HomeMy WebLinkAboutStaff Report 2405-3085
Rail Committee
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Transportation
Meeting Date: August 20, 2024
Report #:2405-3085
TITLE
Review and Discuss the Initial Analysis of the City’s Quiet Zone Implementation Project at
Existing At-Grade Crossings (Churchill Avenue, Meadow Drive, and Charleston Road); CEQA
status – statutorily exempt per Section 15262 (Feasibility and Planning Studies).
RECOMMENDATION
Staff recommends the Rail Committee to consider recommending safety measures at each of
the crossings to bring Quiet Zone Risk Index (QZRI) to below the existing Risk Index With Horns
(RIWH), which involves implementing a quad gate arms mechanism at each of the three
crossings i.e. Churchill Avenue, Meadow Drive, and Charleston Road (Option 1). In addition,
staff recommends considering Wayside Horns (Option 4) for interim purposes to reduce Train
Horn Noise levels in the community.
EXECUTIVE SUMMARY
The Office of Transportation staff is progressing with a Quiet Zone Study at three rail crossings:
Churchill Avenue, Meadow Drive, and Charleston Road. On March 4, 2024, the City Council
approved an agreement with Kimley Horn and Associates to perform the Quiet Zone Study for
the implementation of Quiet Zones at the project crossings in Palo Alto. The Federal Railroad
Administration (FRA) regulations require a quiet zone study to review the Quiet Zone Risk Index
(QZRI) qualifying for quiet zone or Supplemental Safety Measures (SSM) at each crossing. The
Consultant has completed the initial review of the existing conditions and developed options
for improvements at these crossings. This staff report shares the findings from this initial review
and analysis and seeks direction in furthering the next steps for implementing Quiet Zone.
BACKGROUND
Federal regulation requires that locomotive horns begin sounding 15–20 seconds before
entering public rail grade crossings, no more than one-quarter mile in advance. These horns
produce sounds from 96 to 110 decibels for at-grade crossings. The sound noise affects the
quality of life of the Palo Alto residents in the vicinity of the railroad crossings and causes
significant noise pollution.
The City of Palo Alto (City) has received several requests for consideration of Quiet Zone (QZ) at
crossings across the Caltrain Corridor. As the first phase of this project, the City of Palo Alto in
collaboration with the City of Menlo Park conducted a QZ study for establishing a quiet zone at
the Palo Alto Avenue/Alma Street crossing. The City Council has approved the Conceptual plans
for the improvements required at this crossing and staff is working with the consultant to
develop the improvement plans for the construction of required improvements. Also, after this
phase, the Office of Transportation staff initiated a QZ project for implementation of QZ at the
remaining three at-grade crossings of Churchill Avenue, Meadow Drive, and Charleston Road.
As the City is progressing towards the Grade Separation at these crossings, the QZ will therefore
serve as an interim measure until Grade Separation Projects are constructed at these crossings.
On March 4, 2024, the City Council approved an agreement with Kimley Horn and Associates for
performing a Quiet Zone Study which also includes the scope of providing recommendations for
improvements necessary at these three crossings to implement QZ in Palo Alto (Staff Report
2311-22691). The Federal Railroad Administration (FRA) Title 49 regulations provide guidelines
to local agencies nationwide to mitigate the effects of train horn noise by establishing Quiet
Zones. The regulations require a quiet zone study to review the Quiet Zone Risk Index (QZRI)
qualifying for quiet zone or Supplemental Safety Measures (SSM) at each crossing. There are
fourteen SSMs recognized by the FRA. Due to the community goals and the surrounding street
geometry, the only feasible SSM was a quad-gate system for each of these crossings.
ANALYSIS
The project consultant has completed the initial review of the existing conditions and analyzed
the crossings, and this initial review precedes any conceptual design, diagnostic meetings, and
coordination with Caltrain and CPUC. There are three main methods by which a set of
crossings can achieve quiet zone approval. Due to community goals and the surrounding street
geometry, the only feasible SSM was a quad-gate system. The analysis of the risk index for
each of these options is as follows:
Option 1: Upgrade each crossing: this option considers implementing safety measures
at each of the crossings to bring QZRI to below the existing Risk Index With Horns
(RIWH). This option involves implementing a quad gate arms mechanism at each of the
three crossings i.e. Churchill Avenue, Meadow Drive, and Charleston Road.
1 City Council Meeting, March 4, 2024; Consent Item SR# 2311-2269
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=82717&dbid=0&repo=PaloAlto
Table 1: All Crossings upgraded to Quad Gates
Street Pre-SSM SSM Risk
Risk Index with Horns (RIWH)
Quiet Zone Risk Index (QZRI)
Option 2: Upgrade minimum subset to gain QZ approval: A second way by which a
quiet zone can be achieved is by upgrading crossings with SSMs such that the QZRI is
less than the RIWH. During this evaluation, it was determined that two crossings in the
Study Area are required to be upgraded to Quad gates (SSM 6) for the Quiet Zone to
qualify for QZ. This could be a combination of any two crossings as depicted in the
tables below.
Table 2: Churchill and Meadow upgraded to Quad Gates
Street Pre-SSM SSM Risk
Risk Index with Horns (RIWH)
Quiet Zone Risk Index (QZRI)
Table 3: Meadow Drive and Charleston Road crossings upgraded to Quad Gates
Street Pre-SSM SSM Risk
Risk Index with Horns (RIWH)
Quiet Zone Risk Index
Table 4: Churchill Avenue and Charleston Road crossings upgraded to Quad Gates
Street Pre-SSM SSM Risk
Risk Index with Horns (RIWH)
Quiet Zone Risk Index (QZRI)
Option 3: Alternative Safety Measures: In locations where implementing upgrades
may be infeasible due to geometry or spatial constraints, Alternative Safety Measures
(ASMs) may be implemented. ASMs require a more frequent cycle of re-certification of
the quiet zone and are evaluated on a subjective basis. “Engineering” ASMs may
include roadway changes, such as reprofiling, sight visibility enhancements, or
signalization upgrades. “Non-engineering” ASMs could include public outreach
initiatives or police enforcement.
For the crossings in the Study Area, ASMs may be useful if the City determines four-
quadrant gates would not be feasible, specifically related to the limited clearance
between the grade crossings and nearby intersections with Alma Street. However, it is
important to note the risk associated with the implementation of ASMs, due to the
increased frequency of recertification (2.5 – 3 years) as well as the subjective
evaluation of the safety measures.
Option 4: Wayside Horns: Wayside horns are allowed to be installed at crossings
already equipped with flashing lights and automatic gates. The wayside horn would be
placed on the warning device, and oriented to face the roadway. The sound would be
directed down the roadway, which can reduce the overall spread of the noise. However,
wayside horns are not the same as establishing a quiet zone.
Wayside horns may be an interim measure to reduce the spread of the sound associated
with train horns while a more permanent solution is evaluated, planned for, and
constructed.
To implement QZ at these crossings, the analysis assumed all four crossings in the FRA Quiet
Zone Calculator, since the City cannot create two different quiet zones under CFR
222.35(a)(1)(iii). The likely quiet zone implementation will involve getting Palo Alto
Avenue/Alma Street quiet zone certified, and then amending the quiet zone in the future when
the remaining three crossings are upgraded.
To have a QZ, implementation of the quad gate system will be necessary to meet the Quiet
Zone Risk Index. The next steps will therefore involve the consultant reviewing the existing
conditions at each intersection and developing the conceptual plans. These conceptual plans
will allow discussions with FRA and CPUC staff during the diagnostic meeting for the
development of the QZ at these crossings. Therefore, staff recommends that the consultant
proceeds with the review and development of the conceptual plans that would meet the FRA
requirements for implementation of the QZ.
RESOURCE IMPACT
Funding for this Quiet Zone Study is included in the 2025-2029 Capital Improvement Plan in the
Transportation and Parking Improvements project (PL-12000). No additional impacts are
anticipated at this time.
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 the City. Regular updates on the
project are provided at this meeting. Staff plans to conduct outreach to seek input and feedback
from the community after conducting the diagnostic meeting and the development of the
conceptual plan
ENVIRONMENTAL REVIEW
Conducting a Quiet Zone Study is statutorily exempt under CEQA section 15262 as a feasibility or
planning study. Review of this study does not approve or fund any specific project. Any future
capital improvements recommended through the study will be subject to CEQA review as
required by law.
ATTACHMENTS
Attachment A: Palo Alto Quiet Zone Technical Memorandum
APPROVED BY:
Philip Kamhi, Chief Transportation Official