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HomeMy WebLinkAbout2026-04-15 City Council Summary MinutesCITY COUNCIL SUMMARY MINUTES Page 1 of 28 Special Meeting April 15, 2026 The City Council of the City of Palo Alto met on this date in the Council Chambers and by virtual teleconference at 6:00 p.m. Present In Person: Burt, Lauing, Lu, Lythcott-Haims, Reckdahl, Stone, Veenker Present Remotely: None Absent: None Call to Order Mayor Veenker called the meeting to order and discussed the recent death by suicide at the Churchill crossing. In response, the City Council formed a Rail Safety Ad Hoc Committee consisting of Vice Mayor Stone, Councilmember Burt, and Councilmember Lythcott-Haims. The Council quickly implemented the ad hoc committee's recommendation to hire 24/7 professional crossing guards at all 4 Palo Alto train crossings. Mayor Veenker acknowledged the School Board for its partnership in sharing the cost. The ad hoc committee's analysis was in tonight's packet. Mayor Veenker thanked City staff for immediately taking action without using outside consultants; a tremendous effort led by Alex Andrade and included more than 25 staff members. Action Items 1. Expedited Evaluation of the Potential Temporary Closure of the Churchill Avenue Rail Crossing, Determination of Next Steps, and CEQA Status – Statutorily and Categorically Exempt Alex Andrade, Assistant to the City Manager, delivered the presentation. Specialists in suicide prevention identified the reduction of access to lethal means as a key strategy to decrease suicide attempts and fatalities. The installation of physical barriers was an example of effective lethal means reduction in publicly accessible areas. The Rail Safety Ad Hoc Committee considered rail crossing monitoring staff, increased engagement with The Jed Foundation on suicide prevention, Caltrain intrusion detection and barriers, and rail crossing closure. On February 6, Mayor Veenker shared a City of Palo Alto statement calling for action and community support. On March 12, City staff conducted a public listening session for community members to provide input on a potential temporary closure, which attracted about 85 attendees, over 250 people who watched live, and over 80 people who viewed the YouTube recording afterward. On March 17, 18, and 19, the City and The Jed Foundation hosted interactive workshops on mental health and suicide prevention. The Communications team SUMMARY MINUTES Page 2 of 28 City Council Meeting Summary Minutes: 4/15/2026 shared updates across multiple platforms, including the City's website, LinkedIn, and Instagram. Page 12 of the staff report contained additional details on stakeholder engagement. The proposed closure of the Churchill Avenue rail crossing addressed a public health crisis and aimed to prevent suicide contagion by limiting access to a known location of concern. Churchill closure would cause significant disruptions, rerouting over 8,000 daily vehicle trips likely onto already congested Embarcadero Road and Oregon Expressway, as well as impacting students walking and biking to Palo Alto High School. The fire department's modeling of a Churchill closure indicated an average increase in travel time of 15 seconds for first-arriving units, which was considered operationally manageable; however, traffic may affect the fire department's flexibility and contribute to delays in ambulance and later-arriving resources' arrival. Mr. Andrade, Assistant to the City Manager, said the police department was concerned that the closure of Churchill could negatively impact their ability to reach Stanford Hospital and commercial centers. A temporary crossing closure required formal approval from the California Public Utilities Commission (CPUC) and coordination with Caltrain. The CPUC and Federal Railroad Administration (FRA) had different definitions of a temporary closure, which posed administrative complexities for the potential future reopening of the Churchill Avenue crossing and may delay permanent quiet zone implementation. Proposed mitigation measures included accelerating the Embarcadero Road improvement project focused on pedestrian and cyclist safety, developing separate detour plans for motorists and pedestrians/bicyclists, accelerating the Churchill Avenue enhanced bikeway project, implementing communications and other nonphysical improvements, and accelerating or delaying the quiet zone implementation at Churchill Avenue. While the most recent fatalities occurred at Churchill Avenue, fatalities previously occurred at other crossing locations. Since February 23, track monitoring staff have been in place at all rail crossings in Palo Alto. In response to a prior youth suicide cluster, the City deployed contractors to monitor train crossings from late 2009 through 2018. Records indicated there were no fatalities in monitored areas. Evaluation measures for the effectiveness of a temporary rail crossing closure included safety, traffic congestion at key intersections, fire and police response times to calls on both sides of the tracks, community impacts, public feedback, effects on nearby residential and commercial areas, and delays for pedestrians, bicyclists, and motorists. The recommended rail crossing closure period ranged from 6 to 12 months. A minimum of 6 months would allow for traffic pattern stabilization and evaluation, while a longer period aligned with the 12-month window after a youth suicide. The recommended considerations for a temporary closure of Churchill included determining the closure duration timeframe and intermediate checks, expediting bike and pedestrian improvements on Embarcadero Road between Alma and Emerson, prioritizing quiet zones at Meadow and Charleston rail crossings, estimating costs, and implementing detour plans for pedestrians, bicyclists, and motorists. A temporary rail crossing closure, reopening, and ongoing maintenance were estimated to cost $1.2M. In addition, the Embarcadero Road improvement project ranged between $1.5M to $2M. If the Council opted not to proceed with a temporary closure, staff suggested prioritizing the Churchill Avenue quiet zone, committing to ongoing SUMMARY MINUTES Page 3 of 28 City Council Meeting Summary Minutes: 4/15/2026 track monitoring, expediting The Jed Foundation's work, and supporting intrusion-prevention efforts; however, those costs were not in the current capital improvement program or operating budget. Should the Council wish to advance any of those priorities, staff would consider budget appropriation and present funding options in May. The Council could continue this item to the May 11 meeting to provide direction to staff. Staff would continue to partner with the Palo Alto Unified School District (PAUSD), Caltrain, and The Jed Foundation. Construction could proceed at the Churchill/Castilleja intersection as part of the Churchill Avenue enhanced bikeway project. Procurement of streetlight poles for the Embarcadero Road improvements project could mitigate a long lead time. To start the Embarcadero Road improvements project before the May 11 meeting, the Council needed to authorize the City Manager or their designee to negotiate and award a construction contract with a contractor selected by Public Works. Staff recommended that the City Council receive the expedited evaluation of a temporary closure of the Churchill Avenue rail crossing and provide direction on next steps. The Rail Safety Ad Hoc Committee recommended that the Council receive the evaluation and public input, and then continue the item to the City Council meeting on May 11 to finalize direction. Councilmember Lythcott-Haims corrected her opening remarks at a listening session on March 12 held at the PAUSD boardroom. The petition initiated by Paly student Julia Curtis did not call for the closure of the Churchill crossing; it aimed to reinstate in-person guards at train crossings until a permanent solution, such as grade separation, could be implemented. This petition led to a year-long contract with a guard company in collaboration with PAUSD. Councilmember Lythcott-Haims shared that she was a Gunn and Paly parent. Councilmember Lythcott-Haims urged everyone to focus on our obligation to support youth. Councilmember Lythcott-Haims believed that a youth suicide cluster was a symptom of a broader systemic issue that required layered solutions. Councilmember Lythcott-Haims stressed the importance of restricting access to lethal means to prevent youth suicide. Caltrain was a lethal means. Tonight, the City was addressing 1 of the 4 Palo Alto Caltrain crossings. Regardless of the Council's decision about Churchill, Councilmember Lythcott-Haims asserted that a comprehensive citywide solution for lethal means restriction was necessary. Councilmember Burt delivered a presentation on the ad hoc committee's findings. Copies of the supplemental report were available to the public in the Council Chambers. There were 24/7 security guards at all 4 grade crossings. Councilmember Burt acknowledged that no measures were fail-safe; however, there had been no suicides when guards and Track Watch were present. Over the last 2 months, there has been a renewed collaboration between the City and PAUSD on youth mental health. The City worked with The Jed Foundation to assess existing community programs and identify service gaps. Councilmember Burt discussed Caltrain's improvements in high-security fencing as well as anti-intrusion and detection technologies. Councilmember Burt urged consideration of the implications of a closure at Churchill, noting that it would not result in closure of the other 3 crossings or in significantly enhancing protection at train stations. Councilmember Burt noted that a significant majority of teen and young adult track suicides had occurred at the Meadow and Charleston crossings. SUMMARY MINUTES Page 4 of 28 City Council Meeting Summary Minutes: 4/15/2026 Councilmember Burt commented that the train horn was a reminder of the past tragedy for students at school. The earliest that a temporary Churchill closure could occur would be more than 6 months after the February suicide, so a 6-month closure aligned with the typical 1-year timeframe to disrupt a cluster. There would be no horn noise during a closure. The horn noise would then resume until the crossing became a quiet zone. For over a year, the City has collaborated with Caltrain on the quiet zone effort, which could be completed by the end of 2027, though the FRA, CPUC, and Caltrain must approve the design. The Federal Railroad Administration lacked a process for initiating a quiet zone after a temporary closure, which could delay implementation. A trial period to gather data for a permanent closure would follow a similar timeframe to that of a temporary closure. For several years, the Expanded Community Advisory Panel (XCAP) worked with consultants to develop proposals for grade separations at 3 crossings in Palo Alto and the potential closure of the Churchill crossing. The consultants identified significant capital investments to accommodate the 8,000 cars redirected from Churchill, including reconstructing and widening the northbound Alma overpass at Embarcadero, an Embarcadero bike/pedestrian overcrossing to eliminate the signal at Paly, and a bike/pedestrian crossing at Seale or Churchill. The Cal Ave underpass was steeper and narrower than allowed under current regulations. To reduce the traffic impact, mitigations needed to be in place before closing Churchill. A trial closure could help inform the necessity of the proposed mitigations. The current traffic volume was lower than pre-COVID levels, so Councilmember Burt emphasized the need to mitigate for projected traffic volumes from future housing growth. Councilmember Burt stated that if Churchill were to be closed, bikes and pedestrians crossing on the north side of Embarcadero and crossing Emerson from a cul-de-sac at Kingsley would have about 100 feet to cross 2 intersections with car traffic, making it one of the most hazardous locations in the city for bicyclists and pedestrians. One suggestion was to accelerate the planned capital project to reduce this risk. If northbound cars on Alma were no longer able to turn onto Churchill to head west, more vehicles would go over the Embarcadero overpass, making right turns at Lincoln and then at Emerson to get onto Embarcadero. This situation would lead to an increased volume of car traffic converging at the same hazardous location where more students were walking and biking. Similarly, Paly students on the south side of Embarcadero would go under the underpass, then cross 2 off-ramps and on-ramps. While they might bike on the sidewalk up to Bryant Street, it was more likely that they would take the first opportunity to turn by coming off the sidewalk and into the street at Emerson. Although there was hope that additional cars traveling in that direction would continue to Waverly and then turn right, Councilmember Burt expressed concern that most of those vehicles would likely turn right at the first available opportunity, which was at Emerson. Councilmember Burt pointed out that we lacked the projection tools necessary to simulate the additional traffic congestion and delays that emergency vehicles would face when traveling from their shortest route at Churchill to alternative routes via Oregon, Page Mill, or Embarcadero. Councilmember Burt shared his research, highlighting that Embarcadero was the primary route for County ambulances transporting patients to Stanford's emergency room. SUMMARY MINUTES Page 5 of 28 City Council Meeting Summary Minutes: 4/15/2026 Studies have shown that for each minute of delay experienced by a patient in cardiac arrest, the likelihood of mortality increased by 6 to 10 percent. While Councilmember Burt did not have specific data regarding stroke patients, he assumed the impact would be similar. Moreover, morbidity was another complication to consider in addition to mortality. City Manager Ed Shikada announced that representatives from The Jed Foundation were available for comment until 7 p.m. tonight. Mayor Veenker asked The Jed Foundation if there was anything that the Council should consider as they move forward with this discussion. Dr. Katie Hurley, the Vice President of Community Initiatives at The Jed Foundation (JED), mentioned the ongoing trauma that students experience from hearing the train horn. Temporary or permanent closure of the Churchill crossing would provide students with peace of mind and demonstrate that the City was making changes while they grieved. JED spoke with emergency responders and the PERT team about emergency response, guards at the crossings, and how human connection in those spaces could act as a helpful barrier. Track Watch was great because they were community members who could become familiar with the students and note when there were signs of distress. JED recommended keeping the guards, potentially in collaboration with local police or the PERT team, rather than hiring paid guards. Dr. Hurley noted that while suicide prevention was multifactorial, educating the community and reducing access to lethal means were crucial. The Jed Foundation reviewed data on Palo Alto and realized it was necessary to discuss other lethal means. At the end of June, The Jed Foundation planned to release a detailed report including root causes and recommendations for community changes to support youth. Closing the Churchill crossing was a potential mitigation strategy but it would not eliminate suicides. The Jed Foundation will continue to provide training for community members to recognize signs of distress in young people. A statement in The Jed Foundation’s letter mentioned that while closing Churchill may reduce incidents at a specific site, it was unlikely to address suicide by train across the broader Peninsula, given the many accessible points along the rail corridor. Vice Mayor Stone asked whether individuals would likely seek alternative access points along the rail corridor if Churchill were closed. Vice Mayor Stone inquired if the comprehensive community-wide evaluation expected in a couple of months would include a detailed assessment of the implications of closing railroad crossings in a holistic systems-wide evaluation. Dr. Hurley explained that if there were no access to a crossing, it would restrict the means in that instance. The Jed Foundation could not predict whether a student would use a different means. If Churchill was closed, The Jed Foundation believed that guards were necessary at the other crossings. There needed to be a discussion about additional ways to reduce access to lethal means within the community. Deaths at rail crossings were not among the top 3 lethal means; therefore, The Jed Foundation would highlight other factors in their report and begin educating the community on how to reduce access to lethal means. The Jed Foundation has conducted an environmental assessment of the crossings in Palo Alto. JED's report would SUMMARY MINUTES Page 6 of 28 City Council Meeting Summary Minutes: 4/15/2026 include a section on the crossings, the pros and cons, benefits, closure costs, and various measures to make all the closures safer. Councilmember Burt was surprised to learn from The Jed Foundation's letter that Santa Clara County's medical examiner/coroner data from 2018 to 2026 indicated that train-related deaths were not among the leading methods of suicide in the population. Dr. Hurley mentioned that The Jed Foundation was also surprised by their data analysis. Although the CDC recently released a report indicating a slight overall decrease, Dr. Hurley noted that suicide rates had increased within specific subpopulations of youth and young adults. Other means were more comparable to those of cities of similar size. The Jed Foundation's report will provide the most accurate and up-to-date information. Public Comment 1. Nadia Naik, the former Chair of XCAP, spoke on behalf of Doria S., CeCi K., Ann B., Neilson B., Dexter G., and Sara G. Nadia N. attended 47 XCAP meetings and spent over 1,500 hours seeking a solution. The XCAP traffic consultants identified the following necessary measures to mitigate public safety and traffic issues: Bike/pedestrian overcrossing at Embarcadero and Alma, reconstruct the Alma Street overpass over Embarcadero, right-turn lane eastbound Embarcadero to Kingsley, left-turn lane southbound Alma to Kingsley, new signals on the Alma Street overpass at 3 locations, new signal at Embarcadero/Kingsley/High Street, bike/pedestrian improvements at Embarcadero/High, signal optimization and turn lanes at El Camino/Embarcadero, signalize Alma on/off ramps at Oregon Expressway, and signal optimization and turn lanes at Oregon/El Camino. The City cannot implement any of those mitigations before a temporary closure. The staff report noted that longer, less direct walking and biking routes would prompt some families to switch to driving, calling it a net-negative for transportation safety overall. About 714 students, approximately 40 percent of Paly, would be diverted onto unsafe routes. The California Avenue tunnel was too steep and narrow to absorb hundreds of additional users. Embarcadero was not a Safe Route to School. The Alma/Embarcadero slip ramps were known to be dangerous. The proposed mitigations to make the north side of Embarcadero safer do not account for a Churchill closure that would divert more vehicles to the location where we are routing the students. A Churchill closure adds thousands of additional daily trips on Embarcadero and Oregon Expressway, increasing response time for police, fire, and ambulances to reach Stanford Hospital and the rest of the city. Closing Churchill would likely delay efforts to create a quiet zone to alleviate train noise affecting students. Fast-track the quiet zone instead of closing the crossing. Nadia N. urged the Council to prioritize comprehensive safety measures for the entire corridor, rather than moving the danger. SUMMARY MINUTES Page 7 of 28 City Council Meeting Summary Minutes: 4/15/2026 2. Mare Lucas showed a slide presentation, noting this was the third suicide cluster. Mare L. believed the community had come to normalize such tragedies. Mare L. highlighted the danger posed by the proximity of the Churchill tracks to Paly, arguing that closure could prevent future suicides based on research showing that limiting access to lethal means could significantly reduce immediate risk. Mare L. called for elected officials to take responsibility for building a safe community, even when it involved unpopular decisions. Mare L. observed more people prioritizing traffic concerns over the mental health crisis. The City could work on logistics and traffic routing. The report did not suggest staggering school times and did not include data on usual ambulances hours. Mare L. said 50 percent of emergency room visits occurred after 6 p.m. Mare L. stated there were plenty of times during the day that when there was hardly any traffic on Oregon and Embarcadero. Mare L. shared her personal tragedy of losing her son, a Gunn student, to suicide. Mare L. urged the Council to close Churchill and take permanent action to save lives. 3. Neva Yarkin lives on Churchill Avenue in the middle of the block, east of the train track crossing. On February 3, 2026, Neva Y. felt traumatized seeing the aftermath of a suicide. For her neighbors and herself who cross this intersection many times a day, it left a sorrowful impact that will be with them forever. Churchill had been an unsafe intersection for many years, with numerous bike accidents, unsafe motorist turns, and an overflow of students waiting at the train crossing. Now, 6 people were in the 2025-2026 suicide cluster. Neva Y. felt that the value of human life was more important than the convenience of saving 15 minutes or more of driving time to El Camino. Ms. Yarkin urged the City to close Churchill without delay. 4. Karen Ambrose Hickey, a resident of Newell Road, opposed the closure of the Churchill crossing. Karen H's neighborhood had become a shortcut for parents, commuters, and delivery trucks, increasing hazards for pedestrians and cyclists. Karen H. described her experience driving here today with traffic on Embarcadero backed up to Cowper. As she waited at the light, Engine 63 honked repeatedly as it responded to a traffic collision on 101 but it sat there until traffic eventually moved and let it through. On most mornings, traffic on Embarcadero backed up to Newell, and she has seen Paly students jump out of vehicles at the underpass to get to class on time. Karen H's kids still talk about the stress they experienced attending Paly. Karen H. noted that we all share the goal of preventing further tragedies and the emotional toll on our community; however, she was concerned that closing the Churchill crossing was a reactionary measure that shifted the danger rather than eliminating it. Other solutions address the mental health crisis without inadvertently increasing the likelihood of traffic fatalities on our city streets. Rerouting pedestrians and cyclists into high-stress, congested areas such as Embarcadero potentially trades one tragedy for another. Karen H. is a cyclist and knew it was not safe. Karen H. advocated for solutions that prioritize safety for all road users and warned that a Churchill closure may lead to higher traffic fatalities. SUMMARY MINUTES Page 8 of 28 City Council Meeting Summary Minutes: 4/15/2026 5. Michael Price, a resident of Southgate, believed that implementing Track Watch was effective in reducing suicide risk, allowing us to address other factors to protect people at all rail crossings in Palo Alto. Suicides have happened primarily in south Palo Alto. Closing Churchill Avenue without any essential mitigation, such as a bike and pedestrian tunnel, would threaten public safety by redirecting traffic onto Embarcadero and into neighborhood streets, creating safety issues for students traveling to nearby schools and potentially trading one problem for a much worse one. Those who are opposed to closure have been accused of valuing our convenience more than the lives of Paly students, which Michael P. felt was unjust and inappropriate to shame people who disagree with you. Michael P. shared a personal experience of witnessing the suicide of his best friend’s 10-year-old brother. Michael P. emphasized that closing Churchill would not effectively prevent suicides and would endanger students, making it an irresponsible decision. 6. Dave E. commented on the risks and safety concerns of closing Churchill. In the event of an emergency, such as a heart attack, the delay in getting to a hospital could be life-threatening. With students traveling to Castilleja, Addison, Duveneck, and Palo Alto High School by foot, bike, e-bike, e-scooter, and car, Dave E. expressed deep concern about the possibility of someone getting hurt and about the ambulance's inability to reach the hospital promptly. Dave E. implored the Council not to close Churchill. 7. Lisa Nissim, who lives on Escobita, opposed the closure of the Churchill train crossing. Lisa N. thanked the City for its quick response to a student-led petition for track monitors. Track monitors in Palo Alto have proven to mitigate suicide risk effectively. There have been previous suicide clusters in Palo Alto; thus, suicide in Palo Alto has been studied in detail. Neither the 2016 CDC report nor the 2026 JED Report recommended closing any train crossings in Palo Alto. Lisa N. argued that closing Churchill would compromise safety for bikers, pedestrians, drivers, and emergency patients being transported via ambulance to Stanford Hospital on a gridlocked Embarcadero Road. The Rail Safety Committee and XCAP have detailed more than 19 necessary mitigations. Lisa N. encouraged the Council to base their decision on facts rather than emotions, stressing the importance of community safety and urging them not to close Churchill. 8. Abby Bradski had been a Palo Alto resident since 1964, attended Paly, and was a teacher. Abby B. did not know what to say about tonight's discussion when her 10- year-old granddaughter asked where she was going. Abby B. urged the City to collaborate with a child psychologist to provide a consistent message to parents and teachers on what to say to children. Abby B. read her 10-year-old granddaughter's letter, which mentioned that closing Churchill would complicate travel, create congestion at other intersections, students would be tardy more often, and some high school students participating in sports do not get home before dark, so it would SUMMARY MINUTES Page 9 of 28 City Council Meeting Summary Minutes: 4/15/2026 be easier and quicker for them to get home with Churchill open. Abby B. reiterated the need to address how elementary and middle school students were affected. 9. Penny Ellson, a member of PABAC and a former Gunn parent, commented as an individual. PABAC has not yet reviewed the potential Churchill closure. Penny E. emphasized the effectiveness of the 24/7 Track Watch as a lethal means reduction, helping to disrupt the suicide cluster as it had previously done in South Palo Alto. Penny E. advocated for proven strategies, such as Track Watch, strong mental health support, and education for parents, students, and educators. Penny E. supported establishing a quiet zone at Churchill to eliminate the disturbing horn noise and its effect on students and teachers. Rail crossing suicides were a citywide problem. Penny E. urged the City to expedite planning for citywide rail grade-separation projects and not distract City staff from their ongoing work on this important task. Safe Routes to School partners have worked for decades with the City on improvements based on the assumption that Churchill was part of the bike/pedestrian network. Penny E. expressed concern that closing Churchill would force students to walk or bike longer distances, incentivizing mode shift to cars and putting more inexperienced teen drivers on school routes, increasing the risk of accidents and creating a new risk for all users, including elementary and middle school students. 10. Mohamed H. believed that saving a student's life was invaluable, arguing that it was worthwhile if a temporary closure of Churchill could save even 1 student's life. XCAP dedicated many hours to extensive discussion of all the factors and voted 6 to 3 to close Churchill. Mohamed H. participated in the XCAP meetings. Mohamed H. urged the Council to take the right action by voting to approve a pilot closure of Churchill and gathering the necessary data to make an informed decision on whether a permanent closure is the best option for Palo Alto. 11. Dr. Omar H., a pediatric trauma and orthopedic surgeon, spoke about the importance of closing a crossing where many families have lost loved ones. As a trauma surgeon, Dr. Omar H. had witnessed the devastating impact of such tragedies on families. Dr. Omar H. urged the community to prioritize safety over convenience, stating that no shortcut was worth a human life. Dr. Omar H. called for action to prevent further loss and suffering, as families have already paid a significant price. 12. Debbie Mukamal is the mother of a Gunn senior and 1 of the 3 moms who restarted Track Watch in August of last year in response to the third suicide cluster in our community with 5 deaths in less than 12 months, which has particularly affected the trans youth community. To prevent suicide, research demonstrated it was necessary to restrict access to lethal means. The train was a lethal means that passed by 104 times a day. Since August, over 100 volunteers have been trained to monitor the train tracks and to interact with vulnerable people they encounter. Debbie M. thanked the City for its partnership and the Palo Alto Police Department for its SUMMARY MINUTES Page 10 of 28 City Council Meeting Summary Minutes: 4/15/2026 coordination with Track Watch during the last 8 months. Debbie M. expressed gratitude to the City and PAUSD for funding 24/7, paid, trained guards at the 4 Palo Alto rail crossings for 1 year, allowing Track Watch volunteers to transition to other ways of showing care. Debbie M. urged the Council to consistently restrict access to lethal means in our community, invest in mental health resources, offer safe routes for bikes and pedestrians, and achieve grade separation at the Churchill, Charleston, and Meadow crossings. Until the City implements grade separation, the 4 crossings need 24/7 guards. Not waiting another day to act would signal to our young people that we care about each of them. 13. Margaret Kim, a resident of Professorville off Embarcadero Road, urged the Council not to close the Churchill crossing. Margaret K. emphasized the need for permanent solutions and noted that current measures, such as crossing guards, Track Watch, physical barriers, and detection and warning systems, were effective. In addition to Churchill, these measures were in place at Charleston and Meadow, where there had been more suicides. A temporary closure was unnecessary because studies already exist from the XCAP exploration. Temporarily closing the crossing could divert an additional 8,000 to 10,000 cars to Embarcadero, increasing traffic through residential areas and making them unsafe. Margaret K. suggested keeping the crossing guards, building physical barriers to the tracks, improving detection and warning systems, implementing the quiet zone, building the Seale pedestrian and bicycle underpass, and referring to the data from the grade separation research. Margaret K. believed that closing Churchill would be a premature reaction. 14. At the age of 14, Carl D. was riding his bicycle home and stopped at a red light when a car pulled up beside him to make a right turn, hit his bike, and knocked him to the pavement. Although Carl D. was unharmed, he knows someone in the Bay Area who suffered permanent brain and bodily injuries after being struck by a car from behind. These examples highlight the risks cyclists face, particularly when increased traffic from the closure of the Churchill crossing diverts 8,000 to 10,000 cars into neighborhoods not designed to handle that volume without signage and traffic control. Carl D. argued that this closure issue was not about convenience. A Churchill closure increased the risk to pedestrians, cyclists, and pets in our neighborhoods due to the sharp rise in distracted and impatient drivers. This meeting was about how to stop suicides by train. The continued presence of guards at railroad crossings was a proven measure to reduce train-related suicides, while closure lacked sufficient justification and did not effectively address safety concerns. Carl D. was strongly opposed to the Churchill closure. 15. Barbara Hazlett, a 45-year resident of Professorville on Emerson Street, was opposed to the closure of Churchill Avenue due to significant safety concerns. The closure would redirect thousands of cars daily onto Embarcadero. A delayed emergency response to north Palo Alto residents could mean the difference between life and death. Barbara H. warned that frustrated drivers could speed SUMMARY MINUTES Page 11 of 28 City Council Meeting Summary Minutes: 4/15/2026 through neighborhood streets, creating further hazards. Barbara H. provided the following reasons that the City would face legal liability for a Churchill closure if injuries or deaths occur: (1) Rerouting a traffic count of thousands a day into a known hazardous corridor. (2) The risk was clearly foreseeable. (3) The City failed to implement reasonable safety measures. You cannot eliminate a high-intensity thoroughfare without expecting harmful fallout. The City has already implemented a sound approach to deterring future suicides. While the call for the closure of Churchill may stem from understandable emotional reasons, Barbara H. believed it was irrational and posed critical public safety risks. 16. Butch Hazlett opposed the closure of the Churchill crossing. Butch H. expressed his gratitude to Councilmember Lythcott-Haims for correcting her statement made at the last meeting. Butch H. thanked Councilmember Burt for providing a realistic perspective on a very complex issue. Butch H. warned that closing Churchill would lead to many more problems. Butch H. invited the Council, the new Police Chief, and the Fire Department to join him to observe the situation on Embarcadero in the morning, where traffic was often gridlocked. Butch H. noted that this could create challenges in reaching people in need. 17. Mark L., a Midtown resident for the past 36 years, thanked Councilmember Burt and the folks who prepared the report for carefully analyzing the impact of a potential closure. Mark L. highlighted that a closure without mitigations was more likely to cost lives than to save them, such as accidents involving children on bicycles. Mark L. questioned how a disruptive measure that affects citywide traffic and increases air pollution could be exempt from CEQA. 18. Andie Reed, a resident living between Embarcadero, Churchill, Paly, the tracks, and Castilleja, expressed concerns about student safety while walking, biking, or scootering to school. Andie R. frequently crosses the tracks at Churchill and under Embarcadero many times a week on foot. Churchill had a high volume of traffic from students, pedestrians, bikes, and scooters who would likely shift to Embarcadero if Churchill were closed, requiring them to cross 2 slip lanes on either side of Embarcadero to access the underground tunnel sidewalk that was not designed for such heavy use. Eastbound and westbound Embarcadero car traffic backs up on both sides of the tunnel as parents drop off kids at Paly and Castilleja. Creating unsafe conditions by closing Churchill was not a solution. Andie R. urged the Council not to close Churchill. 19. Kerry Y. urged the Council to close Churchill immediately to save lives. The XCAP voted 6 to 3 in favor of closing Churchill and implementing mitigations. Pages 58 through 62 of the XCAP report addressed the 7 intersections, providing a traffic analysis and potential mitigation strategies. Kerry Y. reminded the Council that this was the third suicide cluster; the second occurred between 2014 and 2015, during which 4 students died by suicide on the tracks. At that time, Kerry Y's children were SUMMARY MINUTES Page 12 of 28 City Council Meeting Summary Minutes: 4/15/2026 in middle school, and she faced the decision of whether to send them to Palo Alto High School, an independent school, or remove them from the Palo Alto Unified School District altogether. Kerry Y. owned a home on Churchill and never allowed her children near the Churchill crossing. Kerry Y. used to count the bikes crossing the tracks and witnessed students trying to get across before the train arms were fully down. Kerry Y. shared her observations with some of the Council Members, noting that there were near-misses every day. Kerry Y. has children with depression, ADHD, anxiety, suicidal ideation, cutting, LGBTQ, and identity issues that became apparent when they were in about the 8th and 9th grades, so she was grateful they were able to attend independent schools. Kerry Y. no longer rides her bike across Churchill. 20. Bob Stillerman has lived in Palo Alto for over 48 years, including 44 years in the Southgate neighborhood. Bob S. is a former City of Palo Alto commissioner and the parent of 2 Paly students. Bob S. opposed the closure of the Churchill crossing. If the goal was to reduce lethal means to Palo Alto students, Bob S. wondered whether anyone had considered closing the southbound access to Churchill Avenue from Palo Alto High School, thus effectively preventing students from accessing the train tracks during school hours. 21. Marion K. and her husband have lived in Southgate for 36 years. Marion K. was surprised that potential problems for Southgate were not being considered in the decision whether to close Churchill. Marion K. expressed concerns about Southgate residents' ability to exit their neighborhood if necessary and about emergency vehicle accessibility. Marion K. agreed with the previous comments that cited reasons for not closing Churchill. Marion K. encouraged the City and PAUSD to provide more support and outreach for students experiencing suicidal ideation. Marion K. supported maintaining the current crossing guards for the same amount of time or longer. Out of concern for children's safety, Marion K. asked the City to focus on passing laws immediately that prohibit children under 16 from riding electrically enhanced bicycles, and require a driver's license and helmet for those over 16. Marion K. lived on Castilleja Avenue, which was the bicycle crossing into Paly, and had seen some students exceeding 30 to 40 miles per hour. 22. Lara Anthony, the PTA Council Chair for Safe Routes to School, addressed the Council as an individual. Before closing Churchill/Alma, Lara A. emphasized the need for alternative safe bike routes for the hundreds of students who use that route daily. Lara A. expressed concern that many students who bike were likely to take the nearest available undercrossing, which was the south side of the Embarcadero underpass. That route was unsafe and would likely be extremely dangerous with the additional volume of cyclists and vehicular traffic. Forcing students into unsafe commutes was not the answer, as it would only trade one risk for another. The Alma/Churchill intersection had been unsafe for many years. Although there is a rail grade-separation plan for the intersection, it will take over a decade to implement. Lara A. proposed acceleration of the Seale Avenue to Peers Park bike and pedestrian SUMMARY MINUTES Page 13 of 28 City Council Meeting Summary Minutes: 4/15/2026 underpass that is part of the Alma/Churchill rail grade separation project. Creating a safe alternative bike and pedestrian route as soon as possible would open the possibility of subsequently closing the Churchill crossing, upgrading it, or closing it to bikes and pedestrians. Providing a safe alternative underpass as soon as possible, establishing a quiet zone, and implementing the other measures contemplated to prevent access to lethal means were the best ways to honor the lives we have tragically lost. Lara A. urged the Council to accelerate the Seale Avenue Bike Underpass as part of the near-term solution. 23. Julia Curtis petitioned for crossing guards at all rail crossings in Palo Alto. For nearly 2 decades, PAUSD has faced the loss of over a dozen students to suicide. Julia C. supported closing the Churchill crossing. PAUSD's suicide rate was 4 times the national average and was the only school district in the state to have a train crossing bordering a school without grade separation. The American Foundation for Suicide Prevention, Stanford Medicine, and the CDC have found that eliminating lethal means was one of the most successful ways to save lives and that when stopping someone from harming themselves, they rarely try again. Security guards were effective, so Julia C. urged the Council to keep them for as long as possible, because we have seen that tragedy returns after the contract ends. Detection systems and signs were not enough. For students facing academic pressure or bullying, a minute- long walk from school should not be the difference between life and death. Julia C. and her classmates wanted to prioritize their peers' lives over a few extra minutes of travel time and were willing to carpool and find alternate, safe routes if the Churchill crossing were closed. A temporary closure of Churchill would not affect traffic for more than 6 months or 1 year. Physical barriers save lives. Julia C. implored the Council to temporarily close the Churchill crossing until her neighbors do not jump at the sounds of train whistles and PAUSD students feel safe to open up about mental health. 24. Steve Carlson, a resident of Southgate, had volunteered to watch the tracks at Meadow following a suicide. Steve C. was passionate about mental health. When Steve C’s daughter was at Paly, she lost a friend on the tracks and led a mental health effort. Steve C. expressed gratitude to the Council and PAUSD for implementing Track Watch in support of the petition initiative. Steve C. opposed the temporary closure of Churchill, arguing that there was no evidence it would be more effective than the track watchers, who have proven to be successful. With the closure of Churchill, there were still access points to the tracks, including from Embarcadero where there was a prior suicide. Steve C. noted there was substantial evidence that closing the tracks without mitigations would result in significant negative impacts and likely decrease safety. Steve C. asked the Council not to proceed with a temporary closure of Churchill. 25. Dona T. is a psychiatrist who attended Paly and is the mother of Paly students. Dona T. urged the Council to consider the consequences of failing to protect children at SUMMARY MINUTES Page 14 of 28 City Council Meeting Summary Minutes: 4/15/2026 those tracks. Dona T. noted people demonstrated a NIMBY attitude, supporting youth mental health as long as it did not inconvenience them. Dona T. emphasized that the mental health impact of youth suicides was profound and long-lasting for families. Losing someone to suicide was one of the strongest risk factors for suicide, even decades later. Dona T. expressed gratitude to the City for stationing guards, although they served as a painful reminder of the tragedies. Dona T. requested the Council to treat this pattern of loss as a moral emergency, implement physical barriers to help heal the community, and address traffic issues. 26. John M. supported the immediate move toward implementing quiet zones to reduce risk citywide rather than merely shifting it. John M. questioned whether Caltrain could adjust its schedules to reduce train frequency. John M. noted that Caltrain had been a reactive partner in these situations and has not publicly communicated its plans for risk mitigation. John M. commended the community for instituting Track Watch, which has been successful. 27. Melinda M. has been a long-time advocate for quiet zones. Noise disruptions have been a public health crisis for the community, disrupting our sleep and affecting everyone, especially the Paly students. Melinda M’s son, a former Paly student, used the Churchill crossing when riding his bike from Midtown to Paly. Melinda M. praised the Rail Safety Ad Hoc Committee for its comprehensive report. Melinda M. endorsed Option B and encouraged others to review the detailed 76-page document on the City agenda that explained why we cannot rush into something. Melinda M. was in favor of closing the Churchill crossing, along with the expedited installation of quad gates at all crossings to enhance safety. Melinda M. lives between Churchill and Meadow and was aware of the suicides at those locations. Melinda M. wanted to know what Caltrain’s responsibility was for providing safety measures. 28. Ron L. preferred the grade-separation approach taken by San Carlos 15 years ago, which involved elevating the train tracks 15 feet on a berm to allow streets to pass beneath the tracks, thereby eliminating access to a lethal means. Ron L. highlighted the importance of Track Watch volunteers at busy intersections. Ron L. does not want Churchill closed. Ron L. stated that approximately 800 cars an hour cross the Churchill tracks. If Churchill closed, about 200 cars would go 9 blocks to Oregon, and approximately 600 would go 3 blocks to Embarcadero, which was already congested. Ron L. wanted the City to work on changing all 4 streets underneath the tracks. 29. Jim C. praised the Council and staff for their efforts. Jim C. expressed gratitude for the immediate implementation of Track Watch, which had been very helpful. Jim C., a Southgate resident for over 20 years and a parent of 2 former Paly students, opposed the closure of Churchill due to concerns about potential unintended consequences. Jim C. emphasized that the root cause was PAUSD, not the train, citing a letter from a colleague who relocated his family to St. Louis due to the toxic SUMMARY MINUTES Page 15 of 28 City Council Meeting Summary Minutes: 4/15/2026 nature of PAUSD. Jim C. called for an examination of the underlying reasons behind students' suicidal ideation. 30. Mario Marshall commented on Zoom that he would like Churchill permanently closed down. 31. Kate McKenzie, a Southgate resident for 30 years and a PAUSD teacher for 23 years, including 17 at Paly and 6 at Gunn, commented via Zoom. Kate M. pointed out that the majority of suicides have not occurred at Churchill. Kate M. emphasized that closing the crossing would significantly impact not only the 8,000 to 10,000 daily cars but also emergency vehicles, including those responding to Southgate residents, thereby affecting the safety of many people and creating life-or-death situations. Kate M. highlighted the importance of focusing on mental health, referencing a period at Paly where there were no suicides while Churchill was open. Kate M. called for continued support for student mental health, keeping the crossing guards, and exploration of additional safety measures. Kate M. implored the Council not to close the Churchill crossing. 32. Herb B. said this was a recurring situation for the Council: something arises, staff spends a lot of money on capital improvement programs, and consultants often request additional funds. Herb B. believed the main demographic affected by suicide on Caltrain tracks was the 45 to 64 age group. Psychiatrists suggest that efforts should focus not on addressing the environment but on understanding the underlying environmental factors impacting students, such as the school system, family, or the environment in general. Herb B. recommended identifying the cause of the problem, what is the culture that is leading these students to feel the way they do, instead of trying to address the effects. Herb B. felt that closing Churchill would be a mistake, arguing it would exacerbate traffic issues and fail to address the deeper problems affecting students. 33. Susan N., a Southgate resident, opposed the closure of the Churchill/Alma intersection. Susan N. believed that students traveling to and from Paly, as well as those in danger from crime, fire, heart attacks, or other emergencies, faced the greatest risks of bodily injury and death due to a Churchill closure. Susan argued that we trust guards to help prevent suicide clusters at other crossings, so we should extend that trust to the Churchill crossing as well. Susan N. did not think the outcome of the closure would differ from having security guards, perhaps augmented by community volunteers. Susan N. emphasized that while the closure may seem like a supportive gesture toward students, it may distract from the societal issues contributing to such tragedies, with the important question being why 2 trans youth publicly died by suicide on the tracks during the day in front of their classmates. Susan N. linked these deaths to the toxic changes in our national political climate. SUMMARY MINUTES Page 16 of 28 City Council Meeting Summary Minutes: 4/15/2026 34. Amaan Ali, a sophomore at Palo Alto High School, expressed his heartache and frustration over the passing of a classmate in February. Amaan A. felt that the news was delivered in a routine manner, as if suicide were normal. Amaan A. emphasized that people should not normalize suicide. No one deserved to endure the pain and despair that many young people in Palo Alto have faced. Each passing was not a statistic; it was the loss of a child, sibling, or friend. Amaan A. called on Council Members to take action and prevent future tragedies, warning that keeping the Churchill crossing open would prioritize convenience over lives and thus continue this cycle of loss. 35. Jennifer D. read a statement from a Paly junior who was unable to attend tonight's meeting. The statement mentioned the loss of classmates Ash and Summer on the train tracks near Paly. Previous waves of this tragedy have occurred since before this student was born, and it has not gotten better. The multiple daily interruptions to their learning caused by the piercing roar of the train, as well as crossing the tracks at the same spot where they lost their classmates, were constant reminders that at any time they could lose another classmate. The student thought the city's culture needed to change fundamentally. The student asked that the Churchill tracks be closed to allow them to focus on their classwork without hearing the horns; students needed to know they were being heard and that their needs were being taken seriously. 36. Eduardo L. supported the safe closure of Churchill. Eduardo L's 4 children and their friends faced dangerous traffic conditions and close calls while attending Paly. After closing Churchill, Palo Alto would have about 11,000 residents per crossing, similar to Menlo Park, Redwood City, and Mountain View, where they have had no traffic issues moving within their cities to schools. There were 4 options to reach Paly within a half-mile of the school: 2 minutes by bike or 30 seconds by car. Paly was the only school in California with a nearby street crossing a railroad track used by 40 percent of the students. The City spent several million dollars on XCAP. Eduardo L. emphasized the importance of removing this significant threat and promptly implementing the mitigations outlined by XCAP. Eduardo L. attended many XCAP meetings. Eduardo L. urged the Council to focus on making Paly and its students safer and on improving their mental health. A friend of Eduardo L. lost their son at Churchill. Eduardo L. saw a car hit by a train at Churchill that would have killed the occupants if it were not for someone who helped them get out. Eduardo L. requested that the City safely close Churchill and follow XCAP's and others' recommendations. 37. Rowena C., Trustee and Vice President of the Palo Alto School Board, spoke as a private individual and as the parent of a high school junior who biked over the Churchill crossing every day. Rowena C. expressed deep sorrow over Summer, Ash, and the other students lost through suicide by train. At a recent school board meeting, all 5 board members supported the temporary closure of the Churchill SUMMARY MINUTES Page 17 of 28 City Council Meeting Summary Minutes: 4/15/2026 crossing. Rowena C. was immensely grateful for the swift action of the City Council and the school board in bringing back crossing guards. No student had been lost to suicide by train while the crossing guards were present. Rowena C. felt it was critical to take decisive and immediate action. Rowena C. recommended using a data-driven and evidence-based approach to consider the crossing closure as a more permanent deterrent to suicide. Rowena C. hoped the City Council and school board could combine their resources to develop a comprehensive and effective response to tragedies, in partnership with organizations and mental health experts such as JED, Project Safety Net, and Stanford. 38. Mariya P., a Palo Alto mom of 3 kids, commented via Zoom while riding Caltrain. Mariya P. acknowledged that Track Watch and crossing guards were effective deterrents; however, they were a temporary solution that made the crossing look like a danger zone, something she did not want to live with permanently. To create a more positive atmosphere at the corner where the crossing guards were currently positioned, Mariya P. proposed a self-sustaining, 24/7 coffee shop or convenience store to serve as a community hub operated by nonprofit organizations with private funding at minimal cost to the city. Mariya P. believed her proposal aligned with Dr. Hurley’s recommendation to build community presence to change perceptions of the intersection in the long run. 39. Nancy Madison, a Southgate resident for over 40 years, expressed her concerns on Zoom about the impact of a Churchill crossing closure. Diverting pedestrians and bicyclists to the Cal Ave tunnel or Embarcadero underpass would increase dangers, particularly during peak traffic times. Nancy M. emphasized the risks to all residents, especially seniors and those with disabilities who travel primarily on foot. Nancy M. urged the Council not to close the Churchill crossing. Nancy M. encouraged the Council to continue acting responsibly and quickly to address the recent suicide tragedies, but not to adopt what appeared to be a quick solution that would result in negative consequences. 40. Devon shared via Zoom that she lost a close friend to suicide as a teenager nearly 35 years ago. As a parent of children who attended Paly, Devon expressed concern about the safety of kids biking through the Embarcadero underpass to and from school amid increased traffic. Devon had a negative emotional response to the situation. Devon noted there were ways to effectively take care of all students without closing Churchill; therefore, Devon suggested that Churchill not be closed. 41. Michelle H., a mother of 4 young adults who had attended Paly, said her evolving hope for her children when they were in Palo Alto schools had shifted over the years from thriving to merely surviving. Michelle H. read Dr. Veronica Saleh's letter to the Council, a child/adolescent psychiatrist who was unable to attend tonight's meeting. The letter mentioned that adolescents were particularly vulnerable. Adolescent suicide attempts were often impulsive, with studies showing that 24 percent of SUMMARY MINUTES Page 18 of 28 City Council Meeting Summary Minutes: 4/15/2026 adolescents who survived suicide attempts reported less than 5 minutes of lapse between their decision and attempt. This impulsivity made access to highly lethal means particularly dangerous. Railway suicide attempts had an extremely high fatality rate, leaving no opportunity for regret or intervention once attempted. Individuals often survived beyond the period of acute risk when lethal means were not immediately accessible during acute crisis periods. While it was critical to prioritize the improvement of mental health services in our schools and address the toxic school culture contributing to depression, anxiety, and suicidal ideation among students, Michelle H. did not believe those measures would prevent the next death by suicide on the tracks. Michelle H. noted that the delay in grade separation has had devastating consequences for our community. Michelle H. emphasized the need for swift action on grade separation to prevent further tragedies and to show our youth that we truly care by prioritizing their safety and closing the tracks now. 42. On Zoom, Elizabeth Alexis expressed concerns about closing Churchill, as it could force students to take less safe routes to school and trade one type of risk for another. Elizabeth A. emphasized the need for an alternative crossing before an expedited closure. While consultants analyzed potential traffic impacts, Elizabeth A. noted that predictions can be unreliable based on her experience. Elizabeth A. suggested modifying the closure to limit turns at Churchill to simulate a closing, allowing for an assessment of its impact. Elizabeth A. advocated for continuing Track Watch, expediting quiet zones, and quickly implementing bike crossings at Seale and south Palo Alto to demonstrate the seriousness of the issue before considering closure. The Council took a break. Mayor Veenker announced that the Council would carry over this item to the May 11 agenda. In the meantime, the Council would review public comments, a detailed staff report, and an in- depth ad hoc analysis. Since it would be a continued item, the Council would not accept additional public comments at that time; however, the public was welcome to attend the meeting in person or virtually. Councilmember Reckdahl asked about the implementation schedule for quiet zones and how to accelerate it. Councilmember Reckdahl suggested learning from communities that have successfully established quiet zones. Councilmember Reckdahl inquired whether staff could reach out to Caltrain to gather information about their experiences and seek any guidance they may have. Councilmember Reckdahl wanted to know the fastest timeline other cities have followed to implement a quiet zone. The Alma/Palo Alto Avenue quiet zone was proceeding more quickly. City Manager Shikada said the next step in implementing the quiet zone at the other 3 crossings was to obtain City Council approval of the budget to move forward with the next phase of design. SUMMARY MINUTES Page 19 of 28 City Council Meeting Summary Minutes: 4/15/2026 Ripon Bhatia, a Senior Engineer with the Office of Transportation, confirmed that the City was moving forward with establishing a quiet zone. The City Council approved the concept designs. Staff planned to hire a consultant for the design in the next fiscal year, with an estimated completion time of 12 months. During this period, permits will be procured from the CPUC. If funding were available in 2027-2028, construction could begin. The design review involved significant collaboration with Caltrain, particularly regarding the signal and gate-arm mechanism designs, which required approval from the CPUC and the FRA. The 12-month anticipated timeline included the review period and submittal process. Staff aimed to expedite the process and reduce submittal time where possible; however, service agreements between Caltrain and the City, as well as City Council approval, take time. Chief Transportation Official Ria Hutabarat Lo stated that construction for a quiet zone was less complex than grade separation. Construction on Palo Alto Avenue was expected to take a couple of months, followed by the approval process. The CPUC identified some items during their inspection. As a result, staff had to line up the contractors again. Involving the CPUC during construction could potentially streamline the process. Funding could delay project completion. Staff planned to fund the quiet zone work through Measure K. There was uncertainty about the funding source for a temporary closure, because using Measure K for a temporary closure would compete with the quiet zone work for the same funds. Navi Dhaliwal, Caltrain's Government and Community Affairs Manager of Capital Infrastructure, explained that establishing quiet zones involved various stakeholders, including the FRA, CPUC, and local transportation agencies. Caltrain collaborated frequently with the City and Caltrans. Since each crossing was unique, there was no standard timeframe for implementing a quiet zone. Ms. Dhaliwal will take back the feedback provided and explore opportunities for Caltrain to partner and coordinate more effectively with City staff. Part of Caltrain's approach under the corridor crossing strategy included gathering lessons learned and understanding what was needed to implement quiet zones, safety enhancements at crossings, and grade separations. Ms. Dhaliwal did not have implementation timelines for quiet zones in other cities; however, she could follow up with staff to relay the information to the Council or forward any communications from Caltrain to the Council. Councilmember Lauing emphasized that the Churchill crossing was unique among crossings along the corridor due to the emergency we face, our history of incidents, and the tragedy we were trying to prevent. Considering this was an emergency, Councilmember Lauing wanted to know what the appeal process was for requesting a period of silence for train horns at Paly, such as between 8 a.m. and 3 p.m. City Manager Shikada explained that Caltrain, Union Pacific, the CPUC, and the FRA considered using train horns as a safety measure. Therefore, a request to silence the horns would be unsafe and require implementation of alternative safety measures, such as physical improvements associated with a quiet zone. City Manager Shikada suspected it was nearly impossible to silence the horns without implementing mitigating measures, as it was a federal law or regulation. SUMMARY MINUTES Page 20 of 28 City Council Meeting Summary Minutes: 4/15/2026 Ms. Dhaliwal from Caltrain agreed with City Manager Shikada's reply, confirming it aligned with Caltrain's perspective. Establishing a quiet zone involved implementing safety improvements at the railroad crossing that offered the same level of protection as a train horn. Caltrain had to meet the criteria of the FRA train horn regulations, the CPUC general orders, the United States Department of Transportation's Americans with Disabilities Act standards for transportation facilities, and the California Manual on Uniform Traffic-Control Devices published by Caltrans. Those requirements made our communities safer. Councilmember Burt noted that federal law required train horns to sound for 15 to 20 seconds at a volume of 96 to 110 decibels, except in quiet zones. Councilmember Burt emphasized the importance of continuing to push for the establishment of a quiet zone. Councilmember Burt believed that Atherton was the only city along the Caltrain line to implement a quiet zone. Councilmember Burt met with Atherton leaders involved in the quiet zone process, who explained the legal process. The ad hoc committee report recognized that Churchill was an unsafe bike crossing. The combination of vehicles and the high volumes of bikes traveling against the flow of traffic in the afternoon posed a high safety hazard. Councilmember Burt asked what the negative safety implications of closing Churchill were compared to the existing risks at that crossing. Councilmember Burt acknowledged that closing Churchill would largely isolate the Southgate neighborhood, potentially affecting emergency services, among other things. The XCAP report indicated that such a closure would likely result in an overall net- negative safety impact. Councilmember Burt pointed out that some speakers claimed others were focusing on traffic inconvenience as a reason to avoid closing Churchill. Councilmember Burt clarified that no staff members, Council Members, or members of the public made this argument, except for quoting a 10-year-old child. Councilmember Burt highlighted the importance of not misrepresenting others' comments, although he acknowledged that the Council had received emails expressing those sentiments. We do not have a cost estimate for permanent closure but it would likely exceed $100M for a bike underpass, rebuilding the Alma overcrossing, and other related measures. Some members of the public have questioned why we were not grade-separating all crossings. The costs of grade separations and civil engineering projects have significantly increased over the last half- dozen years and available funds have shrunk, especially over the last year. The available funds were primarily the $400M from VTA Measure B, which roughly equaled the cost of one grade separation. Since South Palo Alto lacked a grade-separated crossing, the Council was considering either Meadow or Charleston. The City needed to identify where to obtain the additional $100M needed for other measures, which might take at least 5 to 10 years to design and construct, though the timeline was uncertain. If we opted for a 6-month temporary closure beginning in August, it would take 5 to 10 years before permanent closure. Train horns would return until we can establish quiet zones. In the interim, we need to rely on guards to provide security. PAUSD and the City committed to providing 24/7 guards for 1 year. Councilmember Burt asked other council members to indicate their interest in continuing cost-sharing with PAUSD to extend the guards, which could alleviate many of the community's concerns. Closing Churchill did not solve the problem. If guards were adequate in providing strong protection at SUMMARY MINUTES Page 21 of 28 City Council Meeting Summary Minutes: 4/15/2026 Meadow and Charleston, where the bulk of our suicides have occurred, then the guards could adequately protect Churchill as well. Councilmember Lythcott-Haims clarified that paid guards were called Track Watch some years ago. In August, 3 women started a volunteer effort and called themselves Track Watch, training about 100 individuals. The paid guards and volunteers deserve recognition for their efforts, who can be seen at crossings with vests and flashlights provided by our Emergency Chief. To ensure proper training, volunteers and paid guards completed the Be Sensitive, Be Brave suicide prevention program. Councilmember Lythcott-Haims questioned whether a closure of Churchill was merely shifting a risk, perhaps a greater one, to other intersections. Councilmember Lythcott-Haims wanted to know how long the Council could commit to funding the guards and continuing the partnership with PAUSD. Regarding the design and construction of quiet zones, Councilmember Lythcott-Haims interpreted Mr. Bhatia’s response of 2027-2028 as referring to the fiscal year 2028, which begins in July or August of 2027. However, the staff report indicated a fall 2027 timeline for quiet zones, and Councilmember Lythcott-Haims had heard that completion might occur by December 2027. Councilmember Lythcott-Haims felt that City staff should explore every possible avenue, in partnership with Caltrain, to expedite the establishment of a quiet zone at Churchill. Implementing guards and an expedited quiet zone could make the community feel safe. Councilmember Lythcott-Haims questioned whether the discussion was about 1 or 2 tunnels for bicycles and pedestrians at Seale to Castilleja, the project status, whether it was budgeted, whether there was a CIP for it, what the timeframe was, and how quickly we could have an underpass to facilitate safe passage for students to get to Paly. One of the proposed mitigations under the pre-closure plan was to improve safety at the intersection of Embarcadero and Kingsley, and Councilmember Lythcott-Haims requested further details. The staff report indicated plans to proceed with the Churchill Avenue enhanced bikeway project with improvements at the intersection of Churchill and Castilleja, even if the Churchill closure moved forward. Councilmember Lythcott-Haims pointed out that if Churchill were closed, it would become a dead end coming off El Camino, thus reducing traffic volume and speed because you could not go through anymore, and leading her to question the necessity of continuing to focus on improving that intersection when the factors that make it less safe were going to be largely reduced. Councilmember Lythcott-Haims expressed skepticism that students would travel all the way to Homer as an alternative route. Senior Engineer Bhatia confirmed that the design and construction of the quiet zone would take place during the fiscal year 2027-2028. Caltrain constructed all improvements within its right- of-way. Staff anticipated the complete design process, approvals from the CPUC and FRA, and finalizing an agreement with Caltrain to take 8 to 12 months. The equipment had lead times, so Caltrain and City staff could look into the possibility of advance procurement; however, securing funding for the construction of these improvements was essential. Chief Transportation Official Hutabarat Lo said the City had a grant for a grade-separation project that included the Seale tunnel and the Churchill vehicular underpass. The staff had SUMMARY MINUTES Page 22 of 28 City Council Meeting Summary Minutes: 4/15/2026 Council direction to advance toward the 15 percent design phase. Detaching the Seale tunnel from the rest of the grade-separation project was one way of accelerating it. Staff intended to get the 35 percent design before the Seale tunnel could potentially move forward on its own, as long as it remained connected to Churchill. The Embarcadero Road improvements project involves squaring off the corner of Emerson and Embarcadero and removing the slip lane. A slip lane resembles a pork chop, allowing vehicles to cut the corner and slip onto the main road more quickly and easily. Removing this slip lane would slow down motorists approaching the corner, thus encouraging them to pay attention to pedestrians. Compliance with the rectangular rapid-flashing beacon was poor, partly due to the large corner radius. The Embarcadero improvement project included slip lanes onto Alma and off Emerson on the north side. Similar improvements would be made on the south side at Kingsley coming off Alma and at the corner of Emerson, including a bulb-out and a higher-visibility pedestrian crossing. Regarding the Churchill Avenue enhanced bikeway project, while a Churchill closure would likely reduce speed and volume, Chief Transportation Official Hutabarat Lo stated that students have been struck by motorists at this location. Some of those motorists were headed to the school, while others were passing through. The closure of Churchill would likely result in more bicyclists and pedestrians seeking alternative routes, including California Avenue. Students coming from the south side would likely travel along California Avenue, down Park Boulevard, and onto Castilleja, where they would cross Churchill. For individuals accessing the school on Churchill, the 2 detours converge on that side. City Manager Shikada emphasized the high time sensitivity. The Public Works staff identified long lead times on some of the required equipment. Therefore, if there was an interest in completing this project during the summer, the Council could authorize City Manager Shikada to have staff negotiate and execute a construction contract immediately. Delaying the decision until May 11 would make it more difficult for staff to complete the project during the summer. Councilmember Lythcott-Haims voiced her support to authorize City Manager Shikada to have staff negotiate and execute a construction contract immediately. Councilmember Lu approached this issue as a public health matter and sought to understand the data on the overall reduction in harm before making a decision. Councilmember Lu recognized the reasoning behind a temporary closure and the particular urgency in the upcoming year. However, public comments revealed that opinions on the matter varied widely. This discrepancy complicated the decision-making process, especially without weighing the percentage likelihood of occurrence for a suicide, bike collisions, traffic accidents, and the risk of delayed emergency response, for example. Although The Jed Foundation would provide data in June to help present a clearer picture of past and present suicide trends within the community, Councilmember Lu planned to conduct his own research, talk more with the community, and better understand some of the patterns. Councilmember Lu asked whether it was fair to say that there have been no suicides when security guards were present. While Councilmember Lu recognized there may be a deterrent SUMMARY MINUTES Page 23 of 28 City Council Meeting Summary Minutes: 4/15/2026 effect, he requested evidence, data, or studies on the effectiveness of security guards. Specifically, Councilmember Lu wanted to know whether there were records of guards finding individuals in distress, yelling at or restraining them, and whether there were interventions, and whether guards had called in incidents or potential incidents that were subsequently addressed successfully. The staff report mentioned the average monthly number of high- and elevated-risk cases in the Southgate neighborhood. Councilmember Lu found this data useful for understanding the potential scale and impact of response delays. Councilmember Lu inquired whether these statistics pertained only to cases requiring ambulance services, such as heart attacks, and how we might assess the cases on the immediate other side of the tracks that were not in Southgate, where a delay in response time would impact. Furthermore, Councilmember Lu noted that the fire department's staff report referenced a theoretical 15-second delay but did not address the actual delay based on the locations from which responders would be dispatched. City Manager Shikada emphasized that the staff report referred to monitoring personnel at the crossings, not security guards. This distinction reflected the primary function they have served since the original contract. Their presence served as a deterrent. If an incident occurred or if they observed something unusual, their main responsibility was to report it, request assistance from the police department, and notify Caltrain. According to the information available, there had been no suicides at crossings where monitoring staff were present. Police Chief James Reifschneider stated that there have been no known suicides at crossings when guards were present, based on over a decade of data from the Track Watch program. The program has undergone various iterations and contractors, sometimes with guards at certain crossings and/or times of day. Police Chief Reifschneider was aware of instances in which guards had called in reports of individuals near the tracks. These instances highlight the guards' role as a deterrent, to request a police response, and to provide real-time notifications to Caltrain's dispatch center to slow or stop the trains if necessary. High-risk and elevated-risk police responses in the Southgate neighborhood included medical emergencies and criminal threats to public safety, such as someone with a gun or committing a stabbing. Most medical emergencies were simultaneously dispatched to police personnel in the field, the fire department, and paramedics to get aid on the scene as quickly as possible, for example, for a heart attack, stroke, or someone choking. Police officers are in various locations; therefore, the police response model differed from the fire department's, making it difficult to measure police response times. Police officers cross the tracks an average of 7 times a day, although not all crossings were in response to an emergency. Fire Chief Steve Lindsey mentioned that the fire department used a third-party vendor to analyze 5 years of Computer-Aided Dispatch (CAD) data. This analysis focused on calls on the east and west sides of Churchill relative to Alma to simulate the scenario of closing the Churchill crossing. With the crossing closed, the fire units were hypothetically reassigned to calls based on the static locations of the fire stations to assess response times. This assessment did not consider traffic conditions; it evaluated only the impact of changing Station 3's response from SUMMARY MINUTES Page 24 of 28 City Council Meeting Summary Minutes: 4/15/2026 Rinconada to areas where Station 6 might have been closer. On average, this change resulted in about a 15-second delay in response times for that area. Vice Mayor Stone inquired whether the Fire Department modeled the likely impacts of a delayed response from a unit that had been dispatched to another emergency. Vice Mayor Stone asked whether the fire analysis and the police department have taken into account the approximately 8,000 additional vehicles that would be rerouted between Oregon and Embarcadero when traffic backed up through the underpasses, and whether emergency vehicles could travel into an oncoming traffic lane. Over 700 Paly students bike to school every day. Vice Mayor Stone asked for the percentage of students who use the Churchill crossing. Vice Mayor Stone heard from community members about the possibility of installing a temporary bicycle and pedestrian crossing at Seale Avenue, with some suggesting a hydraulic box jacking method and he asked about the practicality of this approach. Fire Chief Lindsey stated that the fire department's analysis focused specifically on the first-due response, which referred to the initial unit arriving on the scene, and did not account for any possible incremental delays. Typically, a second unit arrived to provide support, such as an ambulance or an additional fire engine. Chief Kevin McNally, Operations for Palo Alto Fire, explained the analysis of response times. The model accounted for incoming calls in real time based on data from 2018 to 2025. First due was modeled. After the fire department dispatched the first rig for a call, the system identified the next-closest rig for subsequent calls, effectively modeling the response times for second- and third-due units based on prior movements. Station 6 at Stanford and Station 3 at Rinconada were equidistant from the neighborhood in question, so there was no significant difference in response times between the two stations under current traffic conditions. This analysis did not account for additional vehicles rerouted between Oregon and Embarcadero. Underpasses typically featured divided east-west or north-south lanes, which meant a response unit could not enter an oncoming traffic lane. While sirens do encourage drivers to yield, the process can sometimes be slow. If there were known routing issues, units would navigate around them, utilizing city streets to reach their destination. On occasion, units may take the oncoming traffic lane if doing so is necessary and safe. City Manager Shikada emphasized that the presence of concrete medians on Embarcadero and Oregon Expressway would make it problematic for police and fire to enter the wrong direction of traffic. Regarding the installation of a temporary bicycle and pedestrian crossing at Seale Avenue, some have suggested using a hydraulic box jacking method. However, this approach was not practical in the near term, as it would involve a significant construction project. Preliminary work conducted by City Transportation staff identified the need to relocate several utilities along Seale Avenue to facilitate a tunnel. Consequently, this would require time and possibly property easements before construction could begin. Police Chief Reifschneider noted there were fewer calls for service requiring police officers to use Churchill daily than those requiring use of Embarcadero or Oregon. Police Chief SUMMARY MINUTES Page 25 of 28 City Council Meeting Summary Minutes: 4/15/2026 Reifschneider’s main concern was the congestion on Oregon and Embarcadero caused by the displaced traffic from Churchill, as Oregon and Embarcadero were primary routes for accessing various locations in town, including the mall, the hospital, Town & Country, Stanford Business Park, and Foothills Park. Driving against traffic on Embarcadero and Oregon was particularly challenging due to the concrete divider that extended for a considerable distance west and east of the crossing. If an officer decided to drive on the wrong side of the road, they had to make that decision well in advance of the crossing. It was a dangerous maneuver to drive the wrong way in the underpass due to sightlines. Embarcadero and Oregon Expressway lacked shoulders. As a result, vehicles could not safely pull over to allow officers to pass, and officers did not have a shoulder to get by quickly. Chief Transportation Official Hutabarat Lo indicated that Seale Avenue would be a multiyear project. Chief Transportation Official Hutabarat Lo and Sylvia Star-Lack did not know the percentage of the 714 Paly students who use the Churchill crossing; however, in response to Vice Mayor Stone’s request, staff will investigate further. Councilmember Lythcott-Haims commented that 714 was 39 percent of the Paly student body but she did not know the percentage of those who used the Churchill crossing. Mayor Veenker questioned how much additional time a Churchill closure would add to ambulance transport times after leaving the scene. Fire Chief Lindsey explained that many factors influenced ambulance transport times to the hospital, including the patient's condition and the time spent on-scene stabilizing them, which were determined by the team following a set of protocols. Efficient hospital transport involved taking the patient to a facility properly equipped to provide the necessary care and notifying the appropriate hospital staff, such as a cardiologist or trauma surgeon, to ensure the facility was prepared for the patient's arrival. In the Bay Area, specific hospitals were designated for stroke, trauma, and cardiac emergencies, and Stanford Hospital was capable of handling all those cases. Emergency Medical Services Director Jim Duren highlighted that each emergency call was unique, making their operation akin to a mobile emergency room. Their goals were to stabilize the patient, assess their condition, and transport them as efficiently as possible. Transport times from the scene to the hospital could vary due to changing traffic conditions and other factors. Mayor Veenker hoped the City could do everything in its power to expedite the Seale tunnel project because the intersection was dangerous regardless of whether Churchill was closed; however, she understood it may not happen within the next couple of years. While Mayor Veenker acknowledged that having trained monitoring staff at the crossings was an unpleasant, visible reminder, she believed it sent a strong public message that we care about this. Mayor Veenker noted that monitoring staff have proven effective and expressed her desire for it to continue. The Jed Foundation has held mental health training sessions and parent workshops SUMMARY MINUTES Page 26 of 28 City Council Meeting Summary Minutes: 4/15/2026 but Mayor Veenker wondered whether this effort included helping parents understand what to say to their children. Deputy City Manager Chantal Cotton Gaines explained that The Jed Foundation hosted one You Can Help session for youth and one for adults to provide language and offer guidance on how to help someone in crisis or who showed signs of additional need for mental health assistance. The Jed Foundation has been collaborating with PAUSD and has hosted 1 or 2 parent sessions to share the same type of information. This initiative was part of a holistic approach to enhance our ability to support individuals in need, in collaboration with The Jed Foundation. Regarding the average additional response time of 15 seconds for the first-arriving units in the immediate area, Councilmember Reckdahl asked whether that included only Southgate or an expanded area, and what the 90th percentile performance change was. Fire Chief Lindsey explained that the software analysis team analyzed first-arriving unit data from all calls that required emergency service responses over the past 5 years on the east and west sides of Alma. Fire Chief Lindsey did not have the 90th percentile performance change available but could provide it to the Council later if needed. The 15-second average response time difference reflected instances over the past 5 years in which Station 6 responded to calls on the other side of Alma because it was considered the nearest in the Automatic Vehicle Location (AVL). With a Churchill Closure, the fire department would route the Embarcadero engine to those calls but the average 15-second delay did not account for traffic impacts. Councilmember Lythcott-Haims inquired about the significance of 8,000 additional cars, seeking to understand what percentage this figure represented of the city's total daily vehicle volume. Councilmember Lythcott-Haims expressed support for The Jed Foundation and asked about attendance numbers for their workshops. Councilmember Lythcott-Haims emphasized the importance of promoting The Jed Foundation's events to encourage greater participation and equip more individuals with training to respond when someone is in crisis. Senior Engineer Bhatia noted that the Embarcadero count in 2016 was 25,000 to 26,000, and he believed it remained about the same today. For Alma, the count was 18,000 to 20,000. Based on the 2016 counts and since Embarcadero was closer than Oregon, City Manager Shikada calculated that if a Churchill closure redirected half or more of the traffic to Embarcadero, it would result in approximately a 15 to 20 percent increase in traffic volume. Deputy City Manager Cotton Gaines announced that listening sessions were scheduled for tomorrow and another for Sunday. The sign-ups for both sessions have been significantly better compared to previous events. Over 30 individuals aged 13 to 30 have signed up for tomorrow's session. For Sunday, around 15 to 20 participants signed up, pending receipt of their consent forms. Sign-ups counted after receipt of the consent forms. Attendance at The Jed Foundation's in-person sessions in March was about 10 per session. The City's Communications team recommended using paid advertising to promote this week's listening sessions, which likely SUMMARY MINUTES Page 27 of 28 City Council Meeting Summary Minutes: 4/15/2026 contributed to the increased sign-ups. Staff planned to use the same strategy for future trainings and workshops. Mayor Veenker wondered why she had not heard much about an intermittent closure approach. The City Council faced the decision of whether to close the Churchill crossing at all times or keep it open. Mayor Veenker thought the ideal scenario was installing a barrier to keep people off the tracks when a train was present, and then removing the barrier to allow cars, bikes, and pedestrians to cross when no train was nearby. One idea Mayor Veenker suggested was using sliding gates that would extend across both sides of the tracks to prevent cars, bikes, and pedestrians from crossing before a train arrived, then slide back to open the crossing. Mayor Veenker believed it might be possible to circumvent crossing arms with a skirt but it was more difficult for someone to get around the sliding walls. Mayor Veenker shared a YouTube video from about 10 years ago that showcased a gate system in Ireland. Mayor Veenker noted the gate shown in the video successfully prevented access to the tracks when no train was present, then swept out to close the crossing in all 4 quadrants before a train arrived, similar to a moving fence. Mayor Veenker suggested piloting this approach at 1 intersection and eventually implementing it at all 4 crossings. Mayor Veenker inquired whether those types of solutions had been considered or could be further explored. Mayor Veenker emphasized the importance of avoiding safety trade-offs by improving safety in one way only to make it less safe in another, especially regarding the delay of emergency response vehicles. Mayor Veenker suggested finding a way to bridge the gap until we could implement something similar to what the video showed. City Manager Shikada emphasized that we were treating this situation as an emergency. As such, identifying actions that could be immediately implemented was a key factor in determining the options presented to the Council. Time-of-day and other dynamic methods for managing the crossing would introduce complexity, limiting the ability to act quickly. As mentioned in the staff report and as stated by Caltrain, there was continued interest in exploring and pursuing feasible options. For instance, Caltrain has installed anti-trespass materials as quickly as possible. City Manager Shikada acknowledged that Caltrain had been a valuable partner, demonstrating a willingness to implement innovative solutions where feasible, except when limited by the regulatory environment and practical considerations that affect timeliness. Chief Transportation Official Hutabarat Lo stated the main concern was to eliminate entry points to the tracks. The moving gates shown in the video did not solve this problem, as someone could enter that area and wait for the gates to move. Introducing novel approaches that staff from various regulatory agencies may not have encountered could impact their ability to expedite their reviews. Caltrain's Government and Community Affairs Manager, Ms. Dhaliwal, noted that while Caltrain had been made aware of skirt and sliding wall treatments, those solutions had not been extensively tested or implemented in their operating environment and could produce SUMMARY MINUTES Page 28 of 28 City Council Meeting Summary Minutes: 4/15/2026 operational, maintenance, and safety risks. Any alternative treatments must undergo a formal hazard-risk assessment in collaboration with regulatory partners to ensure reliability under real- world conditions. Based on their current understanding, those treatments would introduce constraints that make it difficult to pursue at this time. The timely execution of the alternatives under consideration by the Council was critical. Caltrain recently installed safety improvements at its Palo Alto crossings, including solar markers and delineators, and is piloting advanced safety features, such as anti-trespass panels and anti-intrusion technology, to assess their effectiveness. Ms. Dhaliwal planned to share Mayor Veenker's suggestion with Caltrain's Chief Safety Officer as an innovation they can further research. Councilmember Burt discussed how next-generation technologies may complement existing efforts. The skirts attached to the arms required quad gates and could be installed in conjunction with the quiet zone project, although the level of security they would provide was unknown. Councilmember Burt planned to inspect some of those in England this summer. Caltrain adopted a corridor-wide safety best practices program, driven by advocacy from a couple of board members over the past 2 years. Councilmember Burt expected Caltrain to introduce additional safety measures after further research. New technologies required CPUC approval because they lacked an established track record. While this presented a hurdle, it did not make implementation impossible. A proven method established overseas would reduce the hurdle. Caltrain was interested in adopting best practices across its entire corridor, with Palo Alto serving as a pilot location. About a dozen years ago, the City had a very good QPR (Question, Persuade, Refer) training program for volunteers and, to some extent, in the schools. Councilmember Burt felt that parent and student education was very important and valuable. Regarding the Seale Tunnel, Churchill could instead be the preferred site for a bike/pedestrian tunnel if it were permanently closed. However, construction of that tunnel could not begin before Churchill closed, leading to a period without access and thus required careful consideration of the trade-offs. Councilmember Burt expressed his support for authorizing the City Manager to execute the contract for improvements to Embarcadero's north side, suggesting staff put it on the consent agenda for the following week. Councilmember Burt expressed interest in staff proceeding with discussions with PAUSD to extend the guards beyond 1 year. City Manager Shikada stated that the staff was determining the process to bypass the typical procurement process and authorize the City Manager to sign the contract for the Embarcadero north side improvements. If the Council supported this approach, the staff could attempt to include it on the Council's consent agenda for next week, although timing may be tight. NO ACTION: ITEM CONTINUED TO THE CITY COUNCIL MEETING ON MAY 11, 2026 Adjournment: The meeting was adjourned at 10:18 p.m.