HomeMy WebLinkAboutStaff Report 2306-1687CITY OF PALO ALTO
CITY COUNCIL
Special Meeting
Monday, August 07, 2023
Council Chambers & Hybrid
5:30 PM
Agenda Item
11.Direction to Evaluate with Caltrain the Viaduct Alternative and Defer Review of the
Trench Alternative at the Meadow Drive and Charleston Road Crossing as
Recommended by the Rail Committee; CEQA status – categorically exempt per
Regulation 15262.
City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Transportation
Meeting Date: August 7, 2023
Report #:2306-1687
TITLE
Direction to Evaluate with Caltrain the Viaduct Alternative and Defer Review of the Trench
Alternative at the Meadow Drive and Charleston Road Crossing as Recommended by the Rail
Committee; CEQA status – categorically exempt per Regulation 15262.
RECOMMENDATION
Rail Committee recommends that City Council directs staff to work with Caltrain under the
Caltrain Service Agreement1 to evaluate the Viaduct Alternative and defer review of the Trench
Alternative at the Meadow Drive and Charleston Road crossing.
EXECUTIVE SUMMARY
The Rail Committee unanimously supported recommending including the Viaduct Alternative
and deferring the Trench Alternative at the Meadow Drive and Charleston Road Crossings for
further evaluation through Caltrain’s review process. Therefore, this agenda item seeks the City
Council's approval.
During the Rail Committee review of the Underpass Alternatives at the three crossings of
Churchill Avenue, Meadow Drive and Charleston Road, the Pedestrian and Bicycle Advisory
Committee (PABAC), Palo Alto Unified School District (PAUSD), and community members
expressed concerns about bicycle and pedestrian connectivity and requested to reconsider the
Viaduct Alternative.
The Rail Committee discussed the alternatives in consideration at the June 20, 2023, meeting
and recommended to consider an additional review of the Viaduct Alternative for the Meadow
Drive and Charleston Road crossings. The City has recently executed an agreement with Caltrain
to provide technical input on the conceptual designs of the rail grade separations of the
Connecting Palo Alto Grade Separation Project which includes Trench, Hybrid, and Underpass
Alternatives for the Meadow Drive and Charleston Road crossings.
1 https://cityofpaloalto.primegov.com/Portal/viewer?id=1491&type=2
BACKGROUND & ANALYSIS
After receiving the final report from Expanded Community Advisory Panel (XCAP) on March 23,
2021 (CMR 117972), Staff presented a detailed review of Meadow Drive and Charleston Road
crossing alternatives on August 23, 2021 (CMR 134353) and presented details on Churchill
Avenue crossing alternatives for grade separation on November 1 & 29, 2021 (CMR 135434) &
(CMR 13746 5)
At these meetings, the Council eliminated the Viaduct Alternative and selected the Partial
Underpass Alternative as a preferred alternative for Churchill Avenue with Closure Alternative
as backup. For Meadow Drive and Charleston Road crossing, the Council narrowed the
alternatives in consideration to three alternatives, namely Hybrid, Trench, and Underpass after
eliminating the Viaduct Alternative. The City Council also directed staff to perform additional
studies. These studies included work to refine underpass alternatives with input from PAUSD,
PABAC, and Stanford to address current shortcomings and to conduct additional outreach. On
May 23, 2022 (CMR 143416) the City Council authorized an amendment with the consultant to
perform these additional tasks.
Staff with the support of the City’s consultant scheduled separate meetings with the
stakeholders to seek their input and feedback on partial underpass alternatives. Staff and
Consultant attended several stakeholders’ meetings and made presentations with a detailed
review of the alternatives to seek feedback and comments from Stanford staff, PABAC, PAUSD
Staff, CSTSC, and local design engineers involved in the original design of underpass
alternatives.
Viaduct Alternative
Two Rail Committee study sessions were conducted on October 19, 2022 (CMR 148137) and
November 18, 2022 (CMR 149048) to seek additional community feedback and the Rail
Committee’s review. During these study sessions and other Rail Committee meetings, the
2 https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2021/id-11797.pdf
3 Item 6, Action Items; https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-
minutes/city-council-agendas-minutes/2021/08-august/20210823/20210823pccsm-revised-linked.pdf
4 Item 15, Action Items; https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-
minutes/city-council-agendas-minutes/2021/11-november/20211101pccs-amended.pdf
5 Item 11, Action Items; https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-
minutes/city-council-agendas-minutes/2021/11-november/20211129/20211129pccs.pdf
6 Item 11, Consent Items; https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-
minutes/city-council-agendas-minutes/2021/11-november/20211129/20211129pccs.pdf
7 Item 2, Study Session;
https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=8985&compileOutputType=
1
8 Item 2, Study Sessions
https://cityofpaloalto.primegov.com/Public/CompiledDocument?meetingTemplateId=8998&compileOutputType=
1
members of PABAC, PAUSD, and the community members expressed concerns about bicycle
and pedestrian connectivity and requested to reconsider the Viaduct Alternative for the Rail
Committee’s review and evaluation and recommendation to Council.
In addition, on March 29, 2023 (Staff Report 2302-10109), and April 26, 2023 (Staff Report
2303-119910), the Rail Committee reviewed the evaluation criteria, which led to a
recommendation with additional measures to be included in the Council Adopted Evaluation
Criteria. The revised Evaluation Criteria were approved by the Rail Committee and City Council.
The additional measures in the evaluation criteria include reviewing impacts such as
connectedness, corridor travel times, pedestrian and bicycle circulation during and after
construction, traffic inducement, sustainability, sea-level rise, utility relocation, long-term
maintenance costs, and visual and privacy considerations along the corridor. As a result of
these additional measures, there was a desire from the community and the Rail Committee to
revisit other alternatives in consideration.
Attachments for the Viaduct Alternative at these crossings are included in this report for
reference and consultation. Attachment A provides the plan, profile, and renderings;
Attachment B provides the fact sheet for Viaduct at Meadow Drive and Charleston Road
crossings.
The Rail Committee discussed the Viaduct Alternative in consideration at the June 20, 2023
(Staff Report 2305-154611), meeting and recommended considering an additional review before
recommending to the council for consideration of Viaduct Alternative.
Trench Alternative
The Meadow Drive and Charleston Road crossing currently have three alternatives under
consideration: Hybrid, Trench, and Underpass. On August 23, 2021, the Council after the
detailed review of the alternatives at Meadow Drive and Charleston Road also directed the staff
to perform a peer review of the cost estimate for the Trench Alternative.
The Rail Committee has leaned toward pausing further analysis of the trench alternative,
primarily due to its high cost and feasibility challenges in accommodating and addressing the
four tracking needs of Caltrain. Caltrain is currently conducting the Corridor Crossing Study,
which will provide insights into the limits of the four tracking passing segments along the
Caltrain corridor and other technical constraints raised by the City of Palo Alto. However, they
have indicated a strong need for the four-tracking segment north of Mountain View Caltrain
Station, which will likely impact these crossings in Palo Alto. Therefore, the Rail Committee is
recommending deferring the reviews of the Trench Alternative.
9 Item 1, Action Items; https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=11344
10 Item 2, Action Items; https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=11350
11 Item 1 Action Items; https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=11362
Additionally, the service agreement between City and Caltrain was executed on May 22, 2023
(CMR 2304-123712) for Caltrain to provide technical input on the conceptual designs and review
project documents in compliance with Caltrain standards for alternatives in consideration of rail
grade separations at these crossings. As Caltrain staff proceeds with their technical review, staff
aims to ensure that their assessment aligns with the consideration of alternatives. Also,
consultant support will be needed to review additional measures included in the Council
Adopted Evaluation Criteria.
On June 20, 2023, the Rail Committee unanimously recommended additional reviews of the
viaduct Alternative and deferring trench alternative at Meadow Drive and Charleston Road
Crossings for further evaluation through Caltrain’s review process. Therefore, this agenda item
seeks the City Council's approval for staff to proceed with this direction.
FISCAL/RESOURCE IMPACT
The existing Service Agreement with Caltrain includes a review of a total of five alternatives and
sufficient funding in the amount of $120,000 is programmed in the FY 2024 Adopted Budget for
this work. The swapping of alternatives reviewed by Caltrain will not impact the existing
agreement with Caltrain. However, if City Council decides for Caltrain to also review the Trench
Alternative, Staff will need to negotiate and develop an amendment for the additional work
required to evaluate a sixth alternative. Each alternative review is estimated at an average cost
of $24,000.
STAKEHOLDER ENGAGEMENT
The Rail Committee meetings and the City Council Meetings are open to the public and
therefore provide the community with opportunities to provide comments to the rail
committee and City.
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.
12 Item 6, Consent Items; https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=12654
ATTACHMENTS
Attachment A: Viaduct Alternative Plan, Profile, and Renderings at Meadow Drive and
Charleston Road
Attachment B: Fact Sheets for Viaduct at Meadow Drive and Charleston Road
APPROVED BY:
Philip Kamhi, Chief Transportation Official
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CHARLESTON RD
Landmark
Creek
Right Of Way
Caltrain
Ground Level
Existing
PRELIMINARY
FOR DISCUSSION PURPOSES ONLY
NOVEMBER 28, 2018
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Tracks
Existing
Profile
Viaduct Track
AERIAL VIEW (PLAN)
ELEVATION VIEW (PROFILE)
Bridge
Track
New Permanent
Groundwater
Meadow Drive and Charleston Road - Plan and Profile - Viaduct
Outlet
Grocery
Robles Park
0.086%
Barron Creek
0.3%
-1.4%
Adobe Creek
-0.031%1.0%
CALTRAIN RIGHT OF WAY (WEST)
CALTRAIN RIGHT OF WAY (EAST)
DURING CONSTRUCTIONCONSTRUCTION
BEGIN CONSTRUCTION
END
ELEV 61.80
TOP OF RAIL
ELEV 55.45
TOP OF RAIL
EXISTING TRACKS
TO REMAIN OPERATIONAL
AND REMOVED AT END
OF CONSTRUCTION
ROADWAY
ROADWAY
VIADUCT PROFILE
TRACKS ON VIADUCT
PROPOSED NEW
APPROXIMATE GROUNDWATER
ELEVATION
Church
Methodist
United
St Andrew's
CITY LIMIT
PALO ALTO
PRELIMINARY
FOR DISCUSSION PURPOSES ONLY
(Roadway At Grade, Railroad Fully Elevated)
Walnut Creek BART Station
Viaduct
Railroad Grade Separation Examples
BART Viaduct, El Cerrito, CA BART Viaduct at distance, El Cerrito, CA
Link Light Rail, East Marginal Way, Seattle, WA
(Roadway At Grade, Railroad Fully Elevated)
(Typical Between Meadow Dr & Charleston Rd)
Example Section - Viaduct - Looking North
(Typical End Sections)
Example Section - Retained Fill - Looking North
(Typical Between Meadow Dr and Charleston Rd)
Track Level View - Looking North
Typical Property West of Tracks
Backyard View - Looking East
Meadow Drive Intersection
Proposed Viaduct Solution Overview - Looking South West
Charleston Road Intersection
Ground Level View - Looking South West
Viaduct
Railroad Grade Separation Sections & Renderings
PRELIMINARY
FOR DISCUSSION PURPOSES ONLY
August 4, 2020 1 of 2
Meadow-Charleston Viaduct
RAIL FACT SHEETS
About the Viaduct
For the viaduct alternative, the railroad tracks will be elevated on a structure over Meadow Drive and Charleston Road. The
new electrified railroad tracks will be built between the existing railroad tracks and Alma Street (east side) and will begin
rising north of Loma Verde Avenue, remain elevated over Meadow Drive and Charleston Road, and return to the existing
elevation south of Ferne Avenue.
The roadways at Meadow Drive and Charleston Road will remain at their existing grade and have a similar configuration
to what exists today, with the addition of Class II buffered bike lanes on Charleston Road. This addition will require
expanding the width of the road to maintain bike lanes through the underpass of the railroad and to accommodate the
new column supporting the railroad structure.
By the numbers
•Railroad track is designed for 110 mph.
•Meadow Drive and Charleston Road are
designed for 25 mph.
•Maximum grade on railroad is 1.4%.
•Maximum grade on roadway is 5%.
•Travel lane widths are 10-12 feet.
•Bike lane widths are 5-6 feet.
•Construction period is approximately 2 years.
Engineering Challenges
•A non-standard grade of 1.4% will be
required on the tracks. Caltrain’s preferred
grade maximum is 1%.
For more Rail Fact Sheets visit:
https://connectingpaloalto.com/
fact sheets/
Cost Breakdown
Roadway & Railroad Items $72M to $90M
Structure Items $155M to $194M
Right-of-way & Utilities $18M to $22M
Support Costs $80M to $100M
Escalation to 2025 dollars $75M to $94M
TOTAL PROJECT COSTS $400M to $500M
Preliminary and subject to change. Maintenance costs
and relocation of fiber optic lines not included.
Neighborhood Considerations
•During construction, Meadow Drive and Charleston Road will
be closed intermittently at night and on weekends.
•During construction, Alma Street will have narrow lanes for
the portions north of Meadow Drive and south of Charleston
Road.
•Vertical clearance of the railroad over Meadow Drive and
Charleston Road will be 15.5 feet.
•The railroad tracks will be approximately 20 feet above the
existing street between Meadow Drive and Charleston Road.
•With grade separations at Meadow Drive and Charleston Road
the traffic at nearby intersections is expected to improve.
Proposed Viaduct Aerial View - Looking South
Meadow Drive Intersection
Proposed Backyard View - Looking East
Typical Property West of Tracks
Proposed Ground Level View - Looking East
Charleston Road Intersection
Caulfield to Dandenong Viaduct - Australia
New Permanent Track Existing Track Viaduct Track ProfileExisting Ground LevelCaltrain Right-of-Way Creek BridgeRoadway Groundwater
DISTANCE (ft)500 FT. (TYP)Viaduct StructureRetained Fill Retained Fill
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Approximate GroundwaterApproximate Groundwater
ElevationElevation
Barron CreekBarron Creek
Adobe CreekAdobe Creek
Viaduct Track ProfileViaduct Track Profile
Meadow DrMeadow Dr Charleston RdCharleston Rd
1.0%1.0%
Top of Rail Top of Rail
Elev. 61.80Elev. 61.80
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-0.03%-0.03%
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Viaduct StructureViaduct Structure
2 of 2August 4, 2020 • Meadow-Charleston Viaduct Fact Sheets •For more renderings, plans and animations visit: https://connectingpaloalto.com/renderings-plans-and-animations/
EXISTING
TRACK
EXISTING
TRACK
EXISTING
TRACK
EXISTING
TRACK
CCLL CCLL
TRACKTRACKCCLL TRACKTRACKCCLL
PERMANENT TRACKPERMANENT TRACK
EXISTING TRACKS
(TO REMAIN OPEN
DURING CONSTRUCTION)
EXISTING TRACKS
(TO REMAIN OPEN
DURING CONSTRUCTION)
ALMA STREETALMA STREET
EXISTING
GROUND
EXISTING
GROUND
8' EXISTING
FENCE
8' EXISTING
FENCE
6' SOUND WALL
BARRIER
6' SOUND WALL
BARRIER
CONCRETE BOX GIRDERCONCRETE BOX GIRDER
CABLE DUCTCABLE DUCT
CONCRETE COLUMNCONCRETE COLUMN
EXAMPLE SECTION –VIADUCT ALTERNATIVE
OVERHEAD
CONTACT SYSTEM
30 FT. HIGH MAX
OVERHEAD
CONTACT SYSTEM
30 FT. HIGH MAX
OVERHEAD
CONTACT SYSTEM
30 FT. HIGH MAX
OVERHEAD
CONTACT SYSTEM
30 FT. HIGH MAX
18 FT.18 FT.
100 FT. CALTRAIN RIGHT-OF-WAY100 FT. CALTRAIN RIGHT-OF-WAY
20 FT. MAX20 FT. MAX
20 FT.
TO NEAREST HOME
20 FT.
TO NEAREST HOME
ALMA STREET
(WIDTH REDUCED 1 FT.)
ALMA STREET
(WIDTH REDUCED 1 FT.)
EXISTING
BACKYARD
FENCE
EXISTING
BACKYARD
FENCE
Evaluation with City Council-Adopted Criteria
Finance with feasible funding sources (Order of magnitude cost)
The viaduct would require substantial local funding resources more than the hybrid alternative, but less than the trench and tunnel
alternatives.
Reduce rail noise and vibration
Train horn noise and warning bells will be eliminated with the replacement of
the at-grade crossings with grade separations. Utilizing EMU trains instead
of diesel engines will also reduce noise. Six-foot high parapet sound barriers
will help reduce propulsion and wheel/rail noise. There would be significant
reduction to vibration levels at nearby receptors.
Minimize visual changes along the corridor
Railroad tracks will be approximately 20 feet above grade. Landscaping with
trees will be incorporated for screening where feasible.
Maintain access to neighborhoods, parks, and schools along the corridor, while reducing regional traffic on neighborhood
streets
No diversion of regional traffic with construction of grade separations.
Minimize right-of-way acquisition (Private property only)
No acquisition of private properties is required.
Minimize disruption and duration of construction
The viaduct will have minimal road closures (nights/weekends only).
Construction would last for approximately 2 years.
Facilitate movement across the corridor for all
modes of transportation
Meadow Drive and Charleston Road will be grade
separated from the railroad for all modes and will remain
open. Viaduct provides opportunities for additional
crossings for all modes.
Reduce delay and congestion for vehicular traffic at rail crossings
With construction of the grade separation, the railroad
crossing gates and warning lights at Meadow Drive and
Charleston Road will be removed. Thus, the traffic will not
be interrupted by the railroad crossing gates.
Provide clear, safe routes for pedestrians and cyclists crossing the rail corridor, separate
from vehicles
Pedestrians/cyclists will be separated from train traffic
only. Bike lanes will be added to Meadow Drive and
Charleston Road intersections. Additional pedestrian/
cyclist separations routes can be explore on the next
phase of design.
Support continued rail operations and Caltrain service improvements
New railroad tracks can be built without a temporary
track, and a crossover track located north of the San
Antonio Caltrain Station will be relocated.Example Section - Viaduct - Looking North (Typical Between Meadow Drive & Charleston Road)
Concept Plan and Profile