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HomeMy WebLinkAboutStaff Report 3551 City of Palo Alto (ID # 3551) City Council Staff Report Report Type: Action Items Meeting Date: 2/11/2013 City of Palo Alto Page 1 Summary Title: One Bay Area Grant Program Title: Approval of Proposal for Project Submittals for the One Bay Area Grant Program From: City Manager Lead Department: Planning and Community Environment Recommendation and Draft Motion Draft Motion: I move that Council direct staff to submit application grants for the ten (10) identified projects to the Valley Transportation Authority (VTA) as part of the One Bay Area Grant (OBAG) Program. Executive Summary Staff has identified ten (10) projects that may be appropriate for funding as part of the OBAG program and is soliciting policy direction and approval for the submittal of grant proposals. If approved for submittal by the Council, staff will complete the project proposals in February and submit them to the VTA by March 5, 2013, the OBAG project submittal deadline date. City of Palo Alto Page 2 Recommended City of Palo Alto One Bay Area Grant (OBAG) Projects No. Project Title Requested OBAG Local Project Funding Match Cost 1. Adobe Creek/Highway 101 $4,000,000 $5,500,000 $9,500,000 Bicycle-Pedestrian Bridge 2 Arastradero Rd Corridor $3,000,000 $1,000,000 $4,000,000 Improvements (Gunn High to El Camino Real) 3 Birch Street Gateway $1,000,000 $500,000 $1,500,000 4 Charleston Rd Corridor $2,500,000 $1,500,000 $4,000,000 Improvements (Alma St to Fabian Wy) 5 El Camino Real Corridor $1,750,000 $750,000 $2,500,000 Improvements (Stanford Av to Embarcadero Rd) 6 Magical Bridge $550,000 $200,000 $750,000 7 Palo Alto Community Shuttle $350,000 $150,000 $500,000 Shelter and Route Extension 8 Palo Alto Transit Mall $10,500,000 $4,500,000 $15,000,000 Extension at Urban Lane 9 Palo Alto Transit Mall $23,800,000 $10,200,000 $34,000,000 Transit Road Extension 10 Palo Alto Traffic Signal System $1,750,000 $750,000 $2,500,000 Improvements $49,200,000 $25,050,000 $74,250,000 Background The Valley Transportation Authority (VTA) released a call-for-projects for the One Bay Area Grant (OBAG) program on November 5, 2012. Project proposals are due March 5, 2013. The Metropolitan Transportation Commission (MTC) is the metropolitan planning organization for the greater San Francisco Bay Area, but the VTA serves as the planning organization for Santa Clara County helping to distribute administrative responsibilities from MTC, including grant funding distribution, and to provide better local representation for the county. City of Palo Alto Page 3 Within Santa Clara County, a total of $71.3M is available for distribution to jurisdictions for transportation projects as part the current OBAG program. The OBAG program includes two elements, a Countywide Guaranteed Fund element ($26.2M) and a Competitive Complete Streets element ($45.1M). The Countywide Guaranteed Fund is direct funding to each local agency within the county to supplement street maintenance programs; and each agency has four years to expend its Countywide Guaranteed Fund allocation for street improvement-type projects such as pavement maintenance, streetscape projects, sidewalks, etc. The City of Palo Alto Countywide Guaranteed Fund allocation is $954,707; projects to program for this fund will be identified as part of the Capital Improvement Program (CIP) process. The remainder of this staff report discusses recommended projects for submittal of proposals in response to the OBAG - Competitive Complete Streets program. The OBAG program consolidates previous grant programs administered by the Metropolitan Transportation Commission (MTC) and VTA into one call for projects for the next four years through the Competitive Complete Streets Program. Additional call-for-projects may be available at small funding intervals but the current release is the largest anticipated grant funding distribution in the near future. Funds are available for projects that meet the eligibility requirements for any of the following transportation improvement categories:  Local streets and roads preservation  Bicycle and pedestrian improvements  Transportation for Livable Communities (TLC)  Safe Routes to School  Priority Conservation Area MTC has also set two pre-screening criteria for local agencies to be eligible for funds through the OBAG Program and Palo Alto complies with those prerequisites, including: 1. Complete Streets requirement: The Transportation Element of City of Palo Alto’s current Comprehensive Plan (1998-2010) complies with the Complete Streets Act of 2008 (AB 1358), as verified by VTA; and 2. Housing Element Certification: The City has submitted a request for and received a one- year extension of the January 31, 2013 deadline for receiving certification from the California Department of Housing and Community Development (HCD) of City’s Housing Element; staff anticipates that the Element will be certified within the next 2-3 months. OBAG project proposals must show that they meet the following key requirements:  Serve a Priority Development Area (PDA) as defined by MTC  Address a demonstrated safety issue  Support air quality improvements including reductions in vehicles miles traveled  Connectivity improvements such as gap closures in sidewalks or other transportation facilities  Create community identity and place making, and/or City of Palo Alto Page 4  Connect with local or regional transit facilities The more key requirements that are satisfied for a project the better the project will score as part of the OBAG program. The extent of local funding per project, project readiness and proximity to affordable and/or senior housing facilities are also factors that influence scoring. The OBAG program will likely be oversubscribed with each city within Santa Clara County submitting various project proposals for consideration as part of the competitive program. The total OBAG funding requested by the City of Palo could range up $49M and could require a total local match of up to $25M. Discussion Staff has identified 10 projects that may be appropriate for funding as part of the OBAG program and is soliciting policy direction and authorization to continue to develop and submit project proposals. Several of the projects are active projects that the City has been planning and actively soliciting outside funding sources. Others have been developed specifically to match the funding criteria of the OBAG program:  Adobe Creek/Highway 101 Bicycle-Pedestrian Bridge  Arastradero Road Corridor Improvements (Gunn High School to El Camino Real)  Birch Street Gateway (California Avenue to Oregon Expressway)  Charleston Road Corridor Improvements (Alma Street to Fabian Way)  El Camino Real Corridor Improvements (Stanford Avenue to Embarcadero Road)  Magical Bridge at Mitchell Park  Palo Alto Community Shuttle Shelter and Route Extension  Palo Alto Transit Mall Extension at Urban Lane  Palo Alto Transit Mall – Transit Road Extension  Palo Alto Traffic Signal System Improvements Each of the proposed projects is discussed in the remainder of this section. City of Palo Alto Page 5 Adobe Creek/Highway 101 Bicycle Pedestrian Bridge Project Description: The Adobe Creek/Highway 101 Bicycle Pedestrian Bridge is the highest priority Across Barrier Connection (ABC) project within the City of Palo Bicycle & Pedestrian Transportation Plan 2012. The project will provide a year- round crossing across Highway 101 through a proposed bridge that replaces the existing Lefkowitz tunnel. The City anticipates 74,000 annual trips to the bridge and the structure is a key link in the City’s Bay to Ridge Trail. Project Background: The City completed a Feasibility Study for the project in November 2011 and is in the process of completing an Environmental Assessment and Preliminary Design for the project. The City anticipates the release of a design competition Request for Proposals for the project in the Summer 2013. Project Funding: In November 2012 the City received a $4,000,000 grant from the County of Santa Clara – Alternative Mitigation Program for design and construction of the bridge as part of the Stanford-Palo Alto Trail Program. The City will be advancing $1,000,000 from the Stanford University Medical Center (SUMC) – Sustainability Program as part of the 2014 Capital Improvement Program to fund the design competition. Approximately $500,000 in local match funding has already been allocated to support the Feasibility Study and Environmental Assessment phases of the project. The recommended OBAG grant request is $4.0M. City of Palo Alto Page 6 Arastradero Road/Charleston Road Corridor Improvements Project Description: The portion of Charleston Road between Alma Street and Fabian Way is identified for permanent traffic-calming improvements, including landscape median islands, sidewalk and accessibility improvements, and new pedestrian-scaled street lighting. The Arastradero Road project proposal segment includes improvements between El Camino Real (not including intersection of El Camino Real) and Gunn High School. This segment correlates with the recently approved trial restriping project and includes landscaped median islands and pedestrian-scaled lighting improvements. The City completed trial restriping projects for both the Charleston Road-Arastradero Road corridors in 2006 and 2012 respectively. Both project segments support safe route to school activities for several schools on and along the project corridors including Hoover School, Juan Briones School, Terman Middle School, and Gunn High School. The City will be issuing a Request for Proposals (RFP) for the design phase of both the Charleston Road-Arastradero Road segments this Spring. City of Palo Alto Page 7 Project Funding: The current 2013 Capital Improvement Program (CIP) includes $250,000 in local match funds for the design of both the Charleston Road and Arastradero Road streetscape segment. The $250,000 CIP match comes from a $250,000 development impact fee from the Jewish Community Center (JCC) development. In July 2012 the City received a $450,000 grant from the State of California Department of Transportation (Caltrans) – Safe Routes to School Capital Program for improvements on Charleston Road between Alma Street and Middlefield Road. Two separate grant proposals will be submitted for the OBAG program with the Caltrans grant serving as a portion of the local match for the Charleston Road segment only. The Charleston Road proposal also extends the Charleston Road project three blocks east from Middlefield Road to Fabian Way, above that funded by the Caltrans grant. The Arastradero Road project is funded through the design phase by the City of Palo Alto but no other local match funds are provided for the construction phase. If funded by the OBAG Program, the City anticipates using a combination of funds from the CIP – Infrastructure Reserve Program and the Stanford University Medical Center (SUMC) – Sustainability Program to cover local match fund requirements for the OBAG Program. The recommended OBAG grant request is $2,500,000 for the Charleston Road project and $3,000,000 for the Arastradero Road project. The City is leveraging the Caltrans – Safe Routes to School grant for the Charleston Road segment resulting in a lower grant-request. Separate grant proposals are recommended to have smaller-cost projects for competing for grant-funds. City of Palo Alto Page 8 City of Palo Alto Page 9 Birch Street Gateway Project Description: The Birch Street Gateway project builds upon current investments planned with the California Avenue Business District, including the California Avenue Transit Hub Corridor Project. The project proposes streetscape improvements on Birch Street between Oregon Expressway and California Avenue. Birch Street serves as the primary entry into the California Avenue Business District and the overall California Avenue Specific Plan Area. The project proposes a lane reduction on Birch Street to accommodate new on-street parking facilities on both sides of the street including Sharrows bicycle markings. Project Background: The Birch Street Gateway project was developed specifically to take advantage of the OBAG funding program. The project creates identity and place-making elements for the California Avenue Business District and provides a strong connection and proximity to the California Avenue Caltrain Station. Project Funding: The City anticipates the Birch Street Gateway project to cost approximately $1.5M because of the street lighting and place-making element opportunities. Street resurfacing of Birch Street is already planned as part of the upcoming CIP Program and is not included in the project cost. If funded by the OBAG Program, the City anticipates using funds from the CIP – Infrastructure Reserve Program or partnering with active development projects for local match requirements in the amount of $500,000. The recommended OBAG grant request is $1.0M. City of Palo Alto Page 10 El Camino Real Corridor Improvements Stanford Avenue to Embarcadero Road Project Description: The El Camino Real Corridor Improvements project proposes roadway capacity and bicycle- pedestrian accessibility improvements between North of Stanford Avenue and Embarcadero Road including a new westbound right turn lane from Churchill Avenue onto El Camino Real. The project will improve pedestrian accessibility with an additional crosswalk at Churchill Avenue. At El Camino Real and Embarcadero Road pedestrian-focused improvements are proposed including the removal of pork chop islands on Galvez Street to help accommodate pedestrians and large crowds following regional events on the Stanford Campus. Project Background: The City completed intersection improvements at El Camino Real and Stanford Avenue in 2011, the proposed project builds upon this project and the active Stanford Perimeter Trail of the Stanford-Palo Alto Trail Program to provide continuous sidewalk and bicycle facilities on El Camino Real. Project Funding: The City anticipates the El Camino Real Corridor Improvements project to cost approximately $2.5M because of the significant amount of civil improvements to expand sidewalk opportunities and street widening. The City anticipates using funds from the SUMC – Sustainability Program fund as the local match source for this project. The recommended OBAG grant request is $1.75M. City of Palo Alto Page 11 Magical Bridge Project Description: The Magical Bridge bicycle and pedestrian project includes access and safety to a heavily used pathway linking south and north Palo Alto. Project improvements include the installation of a new 10-ft wide bridge over Adobe Creek, pathway realignment, paving, safety lighting and ADA improvements. Enhancements to the existing pathway will create a fully accessible bike and pedestrian route between Charleston Road and Meadow Drive through Mitchell Park, with connections to the new Mitchell Park Library. The project will serve JLS Middle School, Fairmeadow Elementary, Herbert Hoover Elementary, and park users including the Little League Park, Abilities United (a non-profit special needs children facility) and Stevenson House senior living facility. Project Background: The Magical Bridge project was spurred through a public-private partnership between the Friends of the Magical Bridge (a local non-profit group) and the City of Palo Alto to construct a universally accessible playground in Mitchell Park. The current pathway that connects the future Magical Bridge Playground with Mitchell Park over Adobe Creek requires major ADA upgrades and safety improvements to support accessible use needs. Project Funding: The Magical Bridge bicycle and pedestrian project will cost approximately $750,000. $200,000 in matched local funds are currently available for this project as part of the 2012-2013 fiscal year. City of Palo Alto Page 12 Palo Alto Transit Mall Improvements Staff is recommending up to two grant proposals for staged improvements in and around the University Avenue Transit Mall Station. Phase 1 – Urban Lane Transit Mall Extension The Urban Lane Transit Mall Extension project includes extending the existing transit mall south onto Urban Lane between the University Loop to the Palo Alto Medical Foundation and includes a parking structure component to support Caltrain commuter and Palo Alto operations. The proposed project provides for 19 transit stops and layover stations on the ground floor of the structure and can support an estimated 551 parking spaces (408 spaces in excess of the existing surface spaces) over four floors. Figure 6 Concept Urban Lane Transit Mall Improvements Samtrans in San Mateo County currently has a long-term lease with Stanford University for the operation of Urban Lane. Samtrans currently uses Urban Lane as a parking lot for Caltrain riders and the lot supports 143 parking spaces. The Urban Lane parking lot is regularly underutilized, seeing up to 60% regularly occupancy. The Stanford Marguerite Program uses Urban Lane as layover parking for its transit vehicles. City of Palo Alto Page 13 The Urban Lane Transit Mall Improvement project is included as an element of the City’s active Downtown Parking Garage Study. Samtrans authorized the City to study the conversion of Urban Lane to a ground floor transit mall extension with structure parking as part of the study. If funded by the OBAG program, the City anticipates an agreement with Samtrans to be negotiated for long-term parking operations. Staff recommends that operations and maintenance be the responsibility of the City, with ground floor operations dedicated to the three major transit operators (VTA, Stanford Marguerite, and Samtrans), second floor parking (133 spaces) dedicated to Caltrain ridership, and the remaining three floors (418 spaces) managed by the City of Palo Alto. Staff notes that, as of the date of the Council meeting, Samtrans has not indicated support of the City’s submittal for this grant, but staff will continue to work with that agency to hopefully allow the application to proceed. Local match fund sources for the project may be available through the Downtown In-Lieu Fee Parking Program and SUMC – Transit Mall Improvements project. The project is estimated to cost up to $15M. The recommended OBAG grant request for the Urban Lane Transit Mall Extension project is $10.5M, so the City’s match would be $4.5M. Phase 2 – Transit Mall Reconstruction This project, if funded, presents an opportunity to transform the multi-modal transit center to lead the region in accommodating rail, bus, bicycle, and pedestrian interlinks for the coming century. The Palo Alto University Avenue Caltrain Station is the second busiest Caltrain Station in the system, behind only the San Francisco terminus. The station supports commuters to Stanford University, the Stanford University Medical Center, Downtown, and Stanford Shopping Center. Several regional transit agencies currently service the station regularly, including the VTA, Stanford Marguerite Shuttle Program, Samtrans, and dozens of private shuttles to regional employers including Facebook, Google, and Hewlett-Packard to name just a few. Currently only the VTA uses the existing transit mall, having completed its most recent improvements in 2004. The Stanford Marguerite Shuttle Program uses the University Loop on- street network in addition to Urban Lane, pending parking availability. Samtrans takes advantage of available space on the University Loop on-street network but is forced to provide lay-off functions on the Southbound El Camino Real ramp to University Avenue so that transit operators can take advantage of facilities at Stanford Shopping Center for breaks. City of Palo Alto Page 14 Figure 7 Transit Mall Reconstruction Project The current VTA Transit Mall and on-street parking condition provide for transit stops and layover stations. The proposed Transit Mall Reconstruction project builds on the planning activities of the under-study Arts and Innovation District project and recommends implementation of the proposed Quarry Road extension, demolishing of the VTA Transit Mall and replacement with an expanded University Loop Transit Mall for use by the three major transit operations (VTA, Stanford Marguerite, and Samtrans). The new Transit Mall also would include improvements to the El Camino Real ramps to University Avenue and the parking lot of the Westin Hotel to expand transit capacity. A total of 32 transit stops and layover stations are proposed as part of the project, an increase of 11 stations over the existing 21. An additional 19 transit stops are possible as part of the Phase 1 – Urban Lane Transit Mall Extension project. The project includes an expansion of the existing Caltrain undercrossing to connect with the proposed Quarry Lane Extension. Staff will provide in the grant application extensive documentation outlining the regional importance of the transit center, including existing and projected transit and other trips through the mall. The City is in the process of initiating a Traffic Impact Analysis (TIA) for the site to support future Environmental Impact Report (EIR) activities. Project Funding The City anticipates a project cost of up to $34M with a $10.2M local match to maximize point allocations for the project by providing 30% local match funding. The OBAG request would therefore be almost $24M, or more than 50% of the total program funding county-wide by VTA. Staff believes that the potential for funding is remote, given the magnitude of the dollars requested, but the City could still apply. No source for the $10.2M matching funding has been City of Palo Alto Page 15 identified, but could be part of a public-private venture for the 27 University Avenue site. Interim funds from the Stanford University Medical Center funds (if available) would probably be required to pledge the funding to VTA if a grant is awarded. City of Palo Alto Page 16 Palo Alto Community Shuttle Program – Shelter and Route Extension Project Background: The City currently operates two community shuttles, the Embarcadero and Crosstown shuttles. The Embarcadero Shuttle is partially subsidized by Caltrain and includes hourly service during commute periods between the University Avenue Caltrain Station and business parks on Embaracadero Road, east of Highway 101. The Crosstown shuttle is operated by the City and includes hourly service between the University Avenue Caltrain Station and South Palo Alto. Both existing shuttle routes also include an additional shuttle route for 30-minutes during the school commute periods. In 2011 the City completed a community outreach program for the shuttle program to solicit community-preferred improvements to the program; the preferred community improvements included shelters at key stops near senior facilities and an extension to the Jewish Community Center on Fabian Way and the Palo Alto Medical Foundation. Project Description: The proposed project includes new solar- illuminated shelters along the existing routes and a new community shuttle route between South Palo Alto and Stanford Shopping Center. The proposed shuttle route would service the Jewish Community Center/Moldaw Residences, Mitchell Park, Palo Alto Commons Senior Housing Facility, the California Avenue Business District, Palo Alto High School, Town & Country Shopping Center, Palo Alto Medical Foundation, and the Stanford Shopping Center. Project Funding: OBAG funding would provide seed funding for the new shuttle for up to two years. The anticipated cost of the shuttle thereafter is $175,000/year for hourly service between 7AM and 6PM. The City anticipates constructing up to 10 shelters along the existing and proposed shuttle routes. The recommended OBAG grant request is $350,000. City of Palo Alto Page 17 Palo Alto Traffic Signal System Upgrade The City has an active federal earmark for traffic signal upgrades in the amount of $360,000. An active CIP for the project is in place and staff is currently working on receiving authorization from Caltrans to begin the project. The current project will support the replacement of up to 30 traffic signal controllers and replacement of the City’s traffic signal system server. There are 99 traffic signals in Palo Alto with two additional traffic signals planned as part of the Stanford University Medical Center project on Welch Road. The proposed project will provide funding for replacement of the remaining 69 traffic signal controllers, replacement of traffic signal cabinets in the Downtown, study and implementation of all-pedestrian signal intervals along University Avenue, and Intelligent Transportation System (ITS) improvements such as adaptive traffic signal systems along Sand Hill Road and other arterial corridors, fiber optic transceivers, and video detection and traffic monitoring cameras. The City started the upgrade of its traffic signal infrastructure in 2011 with upgrades to the traffic signal controllers and cabinets along Alma Street adjacent to the Caltrain crossings. The proposed project requests $1.75M in OBAG funds to help modernize the city’s traffic signal infrastructure. The recommended $750,000 local match is available in the Citywide Traffic Impact Fee program. Alternatives for Funding Requests Ten project proposals are included for the consideration by the Council for the submittal of grant proposals in response to the OBAG call-for-projects. $45.1M is available for distribution through the OBAG program in Santa Clara County. The total requested amount of grant funding for all of the City’s requests would be $49.2M, representing more than the total available program funding for the entire County. The matching funds required by the City for those ten projects are estimated at $25.1M. The total grant request excluding the Phase 2 Transit Mall improvements would be $25.4M with a City match of $14.9M. The ten projects represent various opportunities to implement projects that are either visionary transformative streetscape-type projects for the community, are necessary for infrastructure improvements to support safe roadway operations, or are supportive of alternative transportation modes to help encourage a more sustainable community. There is no limitation on the number of project proposals or the total value of project proposals submitted to the OBAG program. The Council may, however, choose to direct that staff delete some projects from the list. To assist the Council in distinguishing between the proposed projects, the following table outlines the project type and basis for each prospective submittal. City of Palo Alto Page 18 City of Palo Alto One Bay Area Grant (OBAG) Projects Benefits and Considerations No. Project Title Project Type Project Premise 1. Adobe Creek/Highway 101 Infrastructure Bicycle & Pedestrian Bicycle-Pedestrian Bridge Plan Priority Project 2 Arastradero Road Corridor Streetscape Council Priority Improvements (Gunn High to El Camino Real) 3 Birch Street Gateway Streetscape Staff Initiated to Support OBAG Grant Program 4 Charleston Rd Corridor Streetscape Council Priority Improvements (Alma Street to Fabian Way) 5 El Camino Real Corridor Infrastructure Recommended in DRAFT Improvements Comprehensive Plan (Stanford Av to Embarcadero Rd) 6 Magical Bridge Infrastructure Council Priority 7 Palo Alto Community Shuttle Transit Staff Initiated in Response to Shelter and Route Extension Community Requests 8 Palo Alto Transit Mall Transit Council Priority Extension at Urban Lane 9 Palo Alto Transit Mall Transit Council Priority Transit Road Extension 10 Palo Alto Traffic Signal System Infrastructure Recommended in Improvements Comprehensive Plan Staff notes that Phase 2 of the Transit Mall improvements, while a highly desirable and transformative project, may have a low probability of VTA funding, given the commitment would represent more than 50% of the OBAG funds to one project in Palo Alto. Phase 1 could proceed apart from site planning for the rest of the transit mall area and support future build- out by allowing transit activities to be consolidated onto the Urban Lane Transit Mall site through construction. Staff continues to note, however, that Samtrans has not approved of the City’s submittal and the application won’t proceed without that concurrence. City of Palo Alto Page 19 Timeline OBAG project proposals are due March 5, 2013. The VTA has already provided a one-month extension from their original February 5, 2013 submittal deadline. Scoring of proposals will continue through the Spring with final project selection by the VTA Board of Directors by May 2013. Any funded projects would be included in the CIP Program as an addendum and project schedules developed at that time. Resource Impact Local match fund sources for each of the proposed projects are required, varying up to 30% per project to maximize scoring opportunities through the OBAG Program. A total of $74,250,000 in projects is being proposed requiring up to $25,050,000 in local match funds through various sources, including: the CIP – Infrastructure Reserve, the Stanford University Medical Center (SUMC) Mitigation Funds, the General Fund Budget Stabilization Reserve, and potentially private development joint venture funding. The ability of these sources to provide local match funds will be dependent upon the remaining balance in each fund and reserve, reserve policy, and other General Fund needs. Council policy decisions and direction will determine the allocation of available resources. Environmental Review No environmental review is required for the submittal of grant proposals but, if funded, each of the proposed projects will be required to complete a CEQA Analysis prior to construction.