar. Residents who have subscribed to City Meetings notifications receive notifications about the Rail Committee meetings. Additionally, notifications about the Rail Committee and the City Council meetings are disseminated through the City’s YouTube Channel. The Transportation Department also provides updates on City projects, including Rail Grade Separation projects, in the Transportation Connect Newsletter and on the project’s ConnectingPaloAlto3 website. The City has also recently posted a “Hot Topic” news story on grade separation on the City website homepage. ENVIRONMENTAL REVIEW The proposed action is part of a planning study for a possible future action, which has not been approved, adopted, or funded and is therefore exempt from the California Environmental Quality Act (CEQA) in accordance with CEQA Guidelines Section 15262. The future decision to approve the construction of any one of the identified potential alternatives would be subject to CEQA and require the preparation of an environmental analysis. Environmental review and design for the grade separation project will be performed in the subsequent steps of the project development. ATTACHMENTS Attachment A: Technical Memorandum Seale vs Kellogg Grade Separated Rail Crossing Assessment APPROVED BY: Philip Kamhi, Chief Transportation Official 3 Connecting Palo Alto Website Kittelson & Associates, Inc. TECHNICAL MEMORANDUM March 14, 2024 Project# 28476 To: Ozzy, Arce Palo Alto Office of Transportation , From: Kittelson & Associates, Inc. RE: Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment The BPTP Update consultant team evaluated the merits of each location (Seale and Kellogg) for a grade separated rail crossing based on the following assessment topics:  Prior analyses and plans  Proximity to alternative routes  Landing location  Network connectivity  Community input The findings of the assessment are presented in Table 1. 155 Grand Avenue, Suite 505 Oakland, CA 94612 P 510.839.1742 March 14, 2024 Page 2 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc. Table 1 Seale vs Kellogg Grade Separated Rail Crossing Assessment Assessment Topic Seale Kellogg Prior analysis and plans The 2012 BPTP identifies Seale Avenue as a recommended location for an across barrier connection. The 2013 Palo Alto Rail Corridor Study identified Seale Avenue a potential crossing location. The 2021 XCAP Report identified the addition of a bike/ped crossing at Seale as a general potential mitigation for the Churchill grade separation. This option was selected with mitigation. The 2012 BPTP does not identify Kellogg Avenue as a recommended across barrier connection or location for a grade separated rail crossing. The 2013 Palo Alto Rail Corridor Study identified Kellogg Avenue a potential crossing location. The 2021 XCAP Report included a ped/bike tunnel as part of concept designs for the Churchill Avenue Partial Underpass. This option was not selected. Proximity to alternative routes Seale Avenue is located about 1,700 feet north of the Cal Ave Tunnel and about 1,850 feet south of the at-grade rail crossing at Churchill Ave. Kellogg Avenue is located about 450 feet north of the at-grade crossing at Churchill and about 1,200 feet south of the grade-separated rail crossing at Embarcadero. Landing locations There is space available at Peers Park for a landing. There is limited space available for a landing at Paly High School. Network connectivity Seale Avenue connects to the Serra Street/Park Boulevard and Stanford Avenue east-west bikeways (along with the north-south Castilleja-Park-Wilkie Bicycle Boulevard) across Caltrain. Kellog Avenue connects to the Embarcadero Bike Path and Bryant Street Bike Boulevard. Kellog Avenue terminates at Waverley Street three blocks east of the rail line, limiting utility of this route as a through connection. Community input Comments received on the interactive map during the BPTP Update indicate a strong demand for a grade-separate bike/ped crossing of Alma and the rail line. Ideas proposed for a new crossing include an While comments received on the interactive map during the BPTP Update indicated demand for grade separated crossings, they did not identify Kellogg as a preferred alignment. March 14, 2024 Page 3 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc. alignment at Seale under the tracks to Peers Park. Churchill Avenue, the crossing nearest to Seale, was flagged as stressful for cyclists and pedestrians, indicating a lower stress route is desired. A grade separated crossing at Seale would provide an alternate low-stress facility. Overall The Seale Avenue crossing is supported by prior plans and analyses, would fill a longer gap between alternative crossing locations, appears to have adequate space for a landing location, would increase connectivity to the transportation network, and has been identified as a potential alignment for a grade-separated rail crossing in public involvement efforts for the BPTP Update. The Kellog Avenue crossing would not fill as long a gap between crossing locations and have limited utility in terms of increasing network connectivity. March 14, 2024 Page 4 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc. REFERENCES March 14, 2024 Page 5 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc.  BPTP Update – Existing Bicycle Facilities Map Yellow = pedestrian-involved collisions Orange = bicycle involved collisions Red line = Kellog (northwest) and Seale (southeast) crossing locations Green line = bike/ped path access to Paly  BPTP Update – Draft Technical Analyses o Five-Year (2018-2022) Collisions TIMS March 14, 2024 Page 6 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc.  Rail Crossing Study o Figure 4.1 March 14, 2024 Page 7 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc.  2021 Report of the Expanded Community Advisory Panel (XCAP) on Grade Separations for Palo Alto, page 57 March 14, 2024 Page 8 Seale vs Kellogg Grade Separated Rail Crossing Assessment Seale vs Kellogg Grade Separated Rail Crossing Assessment Kittelson & Associates, Inc.  School Catchment Area Maps - https://locator.pea.powerschool.com/?StudyID=171992 From:Heng (Henry) Huang To:Council, City Subject:Churchill Partial Underpass/Kellogg Tunnel vs Seale Tunnel - Rail Committee 4/16 Date:Thursday, April 11, 2024 1:39:09 PM Some people who received this message don't often get email from huangheng@gmail.com. Learn why this isimportant CAUTION: This email originated from outside of the organization. Be cautiousof opening attachments and clicking on links. Dear City Council, I am a Palo Alto resident and writing today regarding Churchill railroad closing and underpass solutions. I live close to the area. My daughter crosses the Caltrain through Churchill to go to Paly and I have two boys in Walter Hayes. I feel this crossing is very dangerous and witnessed an accident by myself last year: A Paly student on a bike was hit by a car on Alma! Therefore, I am a strong supporter of closing the Churchill crossing. On the alternative crossing on either Seale or Kellogg, I would agree with the recommendation from the third-party analysis on March 14, 2024. The Embarcadero crossing is just two blocks away from Kellogg, so it is unnecessary to have another one so close. Besides, the Seale crossing will provide better access to the Peers Park. Therefore, I think a tunnel at Seale would be a better solution. I won’t be able to attend the hearing. But it would be appreciated if the Rail Committee can take my suggestions into consideration. Best, Palo Alto resident April 11th, 2024 From:Kyu Lee To:Council, City Subject:comments on the partial underpass and Kellogg tunnel Date:Wednesday, April 3, 2024 8:28:22 AM Some people who received this message don't often get email from psykyu@gmail.com. Learn why this isimportant CAUTION: This email originated from outside of the organization. Be cautiousof opening attachments and clicking on links. Dear City Council, I extend my sincere gratitude for your dedication to enhancing the quality of life in Palo Altofor all communities. I recently became aware of the City Council's selection of the partial underpass with a pedestrian/bike tunnel on Kellogg as the preferred alternative. I must admit, I am somewhatsurprised by this decision, considering my attendance at all XCAP meetings where I closely followed the discussions and concerns raised. I aligned with the consensus among XCAPmembers that the closure of Churchill is the most favorable option given the various constraints and conditions. I am eager to understand the decision-making process behind theCity Council's selection of the partial underpass, particularly considering the thorough deliberations and decision reached during the XCAP meetings. What purpose does the XCAPcommittee serve if its recommendations can be easily disregarded by the City Council? While the partial underpass may benefit residents west of Alma in the Southgate/Evergreen Park neighborhood traveling north/south on Alma, it fails to address the needs of those on theeast side of Alma (from Coleridge to Melville) who will be unable to turn left onto Alma to head south toward Mountain View. Moreover, the proposed changes pose safety concerns forpedestrians and cyclists, as the underpass would necessitate the removal of landscaping to widen the road. Residents along Alma will be disproportionately affected, unable to make leftturns onto the street in front of their homes and facing challenges such as the relocation of trash bins. This alteration could render Alma an inaccessible and unwelcoming street forpedestrians. I am encouraged by the City Council's consideration of the alternate Seal pedestrian/bike crossing, an option recommended by XCAP in conjunction with the closure of Churchill. Atunnel at Seale offers distinct advantages, including the connection to Peers Park, allowing for a longer and more gradual curve compared to the sharp 90-degree angle required at Kellogg.Additionally, Seale is equidistant from Embarcadero and California/Oregon, with Embarcadero already serving as a crossing point. The presence of Castilleja School onKellogg further complicates matters, with increased traffic congestion during peak hours and potential safety hazards for cyclists and students. As the City Council deliberates, I urge you to prioritize the option endorsed by the XCAPmeeting, which was arrived at through thorough discussion and consideration. The closure of Churchill coupled with the Seal pedestrian/bike crossing represents the most viable solutionfor our community. Thank you for your attention to this matter, and I trust that the decision made will serve the best interests of our city. Sincerely, Kyu From:Chien Liu To:Council, City; Clerk, City Cc:chien_liu@att.net Subject:Rail Committee Meeting: April 16, 2024: Public Comment Date:Tuesday, April 16, 2024 11:10:58 AM You don't often get email from chien_liu@att.net. Learn why this is important CAUTION: This email originated from outside of the organization. Be cautiousof opening attachments and clicking on links.Dear Committee Members: My name is Chien Liu and I am a resident of Palo Alto. After several years of listening to the issues on the Bicycle and Pedestrian Crossings, I recommend that the crossing be installed on Seale Avenue. My reason are: Recommendations for Seale Avenue Bicycle and Pedestrian Crossing: 1. Abundance of Space currently exist on Seale on both sides of the train tracks: a. there are currently existing space along both sides of the train tracks, these are spaces that will prove invaluable to a robust crossing 2. Efficient and Direct channel in working with the City of Palo Alto: a. The proposed crossing will require the cooperation with the City of Palo Alto. Since the City is leading the rail redesign, working on the crossing is common sense. 3. Proximity of Peers Park and the Crossing will be beneficial to cyclist and pedestrians: a. The entire purpose of designing the crossing is to bring pedestrians closer from both sides of the train tracks. Having the crossing that directs pedestrians into Peers Park will enhance this objective. 4. The Seale Avenue crossing is already supported by prior plans and committee with detailed analyses so there is no reason to object to the installment of crossings at Seale Avenue This is my first comment on the crossing proposal as I have spent many years listening to all stakeholders of the project. The Kellogg alternative is simply secondary to the one on Seale Avenue. Not only is there limited existing space which makes a sharable design or automobiles, cyclists, and pedestrians a potential for accidents, working with CalTran on an easement approval will be decades in the making. Another problem with the Kellogg crossing is that it will funnel an increased number of non-PAUSD population closer to Palo Alto High School. Given the increasing violent crime around school campuses around the country, I believe there is absolutely no reason to introduce non-PAUSD personnel to any school unnecessarily. It is just a safety issue. Sincerely, -Chien Action Item 2 Rail Committee Kellogg Avenue & Seale Avenue Crossings April 16, 2024 www.cityofpaloalto.org Crossing Assessment 2 Prior analyses and plans Proximity to alternative routes Landing location Network connectivity Community input Proposed Layout 3 Kellogg Avenue Seale Avenue Renderings for Kellogg Avenue 4 Next Steps 5 •Conduct additional outreach with stakeholders •Rail Committee provide recommendation to the City Council for advancing the Churchill Avenue Underpass Alternative, including a preferred Bike/Ped crossing location 6