HomeMy WebLinkAbout2025-05-20 Rail Committee Agenda PacketRAIL COMMITTEE
Special Meeting
Tuesday, May 20, 2025
Community Meeting Room & Hybrid
6:00 PM
Rail Committee meetings will be held as “hybrid” meetings with the option to attend by
teleconference/video conference or in person. Information on how the public may observe and
participate in the meeting is located at the end of the agenda. The meeting will be broadcast on
Cable TV Channel 26, live on YouTube https://www.youtube.com/c/cityofpaloalto, and streamed
to Midpen Media Center https://midpenmedia.org.
VIRTUAL PARTICIPATION CLICK HERE TO JOIN (https://cityofpaloalto.zoom.us/j/86388142528 )
Meeting ID: 863 8814 2528 Phone: 1(669)900-6833
PUBLIC COMMENTS
General Public Comments for items not on the agenda will be accepted in person for up to three
minutes or an amount of time determined by the Chair. General public comment will be heard
for 30 minutes. Additional public comments, if any, will be heard at the end of the agneda.
Public comments for agendized items will be accepted both in person and via Zoom for up to
three minutes or an amount of time determined by the Chair. Requests to speak will be taken
until 5 minutes after the staff’s presentation or as determined by the Chair. Written public
comments can be submitted in advance to city.council@paloalto.gov and will be provided to the
Council and available for inspection on the City’s website. Please clearly indicate which agenda
item you are referencing in your subject line.
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Clerk will have them shared at public comment for the specified item. To uphold strong
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of other attendees, or otherwise disturb the business of the meeting.
1 May 20, 2025
Materials submitted after distribution of the agenda packet are available for public inspection at
www.paloalto.gov/agendas
CALL TO ORDER
PUBLIC COMMENT
Members of the public may speak in-person ONLY to any item NOT on the agenda. 1-3 minutes depending on number of
speakers. Public Comment is limited to 30 minutes. Additional public comments, if any, will be heard at the end of the agenda.
VERBAL UPDATE ON INTERAGENCY ACTIVITIES
A.Caltrain
B.VTA
C.City Staff
ACTION ITEMS
1.Summary of the Draft Public Outreach and Engagement Plan of the grade separation
project at Churchill Avenue, Meadow Drive, and Charleston Road crossings.
STUDY SESSION
2.South Palo Alto Bike/Ped Connectivity: Provide Feedback on Initial Crossing Opportunity
Locations and Draft Design Priorities and Evaluation Criteria
FUTURE MEETINGS AND AGENDAS
Members of the public may not speak to the item(s)
ADJOURNMENT
2 May 20, 2025
Materials submitted after distribution of the agenda packet are available for public inspection at
www.paloalto.gov/agendas
PUBLIC COMMENT INSTRUCTIONS
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teleconference, or by phone.
1.Written public comments may be submitted by email to city.council@paloalto.gov.
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table at the entrance to the Council Chambers and deliver it to the Clerk prior to
discussion of the item.
3.Spoken public comments for agendized items using a computer or smart phone will be
accepted through the teleconference meeting. To address the Council, click on the link
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listed below. When you wish to speak on an agenda item hit *9 on your phone so we
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please limit your remarks to the agenda item and time limit allotted.
CLICK HERE TO JOIN Meeting ID: 863-8814-2528 Phone: 1-669-900-6833
Americans with Disability Act (ADA) It is the policy of the City of Palo Alto to offer its public
programs, services and meetings in a manner that is readily accessible to all. Persons with
disabilities who require materials in an appropriate alternative format or who require auxiliary
aids to access City meetings, programs, or services may contact the City’s ADA Coordinator at
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accommodations must be submitted at least 24 hours in advance of the meeting, program, or
service.
3 May 20, 2025
Materials submitted after distribution of the agenda packet are available for public inspection at
www.paloalto.gov/agendas
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elected official of a local government agency from participating in a proceeding involving a
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Council Member exceeding $500 made within the last 12 months, you must disclose the
campaign contribution before making your comments.
4 May 20, 2025
Materials submitted after distribution of the agenda packet are available for public inspection at
www.paloalto.gov/agendas
Rail Committee
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Transportation
Meeting Date: May 20, 2025
Report #:2504-4499
TITLE
Summary of the Draft Public Outreach and Engagement Plan of the grade separation project at
Churchill Avenue, Meadow Drive, and Charleston Road crossings.
RECOMMENDATION
Staff recommends that the Rail Committee review and provide feedback on the Draft Public
Outreach and Engagement Plan for the Preliminary Engineering and Environmental Phase of the
Grade Separation Projects.
EXECUTIVE SUMMARY
This staff report outlines outreach, and engagement to guide efforts throughout the
Preliminary Engineering and Environmental Phase for the City of Palo Alto Project for Grade
Separation Churchill Avenue, Meadow Drive, and Charleston Road (Project) for Rail Committee
review and feedback.
Caltrain, in partnership with the City of Palo Alto (City), prepared a Draft Public Outreach and
Engagement Plan (Plan) with the ultimate goal of fostering involvement from the community,
Rail Committee, City Council, and interested parties at key project milestones, help inform
decision-making and present well-supported alternatives to evaluate and consider for decision-
makers.
Ongoing engagement efforts will be adapted and refined based on community needs and
feedback, ensuring a responsive and effective process. Through open communication, diverse
outreach strategies, and accessible engagement opportunities, this Plan will help guide
informed decision-making that reflects the community’s priorities.
Caltrain will lead the efforts in this phase and City will act as project sponsor. Public
engagement events and efforts will be hosted throughout the life of the Project to gather
community feedback on the alternatives. The anticipated Project timeline to complete a 35%
conceptual design and environmental clearance is anticipated to culminate in late 2027.
BACKGROUND
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Grade separation of rail crossings in Palo Alto along the Caltrain corridor has been an ongoing
project and community conversation. Over the past several years, City has developed various
alternatives for grade separations at the three existing at-grade rail crossings at Churchill
Avenue, Meadow Drive, and Charleston Road. With the support of consultants and
community input, the City developed and narrowed down project alternatives with a goal of
selecting a preferred alternative for grade separation at each of these crossings.
After various studies and refinements to the alternatives, the Rail Committee on May 23,
2024 (Staff Report # 2404-29521) recommended the City Council advance the following into
the Conceptual Development phase in preparation for the Preliminary Engineering and
Environmental Documentation phases:
•For Churchill Avenue at-grade crossing: Partial Underpass as preferred
alternative with Closure as backup alternative. The partial underpass
alternative will include the bicycle and pedestrian crossing at the Seale
Avenue/Peers Park location.
•For Meadow Drive and Charleston Road at-grade crossings: Hybrid and
Underpass alternatives
The City Council, after hearing community input and Rail Committee recommendations at the
June 10, 2024 (Staff Report 2402-2597)2 and June 18, 2024 (Staff Report 2406-31693)
meetings, advanced these recommended alternatives into the Preliminary Engineering and
Environmental Documentation phase of the project development.
The grade separation project at Churchill Avenue, Meadow Drive, and Charleston Road
successfully secured $6.0M in grant funding from the FRA towards completing the Preliminary
Engineering and Environmental phase. In addition, the City executed a Cooperative
Agreement with VTA to secure $14.0M from Measure B Grade Separation funding for
Preliminary Engineering and Environmental Documentation Phase. Caltrain will lead the
efforts in this phase and City will act as project sponsor.
ANALYSIS
As part of the agreement with Caltrain, the project involves development of the community
engagement plan for this Preliminary Engineering and Environmental Phase. The Community
Engagement Plan establishes a structured framework of engagement activities, it describes the
methodology for ensuring enhanced communication for sharing key Project information,
milestones, and synthesizing public input.
1 Rail Committee , May 23, 2024; Item 1, Action Item, SR# 2404-2952
https://recordsportal.paloalto.gov/Weblink/DocView.aspx?id=9258
2 City Council , June 10, 2024; Item 13, Action Item, SR# 2402-2957
https://recordsportal.paloalto.gov/Weblink/DocView.aspx?id=82879
3 City Council , June 18, 2024; Item AA3, Action Item, SR# 2406-3169
https://recordsportal.paloalto.gov/Weblink/DocView.aspx?id=82944
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Caltrain, in partnership with the City of Palo Alto (City) prepared this Draft Public Outreach and
Engagement Plan (Plan) for Grade Separation at Churchill Avenue, Meadow Drive, and Charleston
Road crossings (Project). The Plan guides public outreach efforts thought the Preliminary
Engineering and Enviornemantal Documentation phase of the Project, fostering involvement
from the community, Rail Committee, City Council, and interested parties at key Project
milestones for the proposed Project.
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phase is expected to conclude in late 2027, marking a significant milestone in the transformation
of the City’s rail infrastructure.
FISCAL/RESOURCE IMPACT
STAKEHOLDER ENGAGEMENT
ENVIRONMENTAL REVIEW
ATTACHMENTS
APPROVED BY:
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DRAFT Public Outreach
and Engagement Plan
May 2025
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Document Version Acceptance Date
Draft Plan Version 1 xxx, 2025
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TABLE OF CONTENTS
Table of Contents ............................................................................................................................................... ii
List of Figures ................................................................................................................................................... iii
Acronym List ..................................................................................................................................................... iv
Introduction ........................................................................................................................................................ 1
Purpose ............................................................................................................................................................ 1
Project Background .......................................................................................................................................... 1
Role of the Engagement Team ......................................................................................................................... 3
Engagement Plan Goals ................................................................................................................................... 4
Project Milestones.............................................................................................................................................. 5
Public Engagement ............................................................................................................................................ 6
Approach .......................................................................................................................................................... 6
Standard Process ............................................................................................................................................. 6
Step 1: Conceptual Development (15% Design) ................................................................................................ 7
Step 2: Preliminary Engineering (35% Design) and Environmental Documentation ............................................ 9
Engagement and Digital Communication Tools ............................................................................................. 12
Digital Communication .................................................................................................................................... 12
Data Synthesis ............................................................................................................................................... 13
Community Partner Engagement .................................................................................................................... 15
Community Partner Identification Process ....................................................................................................... 15
Conclusion ....................................................................................................................................................... 16
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LIST OF FIGURES
Figure 1: Project Milestones .............................................................................................................................. 5
Figure 2: Engagement Process ......................................................................................................................... 6
Figure 3: Step 1 Engagement Activities ............................................................................................................ 8
Figure 4: Step 2 Engagement Activities .......................................................................................................... 10
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A CRONYM L IST
Americans with Disabilities Act (ADA) is a United
States (U.S.) federal law that prohibits discrimination
against individuals with disabilities and ensures equal
access to public spaces, transportation, employment,
and services.
Caltrain is the Lead Agency for this project phase.
California Environmental Quality Act (CEQA) is a
state law that requires government agencies to
evaluate and disclose the environmental impacts of
proposed projects before approval.
City of Palo Alto Project for Grade Separation
Churchill Avenue, Meadow Drive, and Charleston
Road (Project) refers to separation of three Caltrain
at-grade crossing locations in the City of Palo Alto.
Community-Based Organization (CBO) is a non-
profit or non-governmental organization that operates
within a specific community, addressing local needs
and improving the well-being of its residents.
Engagement Team includes Kimley-Horn, Caltrain,
and City of Palo Alto staff. Kimley-Horn will lead the
engagement strategy and collaborate closely with
Caltrain and the City of Palo Alto.
Equity-Based Engagement refers to an inclusive
and intentional approach to public participation that
prioritizes the voices and needs of historically
underserved and marginalized communities.
Funding Sponsors refers to both the Federal
Railroad Administration (FRA) and Santa Clara Valley
Transportation Authority (VTA).
Federal Railroad Administration (FRA) is an
agency within the U.S. Department of Transportation
(USDOT) responsible for regulating and overseeing
the nation's railroad industry.
Lead Agency is the public agency with the primary
responsibility for oversight of the project.
Locally Preferred Alternative (LPA) is the design
option selected by a local agency, usually through a
public planning process, as the best solution to meet
project goals while balancing factors like cost,
community impact, and feasibility.
National Environmental Policy Act (NEPA) is a
U.S. federal law enacted in 1969 that requires
government agencies to assess the environmental
effects of their proposed actions before making
decisions.
Peninsula Corridor Joint Powers Board (PCJPB)
governs Caltrain and consists of agencies from the
three counties served by Caltrain: San Francisco,
San Mateo, and Santa Clara.
Project Management Plan (PMP) is a framework
that serves as the programmatic document for the
Project, from which other management and
administrative processes are defined.
Project Sponsor refers to the City of Palo Alto which
has secured funding from the Santa Clara Valley
Transportation Authority (VTA) and the Federal Rail
Administration (FRA) to advance the Project through
preliminary engineering, public engagement, and
environmental clearance.
Public Outreach and Engagement Plan (Plan)
outlines specific strategies for connecting with and
informing the public about opportunities, with the goal
of raising awareness and engaging them in a specific
project or agenda.
Santa Clara Valley Transportation Authority (VTA)
is a public transportation agency responsible for
providing and planning transportation services in
Santa Clara County, California.
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I NTRODUCTION
Caltrain, in partnership with the City of Palo Alto (City) and Kimley-Horn and Associates (Kimley-Horn), prepared
this Public Outreach and Engagement Plan (Plan) for the City of Palo Alto Project for Grade Separation
Churchill Avenue, Meadow Drive, and Charleston Road (Project). The Plan guides public outreach efforts
thought the life of the Project, fostering involvement from the community, City Rail Committee, City Council, and
interested parties at key Project milestones for the proposed grade separation crossing locations at Churchill
Avenue, Meadow Drive, and Charleston Road. Ongoing engagement efforts will be adapted and refined based
on community needs and feedback, ensuring a responsive and effective process. Through open communication,
diverse outreach strategies, and accessible engagement opportunities, this Plan will help build consensus and
guide informed decision-making that reflects the community’s priorities.
PURPOSE
This Plan establishes a structured framework of engagement activities, enhanced communication activities for
disseminating key Project information, milestones, and synthesizing public input to the community and public
officials.
PROJECT BACKGROUND
The Project is a long-term initiative aimed at improving rail safety, reducing traffic congestion, and enhancing
mobility along the Caltrain corridor in the City. The Project stems from ongoing efforts to address safety concerns
and transportation challenges posed by at-grade rail crossings along Alma Street, where seven major crossings
intersect the rail line.
Caltrain, operated by the Peninsula Corridor Joint Powers Board (PCJPB), has served as a key transportation
corridor for the region, but with plans for electrification and expanded service under the 2040 Business Plan,
increased train frequency is anticipated to lead to longer gate downtimes and greater congestion at at-grade
crossings. Three of Palo Alto’s crossings—Churchill Avenue, Meadow Drive, and Charleston Road (Project crossing
locations)—remain at-grade, posing safety risks and traffic challenges.
Recognizing the need for action, the City initiated the Connecting Palo Alto Project, with the goal of separating
roadways from the rail line at key intersections. Over the past two years, the Rail Committee has played a crucial role
in evaluating potential grade separation solutions, conducting detailed reviews of underpass alternatives, geotechnical
assessments, traffic impact studies, noise, and vibration analyses, and Caltrain’s operational requirements.
In June 2024, City Council approved advancing the Project into the Preliminary Engineering (35% design) and
Environmental Documentation phase for the following alternatives:
Churchill Avenue: The Partial Underpass at Churchill Avenue with a Bicycle and Pedestrian crossing at
Seale Avenue was chosen as the Locally Preferred Alternative (LPA), with the Closure alternative as
backup to advance.
Meadow Drive and Charleston Road: The Hybrid (including a mixed wall/column approach) and
Underpass alternative were chosen to advance.
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To facilitate durable decision-making and expedite refinement of the alternatives, the Project is divided into two
steps: Step 1 – Conceptual Development (15% Design) and Step 2 – Preliminary Engineering (35% Design) and
Environmental Documentation. Step 1 is anticipated to progress through mid-2026, after which Step 2 will begin,
focusing on advancing the alternatives to 35% design and complete the environmental clearance under the
California Environmental Quality Act (CEQA) and the National Environmental Policy Act (NEPA). Public
engagement events will be hosted throughout the life of the Project to gather community feedback on the
alternatives. The anticipated Project timeline to complete a 35% conceptual design and environmental clearance is
anticipated to culminate in late 2027.
Securing funding has been a key component of the Project’s history. In October 2022, the City received $6 million
in federal funding through the Federal Rail Administration (FRA) Rail Crossing Elimination (RCE) Program. An
additional $14 million was allocated from Santa Clara County’s 2016 Measure B funds, managed by the Santa Clara
Valley Transportation Authority (VTA).
As the Project progresses, the City remains committed to community engagement and collaboration with regional
partners, ensuring that the final grade separation solutions align with the City’s long-term mobility and safety goals.
Step 2 is expected to conclude in late 2027, marking a significant milestone in the transformation of the City’s rail
infrastructure.
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ROLE OF THE ENGAGEMENT TEAM
The Engagement Team operates based on the following key guiding principles:
The Engagement Team will engage the community
through workshops, surveys, and open house events
while utilizing online platforms and outreach
campaigns to gather input and share Project updates.
The Engagement Team will collaborate with local
leaders to ensure inclusive participation and work to
address diverse concerns.
The Engagement Team will serve as liaisons
between the Project and the community, engagement
efforts focus on building trust through meaningful
relationships with local leaders, organizations, and
residents. Maintaining these connections beyond
individual events fosters long-term collaboration and
strengthens community partnerships.
The Engagement Team will foster community
engagement by involving community members in
planning, maintaining open communications,
andrecognizing community involvement..
The Engagement Team will ensure clear, timely, and
consistent communication through diverse channels,
encourage open dialogue, address feedback
transparently, and provide accessible resources for
transparency.
The Engagement Team will collect community input
through various platforms, including community
meetings, technical workshops, open houses, online
surveys, website updates and public comment forms.
The collected data is then synthesized by analyzing
feedback, identifying key themes, grouping similar
responses, and summarizing insights to guide
decision-making and support project outcomes.
The Engagement Team will compile and present
community feedback through summary reports, visual
data, and regular briefings, emphasizing key
concerns, actionable recommendations, and focused
discussions with decision-makers.
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E NGAGEMENT PLAN GOALS
The Plan is designed to foster inclusive community engagement. The Plan’s goal is to:
Educate and Inform:
objectives, and existing alternatives.
Engage:
involvement.
Solicit Input:
priorities.
Share Feedback:
Recommend:
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P ROJECT MILESTONES
The Plan timelines, shown in Figure 1, outline anticipated engagement events, activities, and milestones throughout the life of the Project from Conceptual
Development through Preliminary Engineering and Environmental.
Figure 1: Project Milestones
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P UBLIC ENGAGEMENT
APPROACH
The engagement approach can be summarized by two overarching categories: Engage and Gather Community
Input, and Report Findings.
Engage and Gather: The Engagement Team will actively engage the community and stakeholders and gather
feedback through virtual and in-person meetings, technical workshops, and open houses. Targeted outreach via
social media, newsletters, and local publications will ensure broad reach and participation. As shown in Figure 1,
many opportunities will be provided for the community to voice concerns and ask questions. Collaboration with local
organizations and community leaders will also help identify and reach underrepresented groups, ensuring diverse
perspectives are heard and incorporated into the Project.
Report Findings: The Engagement Team will collect community feedback through various engagement
opportunities and online platforms, ensuring a structured and transparent communication process with decision-
makers. Summary reports will synthesize public input into clear, concise documents for the Rail Committee and
City Council, highlighting key concerns, recurring themes, and top priorities. Regular briefings at project milestones
will keep decision-makers informed, utilizing data visualization tools like charts and maps to illustrate community
input and project impacts. Additionally, actionable recommendations will be provided to guide decision-making,
ensuring public feedback plays a vital role in project development.
STANDARD PROCESS
The engagement process follows a structured approach to ensure effective outreach and meaningful community
participation, as shown in Figure 2.
Figure 2: Engagement Process
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1. Identify Key Community Partners & Target Audiences – Collaborate with the City and local
organizations to identify stakeholders, ensuring inclusive and equitable engagement.
2. Define Engagement Objectives – Establish clear goals for each event, aligning outreach efforts with
project milestones and community priorities.
3. Select Venue & Logistics Planning – Choose accessible locations for in-person events and set up
virtual options to maximize participation.
4. Promote Events/Mailers – Utilize mailers, website updates, newsletters, and social media to inform the
public about upcoming engagement opportunities.
5. Website Updates – The Project website will serve as primary channels for advertising the Project,
keeping the community informed and engaged. These platforms will provide news, event notifications,
upcoming engagement opportunities, timeline progress, major announcements, and feedback
summaries. Additionally, the website will serve to provide emergency notifications, changes in Project
scope, or responses to significant community input. Updates are anticipated to occur monthly and
quarterly.
6. Social Media Updates – The social media platform(s) will be used to share quick updates, upcoming
events, surveys, and other engagement platforms available to the community.
7. Provide Language Access – Ensure accessibility by offering translation and interpretation services for
diverse community members.
8. Gather & Synthesize Feedback – Collect input during events, analyze key themes, and distribute
summaries to stakeholders and decision-makers.
This process ensures that community voices are heard, information is accessible, and engagement efforts are
transparent and effective throughout the Project.
STEP 1 : C ONCEPTUAL D EVELOPMENT (15% DESIGN)
Goal: The goal during conceptual development is to educate the community on the Project’s history and proposed
alternatives, inform them of the technical body of work and opportunities for engagement, gather feedback on
conceptual designs and synthesize input for dissemination to the community, Rail Committee and City Council.
Feedback gathered and synthesized will inform Decision Point 1, refining conceptual alternatives and Decision
Point 2, advancing selected alternatives to a 15% conceptual design.
Figure 3 is a visual interpretation of planned Step 1 engagement activities.
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Figure 3: Step 1 Engagement Activities
ENGAGEMENT ACTIVITIES
Two Community Meetings are planned to occur prior to Decision Point 1 to provide a platform for a diverse group
of stakeholders—including schools, businesses, and community-based organizations (CBOs)—to engage with the
Project Team and review the selected alternatives prior to Decision Point 1 when the Rail Committee and City
Council will consider community input and refine the alternatives under consideration. The following is a breakdown
of anticipated Community Meetings format, content to be covered during the meetings, and time for community
questions and input.
Format: Present the design options for Churchill/Seale Avenue, Meadow Drive, and Charleston Road in a public
setting, as well as online via a Project website, mailers, and social media.
Content: Show how the designs have evolved since the alternatives where first introduced. Include visualizations,
presentations to communicate Project details, provide opportunities for community input, and gather community
concerns. The community meetings will walk through each of the design options. The Engagement Team will collect
community feedback in-person and will also collect community feedback via online portals that will be made
available to the public.
Proposed Meetings:
1 for Churchill Avenue/Seale Avenue alternatives
1 for Meadow Drive and Charleston Road alternatives
Target Audience:
Community members and leaders
Community business organizations
Schools
Local businesses
Q&A Session: Give the community an opportunity to ask questions and provide additional feedback on the updated
designs.
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Two Technical Workshops are planned to occur prior to Decision Point 2. The technical workshops will provide
opportunities to community members to engage in focused discussions on a variety of topics ranging from traffic,
acquisitions, right-of-way, safety, among others, pertaining to the selected alternatives. The following is a
breakdown of anticipated Technical Workshops format, content to be covered during the meetings, and time for
community questions and input.
Format: Present design alternatives in a focused group setting. The engagement will include visual aids
(renderings, maps), and a presentation.
Content: The Technical Workshops will provide updated refined concepts to the public and discussions will be
geared towards the discussion of specific technical aspects of the various alternatives.
Proposed Workshops:
1 for Churchill Avenue/Seale Avenue alternatives
1 for Meadow Drive and Charleston Road alternatives
Target Audience: Community members, including property owners, tenants, and businesses located adjacent to
or near the proposed project areas. This also includes residents who rely on the roadways and transit users who
may experience changes in access or service as a result of the project. Homeowner associations, neighborhood
groups, and other locally organized stakeholders with a vested interest in the project’s design and implementation
are also encouraged to participate.
Q&A Session: Each workshop will set aside time for the public to ask questions, express concerns, and give overall
feedback.
An Open House is planned to occur prior to Decision Point 2 and will provide community members and all interested
parties with an opportunity to learn about and provide input on the proposed LPAs.
Format: The open house will be structured as an interactive, drop-in style event where attendees will have the
opportunity to review display boards, maps, and other materials showcasing the LPAs for each Project location.
Content: The Engagement Team and technical staff will be available to provide Project status, advancements or
changes in design and will be available to answer technical questions. The Open House will offer information on
detailed construction schedules, phasing plans, traffic, safety measures, and expected outcomes of the designs.
Q&A and Feedback: The event is planned to allow community members to ask questions and provide feedback
on the Project at their leisure to staff members, in written format, or online.
STEP 2: PRELIMINARY ENGINEERING (35% DESIGN) AND
ENVIRONMENTAL DOCUMENTATION
Goal: The goal of engagement in Step 2 is to continue discussions on design alternatives with a more in-depth
technical analysis. As the design progresses, this step will focus on providing the community with opportunities to
engage in a more technical capacity, ensuring that input is collected on critical design elements. This step will help
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refine concepts leading to Decision Point 2, where the City Council will finalize selections for 35% Design and
Environmental Documentation, expected to be completed by the end of 2027 per the Cooperative Agreement.
Figure 4 is a graphical interpretation of the technical engagement activities in Step 2, including purpose, types of
community events, anticipated crossing locations, and target audience.
Figure 4: Step 2 Engagement Activities
ENGAGEMENT ACTIVIT IES
Two Community Meetings will provide community members with an opportunity to learn about and provide input
on the proposed LPAs. These workshops will include presentations from project staff and technical experts,
interactive discussions, and opportunities for participants to ask questions and voice their concerns. Attendees will
be encouraged to provide feedback on key elements of the proposed LPAs, including mobility impacts, potential
right-of-way requirements, safety considerations, and community integration. The workshops will also highlight how
previous community input has shaped the design process and explain the next steps in project development. By
fostering an open and inclusive dialogue, these workshops will ensure that community voices are heard and
considered as part of the decision-making process.
Format: Present the design options for Churchill/Seale Avenue, Meadow Drive, and Charleston Road in a public
setting, as well as online via a Project website, mailers, and social media.
Content: The community meetings will aim to re-engage the community and gather input on design alternatives,
present updated design concepts with an overview of refinements, and facilitate discussions to capture feedback
on community priorities and concerns
Proposed Meetings:
1 for Churchill Avenue/Seale Avenue alternatives
1 for Meadow Drive and Charleston Road alternatives
Target Audience:
Community members and leaders
Community business organizations
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Schools
Local businesses
Six Technical Workshops: Specific technical discussions covering topics such as right-of-way, mobility,
constructability, and Project cost estimates.
Content: The proposed content for the technical workshops will include key project topics such as right-of-way
impacts, mobility and accessibility considerations, constructability and cost estimates.
Proposed Workshops:
3 for Churchill Avenue/Seale Avenue alternatives
3 for Meadow Drive and Charleston Road alternatives
Target Audience: Community members, including property owners, tenants, and businesses located adjacent to
or near the proposed project areas. This also includes residents who rely on the roadways and transit users who
may experience changes in access or service as a result of the project. Homeowner associations, neighborhood
groups, and other locally organized stakeholders with a vested interest in the project’s design and implementation
are also encouraged to participate.
An Open House will provide community members with an opportunity to learn about and provide input on the
proposed LPAs.
Format: The final open houses will be structured as interactive, drop-in style events. Attendees will have the
opportunity to review display boards, maps, and other materials showcasing the LPAs for each location. Project
Team members will be available at different stations to provide information, answer questions, and gather
community feedback.
Content: Provide detailed construction schedules, phasing plans, traffic forecasts, safety measures, and expected
outcomes of the final designs.
Target Audience: Open to all community members, including residents, local business owners, commuters,
advocacy groups, and other stakeholders interested in the project’s development. This event is designed to provide
an inclusive space where individuals from all backgrounds can learn about the project updates, voice their
perspectives, and contribute to the decision-making process. Special outreach will be conducted to ensure
participation from historically underrepresented groups, renters, seniors, and individuals with disabilities.
Q&A and Feedback: Allow community members to ask final questions and provide feedback on the anticipated
layout. Include specific questions on what the community likes or dislikes about the final design and any concerns
they have for the construction phase.
Interactive Tools:
Interactive maps will supplement open houses to allow residents to engage with digital maps
Comment walls will be set up throughout for community members to leave comments and suggestions.
There will also be comment boxes where comments can be dropped off. Online platforms will also be
available to provide comments.
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ENGAGEMENT AND DIGITAL COMMUNICATION
TOOLS
Throughout the engagement process, the Project will implement a variety of outreach and engagement techniques
to connect with the community and community partners.
STRATEGIC PARTNERSHIPS WITH EXISTING NETWORKS
Kimley-Horn will collaborate with Caltrain and the City, CBOs, and other parties already active in the community
that are interested in participating in the project’s public engagement opportunities. The goal is to leverage existing
relationships which will facilitate effective, respectful, and targeted engagement efforts. This will also provide the
engagement team with the opportunity to help identify additional community members/groups with the community
that are not aware of this engagement effort.
PUBLIC COMMENT
Throughout the duration of the public engagement period, the engagement team will solicit ongoing public
comments in written format or digitally through a form on the project website.
FACTSHEETS
The Engagement Team will produce factsheets to support all steps of public engagement. One factsheet will be
produced after each round. The factsheets are intended to provide updates and general information surrounding
major milestones and will be available for print distribution during engagement events and on the project website.
Each factsheet will be offered in both English and Spanish and will be designed to be Americans with Disabilities
Act (ADA) accessible both digitally and in print.
DIGITAL COMMUNICATION
To support all public engagement, the Engagement Team will prepare digital communications intended to
supplement the workshops, factsheets, and website updates. The following tools will be utilized to create
supplemental digital communications and will assist in educating, informing, and engaging the public.
WEBSITE
The Engagement Team will create and update a project website to serve as a source for updates and information.
The website will be updated to include factsheets and other information during each round of public engagement.
There will also be updates at the end of the project, to communicate project outcomes and next steps. The website
is expected to be hosted on Caltrain’s server and is anticipated that Kimley-Horn will make the necessary website
updates. The City’s website will include a link to the project website on Caltrain’s site. Other information to be
included on the project website will include:
Project background
Information such as timelines and key milestones
Events and key process points, as applicable
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VIDEO CONTENT AND SOCIAL MEDIA
A key component of our digital outreach will be the development of short, 60-second video clips designed for social
media platforms. These videos will:
Provide an overview of the project, including its goals, timeline, and benefits.
Highlight examples of successfully grade separation projects that are similar in nature, demonstrating
best practices and community benefits.
Feature visualizations, animations, and before-and-after comparisons to illustrate the potential
improvements.
These videos will be shared on the Project’s website, as well as Caltrain’s and the City’s YouTube and media
channels, to maximize visibility and engagement.
INTERACTIVE AND ACCESSIBLE CONTENT
To promote inclusivity, digital materials will be developed with accessibility in mind, offering translated content,
captions for videos, and alternative text for images. Where possible, interactive tools such as online surveys, story
maps, and virtual open houses will be used to encourage public input.
Through these digital communication efforts, the Engagement Team aims to build community awareness,
encourage participation, and foster informed discussions about the grade separation project.
D ATA S YNTHESIS
The Public Involvement Report is a comprehensive document that serves as a key tool in our outreach and
engagement plan. It systematically captures the strategies, methods, and outcomes of public participation efforts,
ensuring transparency, accountability, and continuous improvement in our engagement processes. This report will
help assess the effectiveness of the Project’s outreach activities, document community feedback, and inform
decision-making processes to align with the needs and concerns of community partners.
SYNTHESIZING COMMUNITY FEEDBACK AND TRACKING RESPONSES
To ensure transparency, consistency, and responsiveness in our community engagement messaging, the
Engagement Team will implement a structured approach to synthesizing public feedback and tracking inquiries.
This approach will enhance our ability to address community concerns effectively.
COMMUNITY INQUIRY TRACKER
A centralized list will be developed to compile all community questions received during outreach events, online
engagement, and other forms of public input. The tracking tool would be a matrix to easily track questions/comments
and categorize them per general topics. This list will categorize questions by topic, including but not limited to:
Design and engineering considerations
Environmental impacts
Traffic and safety
Project timeline and funding
Community impact and mitigation measures
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The Community Inquiry Tracker will be updated by the Engagement Team regularly and serve as a reference to
ensure consistent messaging across various engagement activities.
TRACKING SYSTEM FOR RESPONSES AND FOLLOW -UPS
To facilitate timeline and accurate responses, the engagement team will establish a tracking process that:
Assigns each inquiry to the appropriate technical expert or project team member.
Documents responses provided to the public to maintain consistency in communication.
Tracks follow-ups to ensure that all questions are adequately addressed and that stakeholders receive
timely updates.
INTEGRATION WITH PUBLIC RECORDS R E QUESTS
The Community Inquiry Tracker will also support compliance with public records requests by maintaining a well-
documented repository of community inquiries and responses. This structured approach will enhance accountability
and streamline the process for responding to formal information request. Implementing these measures will foster
greater trust and engagement with the community while ensuring that feedback is effectively synthesized by the
Engagement Team and addressed throughout the outreach process.
FINAL REPORT SUMMARY
After Step 2 engagement, the Engagement Team will publish a comprehensive summary report detailing the
outcomes of the engagement process. This report will include:
Summary of Presented Materials: A detailed overview of the design alternatives and refinements
presented during the final design stage. This section will outline key changes based on prior community
feedback and technical analysis.
Community Feedback Integration: Documentation of how community input influenced design decisions,
including a summary of recurring themes, key concerns, and any adjustments made to accommodate
stakeholder feedback.
Next Steps and Project Timeline: A clear outline of the next phases of the project, including expected
timelines for decision-making, permitting, and construction activities.
Future Public Engagement Opportunities: Information on any remaining opportunities for public
involvement during the construction phase, including methods for providing ongoing input, scheduled
meetings, and how to stay informed through project updates.
By structuring Step 2 engagement in this manner, the Engagement Team aims to facilitate meaningful discussions,
gather targeted feedback, and ensure transparency in the decision-making process as the project advances.
LANGUAGE TRANSLATION SERVICES
During planned rounds of engagement, public-facing materials will be provided in Spanish, in addition to English.
Project website users will have the option of using Google Translate and factsheets will also be provided in Spanish.
Should translated materials or translation services be required in a different language, these will be provided on an
as needed basis.
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C OMMUNITY P ARTNER E NGAGEMENT
COMMUNITY PARTNER IDENTIFICATION PROCESS
Kimley-Horn, in collaboration with the City and Caltrain will curate a comprehensive list of community partners, local
organizations, and the public to ensure inclusive outreach for each planned event. This process will involve:
City Input and Recommendations: The City will provide insights on key stakeholders, including
neighborhood associations, business groups, advocacy organizations, and underrepresented
communities.
Community Partnerships: Engagement specialists will work with local organizations and advisory
groups to identify trusted voices and outreach networks that can help distribute information effectively.
Event-Specific Targeting: Each event will have a tailored outreach approach, ensuring the right
audiences—such as residents near specific crossings, transit users, or businesses—are engaged.
Public Engagement Records: Previous community participation, feedback, and expressed interests will
inform future outreach, ensuring consistent and meaningful engagement.
Community partner groups are categorized into the following three categories:
Education Institutions – Institutions within proximity to project sites
Local Businesses – Local businesses within proximity to project sites
Community Groups – Local community groups within proximity to project sites
By leveraging City resources, local networks, and community insights, the engagement team will ensure outreach
is inclusive, effective, and tailored to each event’s objectives.
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CONCLUSION
The Plan ensures that public participation remains at the core of the Project, fostering transparency, inclusivity, and
collaboration. By implementing a structured approach to outreach, engagement, and feedback collection, the plan
creates meaningful opportunities for the community to stay informed, share input, and shape Project decisions.
By working together, the Engagement Team can create solutions that enhance safety, mobility, and quality of life
for residents.
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Rail Committee
Staff Report
From: City Manager
Report Type: STUDY SESSION
Lead Department: Transportation
Meeting Date: May 20, 2025
Report #:2503-4416
TITLE
South Palo Alto Bike/Ped Connectivity: Provide Feedback on Initial Crossing Opportunity
Locations and Draft Design Priorities and Evaluation Criteria
RECOMMENDATION
Staff recommends the Rail Committee review the Existing Conditions Report (Attachment A)
and Draft Design Priorities and Evaluation Criteria Memorandum (Attachment B) for the South
Palo Alto Bike/Ped Connectivity Project and provide feedback on the initial crossing opportunity
locations and draft design priorities and evaluation criteria.
EXECUTIVE SUMMARY
The purpose of the South Palo Alto Bike/Ped Connectivity Project (Project) is to assess ways to
improve bicycle and pedestrian access across the rail corridor in the southern portion of the
City. This Project will develop locally preferred locations and design concepts for two new
grade-separated bicycle and pedestrian crossings of the Caltrain corridor in south Palo Alto
(south of Oregon Expressway) and identify bicycle and pedestrian enhancements that link the
proposed crossing sites to the existing/future bike/ped networks. The goal is to complete 15%
of designs for two locally preferred alternatives, develop an implementation plan and funding
strategy, and secure funding for the next phases of work, including preliminary engineering,
environmental documentation, final design, and construction.
Staff recommends the Rail Committee review the Existing Conditions Report (Attachment A)
and Draft Design Priorities and Evaluation Criteria Memorandum (Attachment B) and provide
feedback on the initial crossing opportunity locations and draft design priorities and evaluation
criteria.
BACKGROUND
The Caltrain corridor runs north-south, parallel to Alma Street in the City of Palo Alto, resulting
in a barrier for east-west travel by all modes. The City of Palo Alto 2030 Comprehensive Plan
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(2022), Bicycle and Pedestrian Transportation Plan (BPTP) (2012), Rail Corridor Study (2013),
and Midtown Connector Feasibility Study (2016) have identified a critical need for additional
grade-separated bicycle and pedestrian rail crossings, particularly in the southern portion of the
City. The 2030 Comprehensive Plan Program T1.19.3 aims to "increase the number of east-west
pedestrian and bicycle crossings across Alma Street and the Caltrain corridor, particularly south
of Oregon Expressway." The 2012 BPTP identifies the 1.3-mile distance between the California
Avenue Bike/Ped Tunnel and Meadow Drive as the longest stretch of track barrier in Palo Alto
and recommends a grade-separated pedestrian and bicycle crossing of the Caltrain corridor and
Alma Street in the vicinity of Matadero Creek/Park Boulevard or between Margarita Avenue
and Loma Verde Avenue. The 2013 Rail Corridor Study and 2016 Midtown Connector Feasibility
Study identify rail crossing opportunities and potential alignments to provide grade-separated
crossings for bicyclists and pedestrians.
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1 September 9, 2024 City Council Meeting for Contract Authorization (Consent Calendar Item 7)
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the BPTP Update. As a result, this Project is being completed in close collaboration with the
ongoing BPTP Update.
ANALYSIS
•Local Destinations: Many local destinations such as parks, community centers, libraries,
bus lines, residential areas, shopping centers, after-school destinations, and schools may
be served by additional bike and pedestrian rail crossings. Key destinations within the
Study Area include, but are not limited to, Mitchell Park (Park, Community Center, and
Library), Robles Park, Hoover Park, Cubberley Community Center, El Carmelo
Elementary School, Fairmeadow Elementary School, Jane L. Stanford Middle School, and
Herbert Hoover Elementary School. Other major destinations outside the Study Area
include Stanford University, Stanford Research Park, downtown and commercial
corridors, and Caltrain stations.
•Literature Review: A review of 35 relevant planning documents, programs, and policies
was conducted to understand the current planning context for walking and biking in
south Palo Alto as well as prior efforts completed in the Study Area.
•Demographics: According to American Community Survey 2022 Five-Year Estimates,
approximately 19,700 residents live in the Study Area, representing roughly 29% of the
City of Palo Alto’s total population. Of the Study Area population, 46% is White, 41%
Asian, approximately 8% Hispanic or Latino, and 3% other race.
•Land Use and Population Growth: Key growth areas within and near the Study Area
include the Midtown and Ventura neighborhoods, San Antonio Road corridor, and along
El Camino Real.
•Transportation Network: Distances between existing bike and pedestrian crossings of
the Caltrain corridor in south Palo Alto are as follows:
•1.3 mile between the California Avenue Bike/Ped Tunnel and Meadow Drive;
•0.3 mile between Meadow Drive and Charleston Road; and
•0.8 mile between Charleston Road and the San Antonio Caltrain Station Bike/Ped
Underpass.
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Several notable ongoing and upcoming transportation improvement projects in the
Study Area include the rail grade separation projects for vehicles, bicyclists, and
pedestrians at Meadow Drive and Charleston Road, and the El Camino Real bikeway
currently being installed by Caltrans in Palo Alto, Mountain View and Los Altos.
•Commuting Behavior: Around 59% of workers living in the Study Area commute by car
(drive-alone and carpool combined), which is more than 56% of total residents citywide
that commute by car.
•Bike/Ped Counts at At-Grade Crossings: On weekdays, pedestrian activity is generally
highest in the afternoon hours between 3 PM and 6 PM. On weekends, pedestrian
activity is more variable, with the highest activity levels in the morning and early
afternoon. On weekdays, bicycle activity peaks during the morning and afternoon peak
periods (7-9 AM and 4-6 PM), with a jump in activity around 8 AM on Meadow Drive
westbound. On weekends, bicycle activity remains relatively steady throughout the day.
Similar to pedestrian activity, there is higher bicycle activity on Meadow Drive than
Charleston Road.
•Bike/Ped Accessibility: Pedestrians using the existing rail crossings in and near the Study
Area must travel further to access destinations near Park Boulevard, Margarita Avenue,
and Loma Verde Avenue. Bicyclists using existing rail crossings in and near the Study
Area are generally able to travel anywhere throughout the Study Area in less than 30
minutes (round trip).
•Big Data Analysis: Approximately 30% of all trips using the existing rail crossing in and
near the Study Area are less than five miles in length. Origins and destinations of shorter
distance trips (under five miles) for all travel modes currently using the existing rail
crossings in and near the Study Area are more concentrated near the California Avenue
Caltrain Station, California Avenue, Ventura Neighborhood, and San Antonio Center in
Mountain View.
•Safety: Oregon Expressway, Meadow Drive, Charleston Road, Middlefield Road, and El
Camino Real are designated as High-Injury Corridors due to their disproportionately high
number of crashes.
•Environment: Several creeks flow through the Study Area, classified as a Moderate Risk
zone for flooding.
The Existing Conditions Report identifies the following crossing opportunity locations for
further exploration based on the review of previous plans and studies, right-of-way constraints,
and on-site field visits conducted by the Project team.
A. Near Colorado Avenue and Page Mill Road
B. Around Matadero Creek (El Dorado Avenue to Loma Verde Avenue)
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C. Near Barron Creek
D. Between Meadow Drive and Charleston Road
E. Near Adobe Creek
F. Near San Antonio Road
Figure 1: Potential Crossing Locations
Draft Design Priorities and Evaluation Criteria Memorandum
The Draft Design Priorities and Evaluation Criteria Memorandum (Attachment B) presents the
initial design priorities and evaluation criteria that will be used to guide the development and
selection of rail crossing designs and bicycle and pedestrian infrastructure options
(“alternatives”) for the Project. It also outlines the engagement and evaluation processes that
will be utilized to inform the assessment of designs and subsequent selection of two locally
preferred alternatives.
The following draft design priorities were identified based on the Project needs, goals, benefits,
and themes documented in several plans and studies previously prepared by the City, which are
summarized in the Literature Review Section (starting on page 11) of the Existing Conditions
Report (Attachment A).
•Improve Mobility: Prioritize locations and designs that integrate with surrounding
networks, provide access to critical destinations, serve the most users, and
accommodate current and future transportation needs.
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•Enhance User Experience: Design facilities guided by the prioritization of the most
vulnerable populations, and create safe, well-lit spaces that are comfortable to access
and utilize.
•Maximize Ease of Construction: Minimize potential for disruption during construction
and complexity of design, while ensuring that construction costs and maintenance costs
are feasible to implement given reasonably expected project funding.
•Enhance Visual Appeal: Ensure that newly constructed facilities enhance the sense of
community by incorporating public art, public spaces, and attractive structures.
•Minimize Community Impacts: Limit potential impacts on existing neighborhoods,
including the amount of space needed (parking spaces, roads, and buildings are
minimally affected) and impacts on the environment.
Draft evaluation criteria presented in the following table are grounded in key community
priorities and linked to specific evaluation criteria, with measurable outcomes, that are
proposed to be used for the analysis of alternatives. The proposed design priorities and draft
evaluation criteria are presented in the following table.
Table 1. Draft Design Priorities and Evaluation Criteria
Draft Design
Priority
Draft Evaluation
Criteria**
Description
Accessibility Walk and bike access within 5-, 10-, and 15-minutes
Demand#Projected number of users during the weekday peak hourImprove
Mobility
Capacity#Width of facility and ability of rail crossing to accommodate
people walking and biking
Crossing length#Total length of the crossing facility
Crossing
elevation#Total change in elevation of the crossing facility
Pedestrian and
bicyclist comfort
Extent to which existing bicycle and pedestrian network would
provide low-stress access to the rail crossing(s)
Enhance User
Experience
Personal security
Alignment of rail crossing facility and approaches with Crime
Prevention Through Environmental Design (CPTED) best
practices
Utility and right-
of-way impacts
Level of disruption to existing and planned utilities, extent of
relocations required, extent of right-of-way impactsMaximize
Ease of
Construction Construction
cost#Rough order of magnitude of project construction cost
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Draft Design
Priority
Draft Evaluation
Criteria**
Description
Operations and
maintenance cost
Magnitude of projected annual cost of operations and
maintenance
Enhance
Visual Appeal
Public space and
green
infrastructure
Potential to create new public spaces and implement green
infrastructure
Environmental
impacts
Extent to which crossing impacts the environment – impervious
areas, creeks/drainage, sea level rise, wetlands, and sensitive
habitats
Parcel impacts#Number of parcels needed, all or in part, to construct crossing
and approach facilities
Minimize
Community
Impacts
Parking and
driveway impacts
Extent to which rail crossings affect existing vehicle parking and
access to existing driveways
Notes:
**Criteria marked with an “#” are quantitative and a specific value will be presented. Criteria without a “#” are qualitative and will be scored
using a scale of high, medium, and low, for its performance.
These initial design priorities and evaluation criteria are presented for feedback as part of Phase
1 engagement activities. Based on the feedback received, the Project team will refine the
design priorities and corresponding evaluation criteria that will guide subsequent efforts.
Next Steps
With input from the community and Rail Committee, City/School Transportation Safety
Committee (CSTSC), Pedestrian and Bicycle Advisory Committee (PABAC), Parks and Recreation
Commission (PRC), Planning and Transportation Commission (PTC), and City Council, the Project
team will develop and present concept designs and corresponding network modifications for up
to eight alternatives at various locations along the rail corridor. The Project team will evaluate
each alternative using the selected design priorities and evaluation criteria established in Phase
1. The final evaluation criteria will be selected based on how well they facilitate evaluation
against the overarching set of established priorities and how effectively they differentiate
alternatives. Each of the eight crossing alternatives will be evaluated against the same subset of
criteria and scored quantitatively with a specific value reported or qualitatively using a scale of
high, medium, and low, for its performance. The results of this evaluation will be presented in
Phase 2 engagement activities, and community input will be sought to inform refinement and
selection of the two preferred alternatives for the rail crossing and associated bicycle and
pedestrian infrastructure improvements in south Palo Alto.
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FISCAL/RESOURCE IMPACT
STAKEHOLDER ENGAGEMENT
•Phase 1 Community Engagement: Establish Design Priorities (Spring 2025)
•Phase 2 Community Engagement: Feedback on Alternatives (Fall 2025)
•Phase 3 Community Engagement: Review Public Draft Report (Spring 2026)
•Phase 4 Community Engagement: Council Adopt Final Report (Summer 2026)
•Project Website: A dedicated project webpage (paloalto.gov/bikepedcrossings) was
created in September 2024 where City staff will continue to post the latest information
and provide regular updates on upcoming meetings/events and ways to engage on the
Project.
•Project Fact Sheet: A project fact sheet was made available on the project webpage in
March 2025.
•Small Group Discussions: Eight small group discussions were held virtually from
November through December 2024 at the start of this Project. These one-hour virtual
meetings included members of the CSTSC and PABAC, and representatives of Caltrain,
Palo Alto Unified School District, Californians Advocating Responsible Rail Design
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(CARRD), Silicon Valley Bicycle Coalition (SVBC), and Stanford University. The discussions
covered a range of topics including background and vision, alignments and design,
evaluation criteria, community engagement, challenges and opportunities. There was
unified support for easy, well-lit, accessible, safe crossing of the railroad tracks and Alma
Street that is suitable for all ages, reducing the long distances between crossings that
exist today. Participants encouraged the team to think about crossing locations from a
network perspective to consider not only the crossing location but how to get to/from
that point. Participants also shared a list of criteria and priorities for consideration in the
evaluation of alternatives.
•Community Workshop: A Transportation Planning Workshop was held at Palo Alto’s
Mitchell Park Community Center (El Palo Alto Room) on April 2, 2025, from 6-7:30 p.m.,
where participants were able to provide feedback on the Bicycle and Pedestrian
Transportation Plan Update and South Palo Alto Bike/Ped Connectivity Project. Nearly
50 community members attended. The majority of community members prioritized
crossings that improved mobility, with additional comments emphasizing their general
support for the project and interest in its fast completion. A crossing around Matadero
Creek (El Dorado Avenue to Loma Verde Avenue) was the most popular location
amongst attendees, followed by a crossing between Meadow Drive and Charleston
Road.
•Online Survey: An online survey is currently available to share input that will help select
preferred crossing locations, designs, and improvements. The survey will be open from
April 1, 2025 through May 15, 2025 and is available on the project webpage at
paloalto.gov/bikepedcrossings. As of April 30, 2025, over 290 responses have been
submitted.
•Pop-Up Events: Pop-up events have included and will continue to include tabling
participation at community-wide events, such as California Ave Third Thursdays, Earth
Day Festival, and Bike to Work Day.
•Presentations at Standing Meetings (tentative): Staff will engage City Boards/
Commissions/Committees and a Council committee, including the PABAC, CSTSC, Rail
Committee, PTC, and PRC in April and May 2025, with a Council meeting planned to
occur later this Summer.
Feedback from Phase 1 will be used to establish design priorities and evaluation criteria for
crossing alternatives to be presented in Phase 2 (Fall 2025). Sketch-level concept designs for
eight alternatives will be presented for feedback in Phase 2 along with the evaluation results.
Phase 2 Community Engagement – Feedback on Alternatives (Fall 2025)
During the Phase 2 next engagement phase, the Project team will present concept designs and
corresponding network modifications for up to eight alternatives and evaluate each alternative
using the selected design priorities and evaluation criteria established in Phase 1. The initial
eight alternatives and completed evaluation will be shared with the community for review and
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feedback during Phase 2 via small group discussions, pop-up events, a second online survey, a
second community workshop, and discussions at standing meetings in Fall 2025. The feedback
received during this phase will result in the refinement and selection of two preferred
alternatives that will be carried forward for 15% concept design.
ENVIRONMENTAL REVIEW
ATTACHMENTS
APPROVED BY:
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(Updated April 22, 2025)
SOUTH PALO ALTO
BIKE/PED CONNECTIVITY
EXISTING CONDITIONS REPORT
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South Palo Alto
Bike/Ped Connectivity
Existing Conditions Report
Prepared for:
City of Palo Alto
Prepared by:
Kittelson & Associates, Inc.
Project Number 30555
April 2, 2025
(Updated April 22, 2025)
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Contents
Introduction ............................................................................................................ 2
Significance of the Project ....................................................................................... 2
Study Area ................................................................................................................ 3
Local Destinations .................................................................................................... 5
Key Findings ............................................................................................................. 8
Literature Review .................................................................................................. 11
Demographics ....................................................................................................... 14
Land Use and Population Growth ........................................................................... 19
Transportation Network......................................................................................... 23
Roadway Network .................................................................................................. 23
Pedestrian Facilities ............................................................................................... 28
Bicycle Facilities ..................................................................................................... 31
Major Barriers ........................................................................................................ 33
Transit Facilities ..................................................................................................... 37
Safe Routes to School ............................................................................................ 41
Future Transportation Network Improvements ..................................................... 43
Commuting Behavior ............................................................................................. 46
Traffic Counts ........................................................................................................ 48
Bicycle and Pedestrian Accessibility ........................................................................ 53
Big Data Analysis .................................................................................................... 57
Data Source ............................................................................................................ 57
Trips Distances by Crossing Location ..................................................................... 57
Origin/Destination Patterns ................................................................................... 59
Travel Mode ........................................................................................................... 62
Trip Purpose ........................................................................................................... 62
Safety .................................................................................................................... 65
Environment .......................................................................................................... 68
Water Bodies and Flood Risk ................................................................................. 68
Geotechnical Hazards ............................................................................................ 68
Wildfire .................................................................................................................. 68
Overhead Utilities .................................................................................................. 69
Potential Crossing Locations .................................................................................. 72
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LIST OF FIGURES
Figure 1: Study Area ...................................................................................................................................... 4
Figure 2: Study Area Key Demographic Data ............................................................................................... 14
Figure 3: Existing Zoning and Future Housing Sites ..................................................................................... 20
Figure 4: Population Growth ....................................................................................................................... 21
Figure 5. Existing Roadway Network Speed Limits ...................................................................................... 25
Figure 6. Existing Roadway Network Number of Lanes (Both Directions) ................................................... 26
Figure 7. Existing Pavement Conditions ...................................................................................................... 27
Figure 8. Existing Pedestrian Facilities ......................................................................................................... 29
Figure 9. Existing Intersection Control......................................................................................................... 30
Figure 10. Existing Bicycle Facilities ............................................................................................................. 34
Figure 11: Bicyclist Level of Traffic Stress – Roadway Segments ................................................................. 35
Figure 12: Bicyclist Level of Traffic Stress - Intersections ............................................................................ 36
Figure 13. Existing Transit Facilities ............................................................................................................. 39
Figure 14. Existing Bus Ridership Activity .................................................................................................... 40
Figure 15. Suggested Routes to Schools ...................................................................................................... 42
Figure 16: Pedestrian Activity at Existing At-Grade Crossing Locations ....................................................... 49
Figure 17: Bicycle Activity at Existing At-Grade Crossing Locations ............................................................. 50
Figure 18: Vehicle Activity at Existing At-Grade Crossing Locations ............................................................ 51
Figure 19: 5-, 10-, and 15-Minute Walking Access to Closest Rail Crossing ................................................ 54
Figure 20: 5-, 10-, and 15-Minute Bike Access to Closest Rail Crossing....................................................... 55
Figure 21: Length of Person Trips (All Travel Modes) Crossing Caltrain Tracks in/near Study Area ............ 58
Figure 22: Daily Person Trips (All Travel Modes) under Five Miles by Crossing Location ............................ 58
Figure 23: Concentration of Person Trips (All Travel Modes) Under Five Miles - Weekday ........................ 60
Figure 24: Concentration of Person Trips (All Travel Modes) Under Five Miles - Weekend ........................ 61
Figure 25: Person Trips under Five Miles by Travel Mode (Trip Percent) .................................................... 62
Figure 26: Person Trips under Five Miles by Trip Purpose (Trip Percent) .................................................... 63
Figure 27: Pedestrian and Bicyclist Collisions (2018 – 2022) ....................................................................... 66
Figure 28: Flood Risk ................................................................................................................................... 70
Figure 29: Potential Crossing Locations ....................................................................................................... 74
Figure 30: Caltrain, Public and Private Right of Way ................................................................................... 75
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LIST OF TABLES
Table 1: Race and Ethnicity ......................................................................................................................... 15
Table 2: Language Spoken at Home ............................................................................................................ 15
Table 3: CalEnviroScreen 4.0 Percentile Ranking per Census Tract ............................................................. 17
Table 4. VTA Bus Routes Summary .............................................................................................................. 38
Table 5: Commuting Characteristics in the Study Area ............................................................................... 46
Table 6: Bicycle and Pedestrian 12- Hour Counts (7 AM to 7 PM) .............................................................. 48
APPENDICES
Appendix A: Literature Review Memorandum
Appendix B: Traffic Counts
Appendix C: Replica Data Details
Appendix D: Field Visit Summary
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Introduction
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Introduction
The City of Palo Alto is conducting the South Palo Alto Bike/Ped Connectivity Project (“Project”) to assess
ways to improve bicycle and pedestrian access across the rail corridor in the southern portion of the City.
The purpose of this Project is to develop community-supported locations and design concepts for two
new grade-separated bicycle and pedestrian crossings of the Caltrain corridor and Alma Street in south
Palo Alto (i.e., south of Oregon Expressway/Page Mill Road). The Project will also identify context-
sensitive bicycle and pedestrian enhancements that link the proposed grade-separated crossing sites to
the existing/future bicycle and pedestrian networks within the neighborhoods adjacent to the railroad
tracks. The Project will engage the community to select preferred crossing locations, designs, and
network improvements, and develop an implementation plan and funding strategy for future
construction.
This Project is initiating the Project Identification, Project Initiation and Conceptual Planning phases of the
Caltrain Corridor Crossings Delivery Guide (2024)1, during which alternatives will be developed and refined
based on feedback from the community. The goal is to complete 15 percent of designs for two locally
preferred alternatives, develop an implementation plan and funding strategy, and secure funding for
Preliminary Design, Final Design and Construction phases.
This Existing Conditions Report establishes a detailed baseline condition for the Project using a
combination of quantitative and qualitative data from various sources. The technical information
presented in this Report will be used to identify opportunities, inform design options, and evaluate
alternatives for potential grade-separated bicycle and pedestrian crossings of the rail corridor in south
Palo Alto.
SIGNIFICANCE OF THE PROJECT
Located along the San Francisco Peninsula within Santa Clara County, south Palo Alto is generally defined
as the area within the City of Palo Alto limits south of Oregon Expressway/Page Mill Road. It is adjacent to
the cities of Mountain View and Los Altos and is well-connected to the greater Bay Area through US
Route 101, El Camino Real, and Caltrain’s Peninsula Corridor. This location places south Palo Alto at the
heart of a major innovation and technology hub, with easy access to Stanford University, downtown Palo
Alto, and major employment centers in Silicon Valley. As of the 2020 Census, the south Palo Alto area has
a population of approximately 36,600 residents, which represents around 54% of the City of Palo Alto’s
total residential population of approximately 69,000.2
The Caltrain corridor runs north-south parallel to Alma Street through the City of Palo Alto and serves as a
vital transportation mode for the Bay Area. However, the rail line also creates a physical divide and barrier
for east-west travel by all modes within the community. Currently, there are two at-grade crossings for
pedestrians and cyclists in the southern portion of the City at Charleston Road and Meadow Drive. There
is also the California Avenue Bike/Ped Tunnel located to the north of Oregon Expressway/Page Mill Road
and San Antonio Caltrain Station Bike/Ped Underpass (near Mayfield Avenue) located to the south in the
1 Caltrain Corridor Crossings Delivery Guide (2024): https://www.caltrain.com/media/34937
2 This represents the southern Palo Alto area which is bigger than the Study Area discussed in the later sections.
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City of Mountain View. The Oregon Expressway/Page Mill Road undercrossing and San Antonio Road
overcrossing do not contain dedicated bike or pedestrian facilities. Distances between existing bike and
pedestrian crossings of the Caltrain corridor in south Palo Alto are as follows:
◼ 1.3 mile between the California Avenue Bike/Ped Tunnel and Meadow Drive;
◼ 0.3 mile between Meadow Drive and Charleston Road; and
◼ 0.8 mile between Charleston Road and the San Antonio Caltrain Station Bike/Ped Underpass.
The City of Palo Alto Comprehensive Plan 2030 (2022), City of Palo Alto 2012 Bicycle and Pedestrian
Transportation Plan (“BPTP”) (2012), and Palo Alto Rail Corridor Study (2013) have identified a critical
need for additional grade-separated bicycle and pedestrian crossings, particularly in the southern portion
of the City. This Project seeks to advance previously identified needs of the community and will identify
locations and design concepts where two new grade-separated bicycle and pedestrian pathways across
the Caltrain railroad tracks may be constructed in south Palo Alto. Creating a path above or below the
tracks will improve bicycle and pedestrian connectivity in support of the mobility and sustainability goals
of the City.
The City is in the process of updating the Bicycle and Pedestrian Transportation Plan (“BPTP Update”),
which began in 2023 and will be finalized by the end of 2025. The BPTP Update addresses the citywide
bicycle and pedestrian network, including in the southern portions of Palo Alto. This Project will
implement recommendations of the current BPTP and will advance designs and provide connections to
the citywide bike and pedestrian network to be identified in the BPTP Update. As a result, this Project is
being completed in close collaboration with the ongoing BPTP Update.
The City of Palo Alto has also been actively pursuing rail grade separation projects to separate the Caltrain
railroad tracks from vehicles, bikes, and pedestrians at three major crossings: Churchill Avenue, Meadow
Drive, and Charleston Road. 3 It’s important to note that the Project will focus on locations and design
concepts for two new grade-separated bicycle and pedestrian crossings, which are in addition to the rail
grade separation projects at Meadow Drive and Charleston Road.
STUDY AREA
Figure 1 shows the Study Area limits as well as the surrounding area, roadway network, and points of
interest. The Study Area extends between Oregon Expressway/Page Mill Road to the north, San Antonio
Road to the south, Middlefield Road to the east, and El Camino Real to the west. While the Project
focuses primarily on selecting preferred rail crossing locations and developing design concepts, the Study
Area extends beyond the Caltrain corridor to assess the bike and pedestrian connections to/from the
future railroad crossings. Data from outside the Study Area has been incorporated into the existing
conditions review in recognition that future railroad crossings have the potential to impact travel
citywide.
3 Connecting Palo Alto. For more information, visit: https://connectingpaloalto.com/
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Figure 1: Study Area
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LOCAL DESTINATIONS
The Study Area includes a variety of destinations such as parks, community centers, libraries, bus lines,
residential areas, shopping centers, after-school destinations, and schools that may be served by
additional rail crossings. Key destinations within the Study Area include, but are not limited to, Mitchell
Park, Robles Park, Hoover Park, Cubberley Community Center, El Carmelo Elementary School, Jane L.
Stanford Middle School, and Herbert Hoover Elementary School. Other major destinations outside the
Study Area include Stanford University, Stanford Research Park, downtown and commercial corridors,
and Caltrain stations. These destinations are described in the following sections.
PARKS, COMMUNITY CENTERS, AND LIBRARIES
The Study Area includes several parks, community centers, and libraries that provide recreational spaces,
cultural programs, and public services for residents. These facilities serve as key destinations for families,
students, and community members, many of whom rely on walking or biking.
Mitchell Park Library and Community Center
Located along Middlefield Road, Mitchell Park is one of the largest community parks in south Palo
Alto. It offers multiple recreational facilities, including sports fields, playgrounds, picnic areas, and a
dog park. It serves as a central gathering space with public library services, meeting rooms, and
community programs. Mitchell Park Library and Community Center are located approximately 2,000
feet east of the Caltrain corridor, and many community members walk or bike to access it.
Robles Park
Robles Park is located approximately 200 feet west of the Caltrain corridor. It is a neighborhood
park that offers open green space, a playground, and picnic areas. The park serves as a popular
destination for families and is used for outdoor activities and community gatherings.
Hoover Park
Adjacent to residential neighborhoods, Hoover Park is a recreational facility that features sports
fields, tennis courts, and a playground. The park is a key destination for organized sports, casual
recreation, and social gatherings, supporting an active lifestyle for the surrounding community. It is
located approximately 2,500 feet east of the Caltrain corridor.
Cubberley Community Center
Located near Middlefield Road, Cubberley Community Center serves as a key public facility offering
a wide range of recreational, educational, and cultural programs. The center houses community
meeting spaces, art studios, and athletic facilities, making it a vital resource for residents. It is a
frequent destination for pedestrians and cyclists in the Study Area. It is located approximately 1,700
feet east of the Caltrain corridor.
Ventura Community Center
Located at 3990 Ventura Court, Ventura Community Center Park is a key recreational space in Palo
Alto’s Ventura neighborhood. The park was renovated with new play structures, accessible swings,
improved irrigation, and a fenced community garden. The community center serves as the
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headquarters for the Palo Alto Community Child Care (PACCC) and the Sojourner Truth Infant-
Toddler Program. The centrality of the community center attracts many neighborhood locals, who
take advantage of the park’s amenities throughout the day.
SCHOOLS
There are many schools surrounding the Study Area that generate significant bicycle and pedestrian
activity. Many students, faculty and staff rely on active transportation and transit options to access these
schools:
Henry M. Gunn High School
Henry M. Gunn High School is located along Arastradero Road. It is approximately 1.3 miles from
the Caltrain corridor. For the period between 2019 and 2024, approximately 68% of the students
used green transportation (walk, bike scooter, bus, or carpool) to commute to school, while the
remaining students used family cars.
Jane L. Stanford Middle School
Jane L. Stanford (JLS) Middle School is one of the largest middle schools in Palo Alto. It is located
along East Meadow Drive, approximately 1,700 feet from the Caltrain corridor. For the period
between 2019 and 2024, approximately 75% of the students used green transportation to commute
to school, while the remaining students used family cars.
El Carmelo Elementary School
Located along Bryant Street near Loma Verde Avenue, El Carmelo Elementary School serves as a key
educational institution within the Study Area. The school is approximately 900 feet from the Caltrain
corridor and is surrounded by residential neighborhoods. For the period between 2019 and 2024,
approximately 60% of the students used green transportation to commute to school, while the
remaining students used family cars.
Herbert Hoover Elementary School
Located along East Charleston Road, Herbert Hoover Elementary School is a neighborhood school
serving families in south Palo Alto. The school is surrounded by residential areas, with many
students walking or biking daily. It is located approximately 1,700 feet from the Caltrain corridor.
For the period between 2019 and 2024, approximately 34% of the students used green
transportation to commute to school, while the remaining students used family cars.4
Other Nearby Schools
There are other schools surrounding the Study Area that generate significant bicycle and pedestrian
activity. Many students, faculty and staff rely on active transportation and transit options to access
these schools as well. The Study Area is surrounded by multiple elementary and middle schools,
including Keys School – Elementary Campus, Keys School – Middle Campus, Challenger School,
Imagination Lab School, and Athena Academy. Additionally, several preschools in the vicinity
4 Office of Transportation, Safe Routes to School. For more information, visit:
https://www.cityofpaloalto.org/Departments/Transportation/Safe-Routes-to-School
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provide early childhood education and contribute to local pedestrian activity, including Edgewood
House Preschool, Learning Links Preschool, Children's Preschool Center, Acme Children's Center, Mi
Casita de Espanol Preschool, Ellen Thacher Children's Center, Heffalump School, and Sojourner
Truth Child Development Center.
STANFORD UNIVERSITY
Stanford University, located northwest of the Study Area, is a private research university and a major
educational and employment hub. The university attracts students, faculty, staff, and visitors from across
the region, influencing transportation patterns and economic activity within the Study Area. Its presence
contributes to the high level of pedestrian and bicycle traffic in nearby communities.
STANFORD RESEARCH PARK
Located west of the Study Area, Stanford Research Park is a major employment center that hosts
numerous technology and research firms. The park spans 700 acres and is home to over 150 companies,
including those in biotechnology, clean energy, and information technology. It influences travel patterns
within the Study Area, as many employees rely on bicycle and pedestrian infrastructure to access transit
and surrounding neighborhoods.
COMMERCIAL CORRIDORS SURROUNDING THE STUDY AREA
Several major arterials in south Palo Alto serve as commercial corridors that provide essential services,
retail, and dining options for residents, employees, and visitors. El Camino Real is a key corridor with a
mix of shopping centers, restaurants, and office spaces, attracting both local and regional traffic. As a
high-volume roadway, it presents challenges for bicycle and pedestrian accessibility. San Antonio Road,
another significant corridor, connects Palo Alto with Mountain View and features a range of commercial
establishments, including grocery stores, retail centers, and business offices. Middlefield Road functions
as a neighborhood-serving corridor with small businesses, cafés, and essential services that cater to
nearby residents. These commercial areas are important destinations that generate pedestrian and
bicycle activity in the Study Area.
DOWNTOWN PALO ALTO AND CALIFORNIA AVENUE BUSINESS DISTRICT
While located outside of south Palo Alto, Downtown Palo Alto and the California Avenue Business District
serve as major commercial and employment centers within the City. They provide a mix of retail,
restaurants, office spaces, shopping, and professional services.
CALTRAIN STATIONS
South Palo Alto is served by two Caltrain stations that provide regional transit connections:
California Avenue Station
Located north of the Study Area, this station serves the California Avenue Business District and
provides connections to downtown Palo Alto. It is a frequent destination for pedestrians and
bicyclists.
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San Antonio Station
Located near the southern boundary of the Study Area, this station provides access to major
commercial and residential developments in Palo Alto and Mountain View. It is a key transit hub for
local and regional commuters.
BUS TRANSIT LINES
The Study Area is served by several bus routes that provide connectivity to key destinations. Key routes
operating in or near the Study Area include VTA Routes 21, 22, 89, 101, 102, 103, 104, and 522, as well as
school shuttle services. Routes 22 and 522 provide frequent all-day service along El Camino Real. Route
89 connects California Avenue Caltrain Station to the Palo Alto VA Hospital. Additionally, a school shuttle
service operates within the Study Area, VTA Route 288. Additional details are provided in the Transit
Facilities section of this report.
KEY FINDINGS
Key findings from the remainder of this Existing Conditions Report are summarized below:
◼ City of Palo Alto Comprehensive Plan (2022), Program T1.19.3 aims to "increase the number of
east-west pedestrian and bicycle crossings across Alma Street and the Caltrain corridor,
particularly south of Oregon Expressway."
◼ City of Palo Alto Bicycle and Pedestrian Transportation Plan (BPTP) (2012) identifies the 1.3-mile
distance between the California Avenue Bike/Ped Tunnel and Meadow Drive as the longest
stretch of track barrier in Palo Alto. The Plan recommends a grade-separated pedestrian and
bicycle crossing of the Caltrain corridor and Alma Street in the vicinity of Matadero Creek/Park
Boulevard or between Margarita Avenue and Loma Verde Avenue.
◼ City of Palo Alto Rail Corridor Study (2013) and Midtown Connector Feasibility Study (2016)
identify bicycle and pedestrian rail crossing opportunities and potential crossing alignments.
◼ Approximately 19,700 residents live in the Study Area, representing roughly 29 percent of the
City of Palo Alto’s total population.
◼ Key growth areas within the City of Palo Alto include the Midtown and Ventura neighborhoods,
San Antonio Road corridor, and along El Camino Real within and near the Study Area.
◼ Dedicated bicycle and pedestrian crossings of the railroad in and near the Study Area include:
o California Avenue Bike/Ped Tunnel
o Meadow Drive
o Charleston Road
o San Antonio Caltrain Station Bike/Ped Underpass
◼ Existing pedestrian facilities are largely continuous in the Study Area and include sidewalks,
crosswalks, Pedestrian Hybrid Beacons, and bridges. However, several notable gaps exist in the
pedestrian network at certain locations, such as along Alma Street where a sidewalk is only
present on the east side. Oregon Expressway/Page Mill Road and the San Antonio Road
interchange features a high-speed vehicle environment and limited pedestrian facilities for
crossing the tracks.
◼ Existing bicycle facilities support active travel in the Study Area with key routes providing access
across the railroad tracks, including along Meadow Drive and Charleston Avenue. However, there
are currently no continuous bike facilities across the railroad tracks on Oregon Expressway and
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San Antonio Road. The Study Area includes several low-to-moderate traffic stress level bikeways.
However, several notable roadways in the Study Area are considered to have high traffic stress
for cyclists, including along Alma Street, Oregon Expressway/Page Mill Road, San Antonio Road,
and El Camino Real.
◼ Several VTA bus routes and two Caltrain stations (California Avenue and San Antonio) provide
public transit access to the Study Area.
◼ The City’s Safe Routes to School (SRTS) program offers suggested routes to and from schools
within and near the Study Area through Walk and Roll Maps.
◼ Several notable on-going and upcoming transportation improvement projects in the Study Area
include the rail grade separation projects for vehicles, bicyclists, and pedestrians at Meadow
Drive and Charleston Road, and the El Camino Real bikeway currently being installed by Caltrans
in Palo Alto, Mountain View and Los Altos.
◼ Around 59% of workers living in the Study Area commute by car (drive-alone and carpool
combined), which is more than 56% of total residents citywide that commute by car.
◼ On weekdays, pedestrian activity is highest in the afternoon hours between 3 PM and 6 PM. On
weekends, pedestrian activity is more variable, with the highest activity levels in the morning and
early afternoon. On weekdays, bicycle activity peaks during the morning and afternoon peak
periods (7-9 AM and 4-6 PM), with a jump in activity around 8 AM on Meadow Drive westbound.
On weekends, bicycle activity remains relatively steady throughout the day. Similar to pedestrian
activity, there is higher bicycle activity on Meadow Drive than Charleston Road.
◼ Pedestrians using the existing rail crossings in and near the Study Area must travel further to
access destinations near Park Boulevard, Margarita Avenue and Loma Verde Avenue.
◼ Bicyclists using existing rail crossings in and near the Study Area are generally able to travel
anywhere throughout the Study Area in less than 30 minutes (round trip).
◼ Approximately 30% of all trips using the existing rail crossing in and near the Study Area are less
than five miles in length.
◼ Origins and destinations of shorter distance trips (under five miles) for all travel modes currently
using the existing rail crossings in and near the Study Area are more concentrated near the
California Avenue Caltrain Station, California Avenue, Ventura Neighborhood, and San Antonio
Center in Mountain View.
◼ The Draft Safety Action Plan designates Oregon Expressway, Meadow Drive, Charleston Road,
Middlefield Road, and El Camino Real as High-Injury Corridors due to their disproportionately
high number of crashes.
◼ Several creeks flow through the Study Area, classified as a Moderate Risk zone for flooding.
Based on the information presented in this Existing Conditions Report, the following crossing opportunity
locations have been identified for further exploration:
A. Near Colorado Avenue and Page Mill Road
B. Around Matadero Creek (El Dorado Avenue to Loma Verde Avenue)
C. Near Barron Creek
D. Between Meadow Drive and Charleston Road
E. Near Adobe Creek
F. Near San Antonio Road
The City plans to gather feedback on these locations to help determine the preferred crossing sites.
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Literature Review
A review of 35 relevant planning documents, programs, and policies was conducted to understand the
current planning context for walking and biking in south Palo Alto as well as prior efforts completed in the
Study Area. The detailed literature review is presented in Appendix A, which includes policies and
programs, common themes related to needs and challenges, relevant projects and planning studies
recommended in prior and ongoing plans, and community feedback and public input.
There is strong alignment in the visions and goals across the documents reviewed, particularly
surrounding sustainability, climate action, and enhancing active transportation (people walking and
biking) in Palo Alto. This Project aims to build comfortable and convenient connections for people walking
and biking across the rail corridor in south Palo Alto.
For instance, the City of Palo Alto Comprehensive Plan (2022) establishes long-term policies to enhance
mobility, safety, and connectivity while addressing the impacts of rail operations. Key transportation
policies focus on pursuing grade separation at rail crossings (Policy T-3.15), maintaining pedestrian and
bicycle access at-grade crossings with safety studies (Policy T-3.16), and improving existing crossings for
safety and accessibility (Policy T-3.17). The plan also prioritizes Safe Routes to School programs (Policy T-
6.4) and supports regional bicycle and pedestrian connectivity projects, such as the Bay Trail and Santa
Clara Countywide Bicycle System (Policy T-8.8). This project advances Program T1.19.3 from the
Comprehensive Plan, Program T1.19.3 aims to "increase the number of east-west pedestrian and bicycle
crossings across Alma Street and the Caltrain corridor, particularly south of Oregon Expressway."
The Bicycle and Pedestrian Transportation Plan (BPTP) (2012) proposes a network of bikeways, pedestrian
paths, and crossings to close system gaps and promote active transportation. Key recommendations
included maintaining and expanding Class I trails, improving substandard Class II bike lanes for safety and
visibility, and adding sharrows and signage on Class III shared roadways. The Plan also focuses on
enhancing bicycle connections with neighboring jurisdictions, removing unnecessary stop signs on bicycle
boulevards, and implementing intersection improvements such as curb extensions, markings, and
signalization changes to improve safety for bicyclists and pedestrians. Additionally, it prioritize s across-
barrier connections to enhance access to key destinations while addressing implementation challenges.
The Plan recommends the City study potential pedestrian and bicycle undercrossing or overcrossing
alternatives of the Caltrain corridor and Alma Street in the vicinity of Matadero Creek/Park Boulevard or
between Margarita Avenue and Loma Verde Avenue to close a 1.3 mile gap between existing crossings at
California Avenue and Meadow Drive, greatly improving east-west connectivity in conjunction with other
improvements.
The Sustainability and Climate Action Plan (S/CAP) (2022) aligns with these efforts by integrating
transportation safety and sustainability goals. Goal T-6 aims to provide a safe environment for all road
users, including motorists, pedestrians, and bicyclists, and supports measures such as adult crossing
guards at warranted school crossings. While Goal T-8 focuses on influencing regional transportation
policies to reduce congestion and greenhouse gas emissions, improve bicycle connections between Palo
Alto and neighboring communities in Santa Clara and San Mateo counties, and reduce barriers to
bicycling and walking at freeway interchanges, expressway intersections, and railroad grade crossings.
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The City of Palo Alto Rail Corridor Study (2013) envisions a vibrant, safe, and transit-rich corridor that
enhances connectivity between the east and west portions of the City while promoting walkable, bicycle-
friendly environments. The study goals include constructing rail improvements in a below-grade trench;
ensuring the highest possible safety at all rail crossings and mitigate rail impacts on neighborhoods, public
facilities, schools and mixed-use centers; connecting the east and west portions of the City through an
improved circulation network that binds the City together in all directions; providing improved access to
parks, recreation facilities and schools and assess future needs for these facilities ; and ensuring that
infrastructure development keeps pace with the City’s growth.
The Midtown Connector Feasibility Study (2016) evaluates three viable alignments to enhance bicycle and
pedestrian connectivity in Palo Alto including the Matadero Creek Shared-Use, the Matadero Creek
Pedestrian-Only Path, and the Loma Verde Avenue Class IV Protected Bikeway. The study further explores
how a trail facility along Matadero Creek could connect to existing bicycle and pedestrian networks,
despite significant barriers such as US 101 and the Caltrain corridor. Potential solutions include utilizing
existing and proposed crossings, building a new undercrossing or overcrossing of Alma Street and the
Caltrain tracks, or enhancing the current US 101 undercrossing.
The Caltrain Business Plan (2022) outlines a strategic vision for the railroad's evolution over the next two
decades. Central to this plan is the 2040 Long Range Service Vision, which aims to transform Caltrain into
a modern, electrified transit system offering frequent, all-day service. This vision includes infrastructure
enhancements, expanded service schedules, and improved access to accommodate a broader range of
travelers. The plan also emphasizes organizational growth to effectively deliver major capital projects and
expanded operations throughout the corridor.
Additionally, major needs and challenges identified in the literature review are summarized below:
◼ Improving Safety and Connectivity: Addressing east-west bicycle connections, pedestrian and
bicycle crossings at major barriers, and optimizing at-grade railroad crossings for safety and
accessibility, particularly for students and commuters.
◼ Mitigating Congestion and Train Noise Impacts: Reducing traffic stress and congestion caused by
increased train frequencies from Caltrain electrification and future High-Speed Rail integration.
◼ Design and Maintenance Challenges: Balancing 24-hour path access with safety and maintenance,
enhancing surface conditions for bicyclists, and addressing operational and state-of-repair needs.
◼ Community and Funding Barriers: Finding community-supported solutions for grade separation
while overcoming funding, regulatory, and design hurdles.
◼ Behavioral and Security Concerns: Tackling issues like failure to yield to pedestrians, bicycle theft,
and trail safety at night.
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Demographics
The Study Area has a population of about 19,700 according to the American Community Survey (ACS)
Year 2022 estimates, representing roughly 29 percent of the City of Palo Alto’s total population.5 The
working age population cohort (ages 20 to 64) represents the largest population segment at 62 percent
of the total population. Almost all (97 percent) of the Study Area residents aged 25 years or older have at
least a high school diploma. Figure 2 shows key demographic data.
Figure 2: Study Area Key Demographic Data
Source: American Community Survey (ACS) 2022-year estimates
Note: Values are rounded to the nearest 10 or 100. Percentages are rounded to the nearest whole number.
Table 1 presents the racial and ethnic composition of the Study Area. Forty-six percent of the Study Area
population is White, around eight percent of the population identify as Hispanic or Latino, forty-one
percent Asian, and three percent some other race. Chinese, Asian Indian and Korean constitute the major
Asian groups in the City.
Table 2 shows the language spoken at home for the population five years of age and older. Approximately
50 percent of the population exclusively speaks English at home. Asian and Pacific Island languages are
spoken by about 28 percent of the population, with around 35 percent of this group not speaking English
proficiently. Other Indo-European languages account for 13 percent, of which roughly 12 percent do not
speak English very well.
5 A portion of the Study Area includes Mountain View, and the demographics data includes the portion of Mountain View east of
El Camino Real and north of San Antonio Road.
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Table 1: Race and Ethnicity
Race and Hispanic Origin Study Area Population Percentage of Study Area
White 9,100 46%
Black or African American 240 2%
American Indian and Alaska Native 80 1%
Asian 8,000 41%
Asian Indian 1,400 7%
Chinese 5,200 27%
Filipino 190 1%
Japanese 230 1%
Korean 630 3%
Vietnamese 150 1%
Other Asian 250 1%
Native Hawaiian and Other Pacific Islander 0 0%
Two or more races 1,620 8%
Hispanic or Latino (of any race) 1,500 8%
Not Hispanic or Latino 18,200 92%
Total Population 19,700
Source: U.S. Census Bureau, 2022 ACS 5-Year Estimates, Table DP05
Note: Values are rounded to the nearest 10 or 100. Percentages are rounded to the nearest whole number.
Table 2: Language Spoken at Home
Language Study Area
Population
Percentage Percentage who speak
English less than "very
well"
Speak only English 9,800 52% Not Applicable
Speak a language other than English 9,130 48% 29%
Spanish 1,050 5% 32%
Other Indo-European
languages
2,500 13% 12%
Asian and Pacific Island
languages
5,320 28% 35%
Other languages 280 2% 9%
Total Study Area Population 5
years and over
18,900 14%
Source: U.S. Census Bureau, 2022 ACS 5-Year Estimates, Table S1601
Note: Values are rounded to the nearest 10 or 100. Percentages are rounded to the nearest whole number.
The Metropolitan Transportation Commission (MTC) measures equity including income, race, English
proficiency, age, disability, and car-ownership to develop Equity Priority Communities (EPC), or
designated Census tracts with a significant concentration of underserved populations. While Palo Alto
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does not have designated EPCs, adjacent communities that include Stanford University and Census blocks
in Mountain View bounded by Rengstorff Avenue, Crisanto Avenue, Escuela Avenue, and El Camino Real,
located 0.7 mile from south of San Antonio Road, are designated as EPCs per Plan Bay Area 2050+.6 The
Study Area includes some Census blocks where between 10%-20% of the population lives below the
poverty line. These are located near the Alma Street, East Meadow Drive, and Charleston Road areas.7
Disadvantaged Communities (DAC) represent Census tracts that experience high levels of pollution and/or
Census tracts that are federally recognized as tribal areas. Similar to EPCs, there are no DACs in the City of
Palo Alto.
The California Communities Environmental Health Screening Tool (CalEnviroScreen 4.0)8 developed by
the California Office of Environmental Health Hazard Assessment (OEHHA) to help identify California
communities disproportionately burdened by multiple sources of pollution. The tool utilizes existing
environmental, health, and socioeconomic data to rank Census tracts based on 20 distinct indicators. It
provides an assessment of environmental burdens such as air quality, toxic releases, hazardous waste,
and drinking water, as well as health-related burdens including asthma, low birth weight, and
cardiovascular disease across Census tracts statewide.
In general, the higher the score, the more impacted a community is by pollution burdens and population
vulnerabilities. Designated disadvantaged communities are those communities that scored within the
highest 25 percent of Census tracts across California. Census tracts at the 75th percentile and above are
considered to experience high burdens. For the Study Area, Census tracts located east of Alma Street are
below the 10th percentile overall, which indicates relatively low cumulative environmental and health
impacts. Census tracts west of Alma Street are at the 14th percentile overall. For asthma burdens, the
Census tracts in the Study Area are at the 5th percentile. Table 3 depicts the percentile rankings for the
Census tracts within the Study Area. Midtown (Census Tract 5109) percentiles indicate low cumulative
environmental and health burdens. It has a pollution burden percentile of 30 and an asthma burden
percentile of 3. Similarly, Fairmeadow (Census Tract 5108.02) and South of Midtown (Census Tract
5108.03) also have low CalEnviroScreen percentiles, with pollution burden percentiles of 28 and 7,
respectively, and asthma burden percentiles of 5.
In contrast, Ventura (Census Tract 5107) and Charleston Meadows (Census Tract 5094.01) rank in the
14th percentile overall, which indicates slightly higher environmental burdens compared to other areas
within the Study Area. Ventura has a pollution burden percentile of 50, the highest among the listed
Census tracts, while Charleston Meadows has a pollution burden percentile of 33. However, both Census
tracts maintain relatively low asthma burdens at 3 and 2 percentiles, respectively.
6 Plan Bay Area 2050 Plus: 7aiii_24_1232_Attachment_B_2024_Equity_Priority_Communities_Map.pdf
7 Palo Alto Safety Action Plan: https://www.cityofpaloalto.org/Departments/Transportation/Transportation-Projects/Safety-
Action-Plan
8 CalEnviroScreen 4.0: https://experience.arcgis.com/experience/11d2f52282a54ceebcac7428e6184203/page/CalEnviroScreen-
4_0/
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Table 3: CalEnviroScreen 4.0 Percentile Ranking per Census Tract
Census Tract Neighborhood CalEnviroScreen
4.0 Percentile1
Pollution
Burden
Percentile2
Asthma3 Traffic Impacts4
5109 Midtown 1 30 3 38
5108.03 South of
Midtown
6 7 5 24
5108.02 Fairmeadow 4 28 5 55
5107 Ventura 14 50 3 71
5094.01 Charleston
Meadows
14 33 2 72
Source: CalEnviroScreen 4.0
1. CalEnviroScreen 4.0 is the latest iteration of the California Communities Environmental Health Screening Tool.
2. Pollution Burden Percentile represents the average of exposure indicators such as pm2.5 and ozone and environmental
indicators such as cleanup sites and groundwater threats.
3. Exposure to traffic and outdoor air pollutants, including particulate matter, ozone, and diesel exhaust, can trigger asthma
attacks.
4. Traffic impacts represent the vehicles in a specified area, resulting in human exposures to chemicals that are released into
the air by vehicle exhaust.
Note: Values represent the percentile ranking of Census tract
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Land Use and Population Growth
The Study Area includes several diverse neighborhoods including Ventura, Midtown, St. Claire Gardens,
South of Midtown, Greendell, San Alma, Greenmeadow, Walnut Grove, Fairmeadow, Charleston
Meadows, and Monroe Park. Land use varies across these areas, with a mix of single-family and multi-
family residential, commercial, office, and service uses. Midtown contains the Midtown Shopping Center,
Hoover Park, and El Carmelo Elementary School, while Fairmeadow and Greenmeadow near Alma Street
are primarily low-density residential with some multi-family units. North Ventura, west of the railroad
tracks, features a combination of residential, office, and retail uses, with commercial activity
concentrated along El Camino Real, Lambert Avenue, Park Boulevard and Oregon Expressway/Page Mill
Road. Office uses are mainly located along Page Mill Road and Park Boulevard, while the area south of
Lambert Avenue transitions back to low-density residential and includes Robles Park.
The City of Palo Alto 2023-2031 Housing Element (2024)9 identified several sites within the Study Area for
future housing development. Most of these sites are located in the Ventura Neighborhood, San Antonio
Road and along the El Camino Real as shown in Figure 3. Figure 4 illustrates the projected population
growth approved by the City of Palo Alto 2023-2031 Housing Element. Key growth areas include the areas
surrounding San Antonio Road, Ventura Neighborhood, and Midtown.
City Council adopted the North Ventura Coordinated Area Plan (NVCAP) in 2024 which aims to add to the
City’s supply of multi-family housing, including market rate, affordable, “missing middle” and senior
housing in a walkable, mixed-use, transit-accessible neighborhood, with retail and commercial services.10
Furthermore, the City will be conducting the San Antonio Road Area Plan over the next three years, which
will establish the goals, policies, and implementation programs for land use, transportation, critical
infrastructure, and other improvements to support the increase the capacity for development along San
Antonio Road.
9 City of Palo Alto 2023-2031 Housing Element (2024). Retrieved from https://paloaltohousingelement.com/wp-content/uploads/2024/08/Palo-
Alto-Housing-Element.pdf
10 City of Palo Alto North Ventura Coordinated Area Plan (NVCAP) (2024). Retrieved from https://www.cityofpaloalto.org/Departments/Planning-
Development-Services/Housing-Policies-Projects/NVCAP
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Figure 3: Existing Zoning and Future Housing Sites
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Figure 4: Population Growth
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Transportation Network
The transportation network within the Study Area consists of roadways, pedestrian facilities, bicycle
facilities, and transit facilities, as well as the suggested walk and roll routes from the City’s Safe Routes to
School Program. Future transportation network improvements relevant to the Study Area are also
summarized in this section.
ROADWAY NETWORK
The Study Area roadway network consists of various street types, each with specific posted speed limits
ranging from less than 25 mph to 45 mph. The Study Area includes a mix of signal-controlled
intersections, stop-controlled intersections, and Pedestrian Hybrid Beacons11 for traffic control. Figure 5
and Figure 6 depict the existing roadway network, including speed limits and the number of lanes for
both directions, while Figure 7 illustrates the pavement conditions within the Study Area. The pavement
conditions within the Study Area are generally good to excellent. However, some segments along local
and collector roads show fair to poor conditions, particularly, Loma Verde Avenue east of Alma Street and
the local and collector roads surrounding Park Boulevard west of Alma Street.
As documented in the City of Palo Alto Truck Route Map12, the Study Area includes a network of
designated truck routes that facilitate freight movement while managing impacts on local streets. Alma
Street, San Antonio Road, and El Camino Real are designated as through truck routes, which allow
continuous truck travel across the City. Oregon Expressway/Page Mill Road is considered a local truck
route, which operates between 7:00 AM and 7:00 PM. It has limited-access routes for deliveries and
commercial vehicle traffic within the City.
El Camino Real (State Route 82) is the western border of the Study Area and runs parallel to the Caltrain
rail corridor. The roadway is classified by the City of Palo Alto Comprehensive Plan 2030 (2022)13 (or Comp
Plan) as a north-south arterial extending from Interstate 880 (I-880) in San Jose to Interstate 280 (I-280)
in San Francisco. Within the Study Area, it runs from Embarcadero Road to Oregon Expressway/Page Mill
Road and features a six-lane cross-section. The posted speed limit along El Camino Real ranges from 25 to
40 mph, with a 35-mph speed limit within the Study Area.
Middlefield Road runs parallel to the Caltrain rail corridor. The roadway is classified by the City’s Comp
Plan as a north-south residential arterial. It extends from San Antonio Road in Palo Alto to Veterans
Boulevard in Redwood City. It is primarily a four-lane undivided roadway with a posted speed limit of 25
mph.
Alma Street is classified by the City’s Comp Plan as a north-south arterial which extends from the San
Antonio Road at the border of Mountain View (where it changes name to Central Expressway in Mountain
View) to Palo Alto Avenue at the border of Menlo Park. Alma Street is primarily a four-lane undivided
11Pedestrian Hybrid Beacon (PHB) is a traffic control device designed to help pedestrians safely cross higher-speed roadways
12 City of Palo Alto Truck Route Map: https://www.cityofpaloalto.org/files/assets/public/v/2/transportation/wide-load-
permits/truck-route-map-city-of-palo-alto.pdf
13 City of Palo Alto Comprehensive Plan 2030 (2022): https://www.cityofpaloalto.org/files/assets/public/v/4/planning-amp-
development-services/3.-comprehensive-plan/comprehensive-plan/full-comp-plan-2030_with-dec19_22-amendments.pdf
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roadway with the speed limit within the Study Area ranging from 25-35 mph. Alma Street also runs
adjacent and parallel to Caltrain’s right-of-way.
San Antonio Road serves as a key connection between Mountain View and Los Altos. It forms the
southern border of the Study Area. The roadway is classified by the City’s Comp Plan as an east-west
arterial which extends from US 101 in Palo Alto to Foothill Expressway in Los Altos. It features a four-lane
cross-section throughout the Study Area.
Oregon Expressway/Page Mill Road is classified by the City’s Comp Plan as an east-west expressway that
runs from Middlefield Road and El Camino Real within the Study Area. This expressway also connects
residents to US 101 in the east and I-280 in the west. Oregon Expressway/Page Mill Road is a four-lane
divided roadway with a posted speed limit of 35 mph. Oregon Expressway/Page Mill Road is currently a
grade-separated crossing primarily for vehicles.
Meadow Drive is classified by the City’s Comp Plan as an east-west local/collector which runs from Fabian
Way to El Camino Way and features a two-lane cross-section throughout the Study Area.
Charleston Road is classified by the City’s Comp Plan as a residential arterial from El Camino Real to
Fabian Way and as an arterial from Fabian Way to U.S. 101. Charleston Road features a four-lane cross-
section from El Camino Real to Wright Place, transitioning to a two-lane cross-section from Wright Place
to U.S. 101. The posted speed limit along Charleston Road within the Study Area is 25 miles per hour.
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Figure 5. Existing Roadway Network Speed Limits
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Figure 6. Existing Roadway Network Number of Lanes (Both Directions)
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Figure 7. Existing Pavement Conditions
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PEDESTRIAN FACILITIES
Figure 8 depicts the existing pedestrian facilities including sidewalks, crosswalks, Pedestrian Hybrid
Beacons, and bridges in the Study Area. Sidewalks within the Study Area are largely continuous, and most
streets feature at least four- to five-foot wide sidewalks on both sides of the roadway. However, notable
gaps exist in certain locations. On Alma Street, sidewalks are present only on the east side of the road.
Additionally, gaps are also observed along Miller Avenue and its adjacent residential streets. Several
local/collector roads, particularly near Miller Avenue in the southwest part of the Study Area have no
sidewalks on both sides of the road. In limited locations, sidewalks have landscape strips separating the
sidewalk from the roadway; however, in most locations there is no landscaping or trees in the public
right-of-way.
Marked crosswalks exist at signalized intersections along major roads including Middlefield Road, Alma
Street, Meadow Drive, Charleston Road, Oregon Expressway/Page Mill Road, San Antonio Road, and El
Camino Real. These signalized intersections are marked with standard crosswalks and have pedestrian-
activated countdown signal heads. Each intersection provides at least one crosswalk and pedestrian signal
head. Unsignalized intersections throughout the Study Area are primarily side-street two-way or all-way
stop-controlled and most do not have marked crosswalks. Figure 9 shows the existing intersection control
in the Study Area.
Within the Study Area, Oregon Expressway/Page Mill Road features a high-speed vehicle environment
and limited pedestrian facilities, which makes it challenging for pedestrians to cross the tracks. Meadow
Drive and Charleston Road are signalized intersections with marked crosswalks and pedestrian crossing
phases, which provide controlled crossings at the intersections. However, they feature at-grade railroad
crossings with pedestrian gates and warning signals.
Outside the Study Area, the California Avenue Bike/Ped Tunnel is a dedicated grade separated crossing
beneath the rail tracks located adjacent to the California Avenue Caltrain Station. San Antonio Road does
not provide direct pedestrian or bicycle crossings over the Caltrain tracks and Central Expressway, despite
its proximity to the San Antonio Caltrain Station, shopping areas, and higher-density housing. As a result,
pedestrians and cyclists rely on alternative routes to navigate across the tracks and the expressway.
Pedestrians and cyclists familiar with the area typically use one of three options:
◼ San Antonio Caltrain Station Bike/Ped Underpass (located 0.1 mile south of San Antonio Road)
and either the signalized crossing of the expressway at Mayfield Avenue in Mountain View or at
San Antonio Avenue in Palo Alto.
◼ Dirt track and pedestrian pathway from the west side of San Antonio Road (west of the Caltrain
tracks) and the flight of stairs north of the Caltrain station to get to the signalized intersection
across Central Expressway at San Antonio Road.
◼ Some cyclists choose to use the San Antonio Caltrain Station Bike/Ped Underpass in combination
with the underpass across San Antonio Road near the entrance of the Waymo campus.
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Figure 8. Existing Pedestrian Facilities
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Figure 9. Existing Intersection Control
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BICYCLE FACILITIES
The City of Palo Alto has made significant progress in developing a robust bicycle network. Figure 10
shows existing bicycle facilities. The existing bicycle network includes a variety of facility types including:
◼ Class I Bikeways (Shared Use Paths): A path physically separated from motor vehicle traffic by an
open space or barrier, used by bicyclists, pedestrians, joggers, skaters, and other non-motorized
travelers.
◼ Class II Bikeways (Bike Lanes): A travel lane on a roadway that has been set aside by striping and
pavement markings for the preferential or exclusive use of bicyclists.
o Class IIa (Standard Bike Lane): A conventional one-way striped bicycle lane.
o Class IIb (Buffered Bike Lane): An enhanced bike lane that includes a painted buffer zone,
providing additional space between bicyclists and adjacent vehicle lanes or parked cars.
◼ Class III Bikeways (Bike Routes): are designated by signage where bicyclists share travel lanes with
motor vehicle traffic.
o Class IIIa (Bike Routes): A shared roadway where bicyclists and motor vehicles coexist,
identified solely by signage without additional pavement markings.
o Class IIIb (Bike Boulevard): A shared roadway optimized for bicycle travel through traffic
calming measures and signage, creating a safer and more comfortable environment for
cyclists.
◼ Class IV Bikeways (Separated Bikeway) is for the exclusive use of bicycles and includes a
separation between the bikeways and adjacent vehicle traffic. The physical separation may
include flexible posts, grade separation, inflexible physical barriers, or on-street parking.
The Study Area includes a bicycle network that supports active transportation, with key routes providing
access across major corridors. Meadow Drive and Charleston Road have Class II bike lanes on both sides
of the roadway and serve as the primary east-west bicycle connections across the Caltrain corridor in the
Study Area. There are currently no continuous bike facilities on Oregon Expressway and San Antonio
Road. San Antonio Road has a partial Class III shared roadway (sharrows) in certain segments; however, it
does not provide a strong east-west bicycle connection due to its limited dedicated bike facilities and high
vehicle speeds, which create a challenging environment for cyclists.
Loma Verde Avenue, Colorado Avenue, and Margarita Avenue are additional east-west bicycle routes in
the Study Area. Loma Verde Avenue has Class II bike lanes and Colorado Avenue has a combination of
Class II bike lanes and Class III bike routes. Margarita Avenue is a Class III bike route.
There are currently no continuous bike facilities on Alma Street and El Camino Real. However, several
north-south bikeways are provided within the Study Area. Middlefield Road has a Class II bike lane from
Montrose Avenue to Loma Verde Avenue. Bryant Street consists of a combination of Class IIIa bike routes
and Class III bike boulevards, while Cowper Street features a Class III bike route. Park Boulevard has a
combination of Class II bike lane and Class III bike routes north of Matadero Avenue. Additionally, the
Caltrans El Camino Real Bikeway Project is currently under construction and is expected to include a
combination of Class II and Class IV bike facilities along El Camino Real throughout Mountain View, Los
Altos, and Palo Alto.
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Within the Study Area, Oregon Expressway/Page Mill Road presents a significant challenge for cyclists due
to high-speed vehicle traffic and the lack of dedicated bicycle infrastructure. Additionally, at Meadow
Drive and Charleston Road, cyclists must navigate at-grade railroad crossings equipped with pedestrian
gates and warning signals. However, without dedicated bicycle treatments, they are required to cross
alongside vehicular traffic.
Bicyclist Comfort
Bicycle Level of Traffic Stress (LTS) is an evaluation that quantifies the amount of discomfort that people
feel when bicycling near motor vehicle traffic. It assigns a numeric stress level to roadway segments,
trails, and intersections based on attributes such as motor vehicle speed, volume, number of lanes, lane
blockage, on-street parking, and ease of intersection crossing. The higher the LTS, the higher the
expected discomfort for the rider traveling along the facility. The four LTS ratings are as follows:
◼ LTS 1 - Very Low Traffic Stress: Most children feel comfortable bicycling.
◼ LTS 2 - Low Traffic Stress: The mainstream adult population feels comfortable bicycling.
◼ LTS 3 - Moderate Traffic Stress: Bicyclists who are considered "enthused and confident" but still
prefer having their own dedicated space feel comfortable while bicycling.
◼ LTS 4 - High Traffic Stress: Only "strong and fearless" bicyclists feel comfortable while bicycling.
These routes have high-speed limits, multiple travel lanes, limited or non-existent bicycle lanes
and signage, and large distances to cross at intersections.
Figure 11 illustrates the results of the Segment Bicycle LTS analysis from the BPTP Update. Based on this
analysis, the most stressful segments in the Study Area are located along Alma Street, Oregon
Expressway/Page Mill Road, San Antonio Road, Middlefield Road, Meadow Drive, Charleston Road, El
Camino Real, Lambert Avenue, and parts of Park Boulevard.
Bicycle LTS at intersections results are depicted in Figure 12. Among the 975 intersections in the Study
Area, 129 are signalized and are assigned LTS 1 as traffic signals help manage traffic flow and provide
safer crossings for cyclists. The remaining low stress intersections are generally located on residential
streets characterized by low speeds and minimal vehicular activity. Many high-stress intersections are
associated with El Camino Real, Alma Street, San Antonio Road, Middlefield Road, Charleston Road, Loma
Verde Avenue, Lambert Avenue, Oregon Expressway/Page Mill Road, and parts of Park Boulevard, which
are also high-stress corridors as stated above.
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MAJOR BARRIERS
The BPTP Update examined the effects of five linear barriers in the Study Area (Oregon Expressway/Page
Mill Road, Adobe Creek, Barron Creek, Matadero Canal, and Caltrain rail lines).
◼ Oregon Expressway/Page Mill Road: The Oregon Expressway/Page Mill Road does not result in
significantly longer pedestrian crossing paths due to the presence of crossing facilities. Crossings
are generally located every quarter mile, with facilities such as curb ramps, crosswalks, and traffic
signals.
◼ Adobe Creek: Pedestrians may need to walk longer paths (often more than twice the straight-line
crossing distance) to pass around Adobe Creek, especially to the south. Opportunities to cross
Adobe Creek in the Study Area include Middlefield Road, Charleston Road, Alma Street, and El
Camino Real. There is also a walking- and bicycling-only connection: a walkway connecting the
Miller Avenue cul-de-sac to Wilkie Way.
◼ Barron Creek: While some paths across Barron Creek are longer than the straight-line crossing
distance, they are usually less than double that distance due to the availability of closely spaced
crossing facilities. Crossing opportunities are generally located every 1,100 feet north of Waverly
Street and every 300 feet to the south; sidewalks are provided on streets crossing the creek.
◼ Matadero Creek: People may need to take detours of up to 1.75 times the straight-line crossing
distance to cross Matadero Creek. However, the presence of the rail line along the southern tip of
the creek’s above-ground alignment further increases the crossing distance in that area.
◼ Rail Line: Crossing distances varies along the length of the rail line in Palo Alto. Distances between
existing bike and pedestrian crossings of the Caltrain corridor in south Palo Alto are as follows:
o 1.3 mile between the California Avenue Bike/Ped Tunnel and Meadow Drive;
o 0.3 mile between Meadow Drive and Charleston Road; and
o 0.8 mile between Charleston Road and the San Antonio Caltrain Station Bike/Ped
Underpass.
The 1.3 mile distance between the existing California Avenue Bike/Ped Tunnel and the at-grade
crossing at Meadow Drive represents the longest stretch of track barrier in Palo Alto.
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Figure 10. Existing Bicycle Facilities
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Figure 11: Bicyclist Level of Traffic Stress – Roadway Segments
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Figure 12: Bicyclist Level of Traffic Stress - Intersections
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TRANSIT FACILITIES
The Santa Clara Valley Transportation Authority (VTA) operates bus services in Palo Alto. Within the Study
Area, there are currently 18 bus stops along El Camino Real, 10 bus stops along Meadow Drive, 18 bus
stops along Middlefield Road, three bus stops along Loma Verde Avenue, and three bus stops along San
Antonio Road. School routes operate on Charleston Road, Meadow Drive, Loma Verde Avenue,
Middlefield Road, and Waverly Street, while no shuttle routes operate in the Study Area. Additionally,
Palo Alto Link is an on-demand rideshare service that allows users to book rides within most areas of the
City.
Table 4 describes the services and frequency during the week and weekend for buses that operate within
the Study Area. Figure 13 illustrates the existing VTA transit routes and bus stop locations and Figure 14
shows the VTA’s 2024 average weekday ridership activity (boardings and alightings) by stop/station in the
Study Area14. Bus stops along El Camino Real and Middlefield Road have the highest ridership activity in
the Study Area. The highest average weekday ridership activity in the Study Area occurs along El Camino
Real at the Arastradero Road and Charleston Road bus stops. These bus stops have ridership activity
exceeding 100 passengers per day and are served by both Route 22 and Route 522.
Caltrain, a regional commuter rail system, provides service from San Francisco to Gilroy by the Peninsula
Joint Powers Board. Two Caltrain stations are located near the Study Area: (1) California Avenue Station
located approximately 650 feet north of Oregon Expressway/Page Mill Road and (2) San Antonio Caltrain
Station located approximately 450 feet south of San Antonio Road. Caltrain recently electrified its right-
of-way between San Francisco and San Jose, installing an overhead wire (catenary) system on the tracks.
Additionally, future California High-Speed Rail trains require a new four-track section in Palo Alto15, which
will extend between Churchill Avenue and Meadow Drive to bypass Caltrain trains.
14 VTA's 2024 Ridership by Stop & Station: https://data.vta.org/pages/ridership-by-stop
15 Caltrain Business Plan Summary Report: https://www.caltrain.com/media/24042/download?inline
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Table 4. VTA Bus Routes Summary
Route
Number
From To Weekdays Weekends
Operating
Hours
Headway
(minutes)
Operating
Hours
Headway
(minutes)
21 Stanford
Shopping
Center
Santa Clara
Transit
Center
5:30 am –
10:00 pm
varies 7:40 am -
9:20 pm
varies
22 Palo Alto
Transit
Center
Eastridge All Day 15 All Day 15
89 California
Ave Caltrain
Palo Alto VA
Hospital
6:30 am -
6:10 pm
varies No Service No Service
522 Palo Alto
Transit
Center
Eastridge 5:00 am –
11:30 pm
10-20
(varies)
6:00 am –
11:50 pm
10-20
(varies)
School
Shuttle 288
Veterans
Hospital
Middlefield
and Colorado
3:40 pm –
4:50 pm
20 No Service No Service
School
Shuttle 288
Middlefield
and Colorado
Gunn High
School
8:10 am –
8:50 am
-- No Service No Service
School
Shuttle 288L
Veterans
Hospital
Louis and
Fielding
3:40 pm –
4:50 pm
20 No Service No Service
School
Shuttle 288
Louis and
Elbridge
Gunn High
School
8:10 am –
8:50 am
-- No Service No Service
Source: VTA Schedule, 2024; VTA School Trippers 2024
Notes:
1. Operating hours are rounded to the nearest ten minutes.
2. Route 288M is scheduled to be discontinued, but Route 288 will be extended from Middlefield & Colorado to Loma Verde &
Waverley to cover some of the former 288M route.
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Figure 13. Existing Transit Facilities
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Figure 14. Existing Bus Ridership Activity
Note: Activity includes boardings and alightings.
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SAFE ROUTES TO SCHOOL
The local Safe Routes to School (SRTS) Partnership between the City, the Palo Alto Unified School District
(PAUSD), and the Palo Alto Council of PTAs (PTAC) works to reduce risk to students in route to and from
school and encourages more families to choose alternatives to driving solo more often .16 Within the
Study Area, several schools benefit from the SRTS program including JLS Middle School, El Carmelo
Elementary School, and Herbert Hoover Elementary School. The SRTS program offers Walk and Roll Maps
for each school to highlight the suggested routes that prioritize safety and convenience. These maps are
designed to assist parents and students in exploring healthy, active commute options. Figure 15 shows
the suggested routes to school in the Study Area.
16 Office of Transportation, Safe Routes to School. For more information, visit:
https://www.cityofpaloalto.org/Departments/Transportation/Safe-Routes-to-School
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Figure 15. Suggested Routes to Schools
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FUTURE TRANSPORTATION NETWORK IMPROVEMENTS
This section summarizes on-going/upcoming transportation improvement projects within the Study Area.
◼ Rail Grade Separation Projects: The City of Palo Alto has been actively working on rail grade
separation projects along the Caltrain corridor at the existing at-grade crossings. Over the past
several years, conceptual plans have been developed to evaluate various alternatives for grade
separations at three key crossings: Churchill Avenue, Meadow Drive, and Charleston Road.
Considering input and feedback from the community, the project alternatives were reviewed by
the Community Advisory Panel and the City’s Rail Committee to identify a preferred solution for
each crossing. In June 2024, following community feedback and recommendations from the rail
committee, the City Council advanced the Partial Underpass Alternative with a bicycle -pedestrian
crossing at Seale Avenue as the preferred alternative for Churchill Avenue, with the Closure
Alternative as a backup. For the Meadow Drive and Charleston Road crossings, the Hybrid
Alternative (a mixed wall-column design approach) and the Underpass Alternative were selected.
These alternatives are designed to accommodate all modes of traffic, including bicycles and
pedestrians. The project is now progressing to the Preliminary Engineering and Environmental
phase, during which selected alternatives will be further evaluated to confirm the preferred
alternatives. The goal is to complete 35% of the design for the preferred alternative at each
crossing during this phase of the project.
◼ Caltrans El Camino Real Pavement Rehabilitation and ADA Improvements: State Route 82 (SR 82)
Pavement Rehabilitation and ADA Improvements17 project along El Camino Real spanning several
communities including Palo Alto, will improve the state highway and support safety, access, and
mobility of pedestrians and bicyclists. The project will repair pavement, upgrade existing non-
standard ADA curb ramps, add complete street elements such as enhanced crosswalks, and
replace on-street parking with bike lanes. Construction is on-going and expected to complete fall
2025.
◼ County of Santa Clara Page Mill Road and El Camino Real Intersection Improvements: The County
of Santa Clara plans to install intersection improvements18 at Page Mill Road and El Camino Real
to improve efficiency and provide bicycle and pedestrian safety improvements. Construction is
expected to begin mid-2025.
◼ City of Palo Alto Bicycle and Pedestrian Transportation Plan (BPTP) Update: Palo Alto has been at
the forefront of bicycle and pedestrian transportation planning since the early 1980’s, when the
City developed the nation’s first bicycle boulevard on Bryant Street. The City’s existing BPTP,
adopted in 2012, built upon those extensive planning and design efforts, and the 2025 update
will continue the legacy of innovative active transportation planning. The BPTP Update effort will
reflect community needs and desires, consider recent trends in cycling and bicycle technology,
and address changes in bicycle and pedestrian planning and design. The BPTP Update is expected
17 SR-82 – Pavement Rehabilitation and ADA Improvements: https://dot.ca.gov/caltrans-near-me/district-4/d4-projects/d4-santa-
clara-sr82-pavement-rehabilitation-and-ada-improvements
18 Page Mill Road intersection improvements at El Camino Real: https://roads.santaclaracounty.gov/projects-and-studies/capital-
projects/page-mill-road-intersection-improvements-el-camino-real
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to recommend enhanced bicycle infrastructure within the Study Area including along, but not
limited to, Loma Verde Avenue, Colorado Avenue, Meadow Drive, and San Antonio Road.
◼ Caltrain Business Plan: The Caltrain Business Plan identified that the California Avenue 4-track
segment overlaps with planned crossing projects and will necessitate alignment with local and
regional planning efforts to preserve this corridor for future infrastructure needs. Additionally,
the plan includes future California High-Speed Rail (CA HSR) which will operate on the same
tracks as Caltrain along the Peninsula Corridor (San Francisco to San Jose). The Northern
California segment of HSR will share tracks with Caltrain, which will drive the need for additional
passing track and signal system infrastructure. According to the latest construction timeline,
initial HSR operations from Merced to San Francisco are expected to begin in 2029, with the
Downtown Extension (DTX) opening and expanded HSR operations by 2033.
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Commuting Behavior
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Commuting Behavior
The Study Area has approximately 10,800 workers aged 16 and over, according to the American
Community Survey (ACS) 2022 5-Year Estimates. The majority (59%) commute by car, truck, or van, with
54 percent driving alone and five percent carpooling. Public transportation is utilized by four percent of
workers, while active transportation modes such as walking and bicycling contribute three and six percent
of commuting trips, respectively. Alternative transportation modes, including taxis, motorcycles, and
other means, account for two percent of commutes, while 26% work from home. Table 5 presents the
commuting characteristics in the Study Area.
Table 5: Commuting Characteristics in the Study Area
Commute Mode Percentage of Total
Workers – Study Area1
Percentage of Total
Workers – City of Palo
Alto
Car, truck, or van 59% 56%
- Drove alone 54% 52%
- Carpooled 5% 4%
Public Transportation 4% 2%
Walked 3% 5%
Bicycle 6% 7%
Taxicab, motorcycle or other means 2% 2%
Worked from home 26% 28%
Total workers 16 years and over 100% 100%
Source: U.S. Census Bureau, 2022 ACS 5-Year Estimates, Table S0801.
1Based on 2022 ACS estimates, there are approximately 10,800 workers in the Study Area. Percentages are rounded to the
nearest whole number.
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Traffic Counts
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Traffic Counts
Bicyclist and pedestrian counts were collected by the City at 12 intersections during a typical weekday
and weekend day over a 12-hour period (7 AM to 7 PM). These counts are summarized in Table 6;
detailed summaries of counts by approach and turn movement are included in Appendix B.
Table 6: Bicycle and Pedestrian 12- Hour Counts (7 AM to 7 PM)
Intersection Pedestrian Bicycle
Weekday Weekend Weekday Weekend
Alma Street & E. Meadow Drive 497 440 516 243
Alma Street & Charleston Road 345 216 416 228
Bryant Street & El Carmelo Avenue 466 246 510 327
Middlefield Road & Colorado Avenue 841 968 261 111
Middlefield Road & Loma Verde Avenue 350 74 213 64
Middlefield Road & E. Meadow Drive 403 309 629 193
Middlefield Road & Charleston Road 773 559 376 222
Middlefield Road & San Antonio Road 328 379 138 79
El Camino Real & California Avenue 1,520 1,736 322 233
El Camino Real & Los Robles Avenue 268 343 130 36
El Camino Real & Margarita Avenue 379 272 113 31
El Camino Real & Arastradero Road 596 467 319 175
Source: City of Palo Alto, 2024
Note: Weekday counts were collected on Thursday, May 16, 2024. Weekend counts were collected on Saturday, May 18, 2024.
Figure 16 summarizes pedestrian activity at existing at-grade crossing locations (Meadow Drive and
Charleston Road) on a typical weekday and weekend day from 7 AM to 7 PM. On weekdays, pedestrian
activity is generally highest in the afternoon hours between 3 PM and 6 PM. On weekends, pedestrian
activity is more variable, with the highest activity levels in the morning and early afternoon. Overall
pedestrian crossing activity is higher on weekends compared to weekdays; for both weekdays and
weekends, Meadow Drive experiences higher pedestrian activity than Charleston Road.
Figure 17 summarizes bicycle activity at existing at-grade crossing locations. On weekdays, bicycle activity
peaks during the morning and afternoon peak periods (7-9 AM and 4-6 PM), with a jump in activity
around 8 AM on Meadow Drive. On weekends, bicycle activity remains relatively steady throughout the
day. Similar to pedestrian activity, there is higher bicycle activity on Meadow Drive than Charleston Road.
Figure 18 illustrates vehicle activity at the existing crossing locations. On weekdays, peak commute
periods typically occur around 8 AM and 5 PM. On weekends, a distinct peak is observed only on
Charleston Road in the westbound direction during commute hours, while Meadow Drive experiences a
peak in the afternoon. Overall, westbound traffic exceeds eastbound traffic, with Charleston Road
carrying the highest vehicle volume.
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Figure 16: Pedestrian Activity at Existing At-Grade Crossing Locations
Source: City of Palo Alto, 2024; Compiled by Kittelson & Associates, Inc. 2025
0
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d
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Pedestrian Crossing -Weekday
Meadow Dr - Eastbound Meadow Dr - Westbound
Charleston Rd - Eastbound Charleston Rd - Westbound
0
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Axis Title
Pedestrian Crosing -Weekend
Meadow Dr - Eastbound Meadow Dr - Westbound
Charleston Rd - Eastbound Charleston Rd - Westbound
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Figure 17: Bicycle Activity at Existing At-Grade Crossing Locations
Source: City of Palo Alto, 2024; Compiled by Kittelson & Associates, Inc. 2025
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250
300
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c
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Charleston Rd - Eastbound Charleston Rd - Westbound
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Meadow Dr - Eastbound Meadow Dr - Westbound
Charleston Rd - Eastbound Charleston Rd - Westbound
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Figure 18: Vehicle Activity at Existing At-Grade Crossing Locations
Source: City of Palo Alto, 2024; Compiled by Kittelson & Associates, Inc. 2025
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700
800
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Vehicle Crossing -Weekday
Meadow Dr - Eastbound Meadow Dr - Westbound
Charleston Rd - Eastbound Charleston Rd - Westbound
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Vehicle Crossing -Weekend
Meadow Dr - Eastbound Meadow Dr - Westbound
Charleston Rd - Eastbound Charleston Rd - Westbound
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Bicycle and Pedestrian Accessibility
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Bicycle and Pedestrian Accessibility
A network accessibility analysis was completed to evaluate existing levels of access for bicyclists and
pedestrians at existing rail crossings. This analysis focuses on the rail crossing locations with paths and
sidewalks in and near the Study Area: California Avenue Bike/Ped Tunnel, Meadow Drive, Charleston Road,
and San Antonio Caltrain Station Bike/Ped Underpass. This analysis shows locations in the Study Area that
are either not able to access a crossing or relatively further from an existing bicycle or pedestrian crossing.
These findings will be used in later phases of the Project to identify how different alternatives would reduce
how far people must travel to/from destinations.
Two evaluations were conducted, one for walking and one for biking. For each evaluation, network buffer
distances were calculated for 5-, 10-, and 15-minute travel times from each rail crossing mentioned above.
The network buffers were then overlapped to identify the nearest crossing from a given location. For
walking, a travel speed of 3 miles per hour is assumed and for biking a travel speed of 10 miles per hour is
assumed. The bicycle evaluation includes existing bicycle facilities and excludes sidewalks. The network
evaluation for biking limits access along the roadways and intersections identified as high traffic stress (LTS
4) earlier in the report.
Note that the analysis does not consider the relative comfort of routes except to prevent access along LTS 4
roadways and at intersections that are LTS 4 (i.e., the shortest route may require biking on a street without
designated bike facilities). The analysis highlights locations that require longer travel times for bicyclists and
pedestrians in the Study Area.
Figure 19 shows the network accessibility analysis for walking and Figure 20 shows the network accessibility
analysis for biking. The analysis shows that pedestrian access to existing rail crossings are greatest in the
western part of the Study Area between California Avenue Bike/Ped Tunnel and Meadow Drive. The impact
of the gap is clearest in looking at El Carmelo Elementary School and Hoover Park, which are a quarter mile
and half-a-mile from the rail line but are each more than 15-minute walk from a crossing. For bike
accessibility, access is limited by El Camino Real and Alma Street on either side of the Caltrain tracks. In
contrast, the figure shows how the separated tunnel at the California Avenue Bike/Ped Tunnel which crosses
under the Caltrain tracks and Alma Street allows for a larger access area to the east and west.
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Figure 19: 5-, 10-, and 15-Minute Walking Access to Closest Rail Crossing
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Figure 20: 5-, 10-, and 15-Minute Bike Access to Closest Rail Crossing
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Big Data Analysis
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Big Data Analysis
This section describes person trips that cross the Caltrain corridor at the existing roadway crossings in and
near the Study Area as well as the walking and biking trips crossing at the bike and pedestrian tunnels
located at the California Avenue and San Antonio Caltrain Stations. The analysis provides a basic
understanding of where person trip origins and destinations are concentrated, as well as trip length, travel
mode, and trip purpose. The goal of the analysis is to understand the potential to encourage new walking
and biking trips or better serve existing walking biking trips with a shorter route.
For example, some trip purposes such as school and recreational trips are common for children who are
unable to drive and therefore are more likely to occur by walking and biking. Additionally, distance is one of
the primary factors influencing individual decisions to walk or bike for a given person trip. In particular, trips
less than five miles have the greatest potential for being completed by walking or biking. For this reason, the
Big Data analysis presented in this section focuses on person trips that are five miles or less.
Big Data provides the opportunity to study detailed travel characteristics for people crossing the railroad
tracks in the Study Area. Historically, data collection and analysis related to trip origins and destinations, trip
length, travel mode, and trip purpose has been very difficult and expensive, but the recent increase in
available Big Data has made these analyses easier. As a result, Big Data is becoming more widely used
throughout the transportation planning industry. As with any data source, Big Data has its limitations, but it
is useful as one of multiple sources of information that can be used to inform the Project.
DATA SOURCE
The analysis was conducted using person trip models created by Replica to represent average weekday and
weekend conditions in Spring 2024. Replica is a transportation data company that models travel patterns
based on multiple data sources, including data collected by vehicles, land use and Census data, and public
transportation data sets. Replica presents data by person trips versus vehicle trips in order to analyze
existing mode share conditions and potential changes. Details regarding Replica are provided in Appendix C.
TRIPS DISTANCES BY CROSSING LOCATION
Figure 21 presents total person trips for all travel modes combined for the existing Caltrain crossings. The
distribution shows that around 30% of crossings are trips that are less than five miles. Then, Figure 22
provides more detail about the location and relative length of person trips under five miles. As noted above,
these are the trips on which that the analysis will focus. For average weekday conditions, approximately
57,000 person trips are under five miles; for average weekend conditions, approximately 51,000 person trips
are under five miles.
Of the existing crossing locations, Oregon Expressway/Page Mill Road and San Antonio Road serve the
greatest numbers of existing person trips under five miles. Meadow Drive has the largest number of person
trips under one mile in length.
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Figure 21: Length of Person Trips (All Travel Modes) Crossing Caltrain Tracks in/near Study Area
Source: Replica, Spring 2024. Thursday and Saturday represent weekday and weekend conditions, respectively.
Figure 22: Daily Person Trips (All Travel Modes) under Five Miles by Crossing Location
Source: Replica, Spring 2024. Thursday and Saturday represent weekday and weekend conditions, respectively.
1%
7%
9%
7%
6%
70%
Weekday
1%
7%
9%
8%
6%
69%
Weekend
0 - 1 mile
1 - 2 mile
2 - 3 mile
3 - 4 mile
4 - 5 mile
5+ miles
-
2,000
4,000
6,000
8,000
10,000
12,000
14,000
16,000
18,000
20,000
0 - 1 mile 1 - 2 mile 2 - 3 mile 3 - 4 mile 4 - 5 mile
Weekday Weekend
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ORIGIN/DESTINATION PATTERNS
Figure 23 and Figure 24 show origin and destination areas with high concentrations of person trips for all
travel modes under five miles that use the California Avenue Bike/Ped Tunnel, Oregon Expressway/Page Mill
Road, Meadow Drive, Charleston Road, and San Antonio Caltrain Station Bike/Ped Underpass. This analysis
highlights the potential for walking and biking trips by showing locations where shorter trips start and end.
For both weekdays and weekends, the highest concentrations of person trips under five miles are observed
around the California Avenue Caltrain Station, along California Avenue, and at the San Antonio Center in
Mountain View. Similarly, these areas also have the highest concentrations of shorter person trips for
weekends. Within the Study Area limits, the Ventura Neighborhood show the highest concentration of
shorter person trips.
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Figure 23: Concentration of Person Trips (All Travel Modes) Under Five Miles - Weekday
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Figure 24: Concentration of Person Trips (All Travel Modes) Under Five Miles - Weekend
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TRAVEL MODE
Figure 25 summarizes the person trips by primary travel mode for the California Avenue Bike/Ped Tunnel,
Oregon Expressway/Page Mill Road, Meadow Drive, Charleston Road, San Antonio Road, or San Antonio
Ped/Bike Tunnel focusing on person trips that are less than five miles. This analysis includes all person trips
crossing the railroad, including trips that do not begin or end within the Study Area. This analysis differs from
Census analyses in that it includes all trip purposes, not just commute trips. The goal of this summary is to
understand the relative share of person trips that are currently being completed by personal vehicle and the
potential to increase walking and biking with a new rail crossing.
For person trips under five miles that cross the Caltrain corridor, over 80 percent are made by personal
vehicle or on-demand services like Palo Alto Link, Uber, and Lyft. Walking and biking make up 17 percent and
15 percent of weekday and weekend person trips, respectively. This suggests there may be an opportunity to
increase walking and biking activity if the City built an additional railroad crossing.
Figure 25: Person Trips under Five Miles by Travel Mode (Trip Percent)
Source: Replica, Spring 2024. Thursday and Saturday represent weekday and weekend conditions, respectively.
Note: Commercial trips are those where delivery vehicles are used to carry freight goods.
TRIP PURPOSE
Figure 26 summarizes the trip purpose for person trips for all travel modes under five miles that cross at the
California Avenue Bike/Ped Tunnel, Oregon Expressway/Page Mill Road, Meadow Drive, Charleston Road,
San Antonio Road, or San Antonio Ped/Bike Tunnel. The trip purpose is based on the activity completed at
the end of the trip (e.g., a trip from home to school is classified as a “School” trip purpose). Person trips to
eating/shopping/errand locations and person trips to home/lodging locations each account for over a third
of person trips for weekdays and weekend periods. As expected, work and school person trips are lower on
weekends versus weekdays. This analysis suggests that a new rail crossing may benefit a wide variety of
person trip types beyond recreation and school trips.
80%
11%
6%
0%
2%
Weekday
84%
9%6%
0%1%
Weekend
Personal Vehicle / On-
Demand
Biking
Walking
Public Transportation
Commercial
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Figure 26: Person Trips under Five Miles by Trip Purpose (Trip Percent)
Source: Replica Data, Spring 2024. Weekday representative of Thursday and Weekend representative of Saturday.
Note: Commercial trips are trips where vehicles deliver freight goods. Includes large and small delivery vehicles.
36%
34%
12%
10%
4%2%2%
Weekday
40%
37%
6%
13%
0%1%2%
Weekend
Eat / Shop /
Errands
Home / Lodging
Work
Recreation / Social
School
Commercial
Other
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Safety
Collision data for the Study Area was evaluated to identify collision trends or locations with multiple
collisions. Data was obtained through the Transportation Injury Mapping System (TIMS). TIMS reports injury
collisions from the Statewide Integrated Traffic Records System (SWITRS) but excludes collisions that cause
property damage only (PDO) and no injuries. It is important to note the limitations of the collision data. Not
every collision is reported, and collision records are only as reliable as the person filling them out. Data like
party race, party at fault, or the primary collision factor (PCF) are determined by the reporting officer.
The collisions analyzed occurred between January 1, 2018, and December 31, 2022. Injuries suffered by
involved parties are categorized into four types:
◼ Fatal: This category refers to collisions where individuals involved in the incident sustained injuries that
resulted in death.
◼ Severe Injury: This category includes collisions where individuals suffered significant injuries such as
broken bones, severe lacerations, or injuries beyond what are classified as "visible injuries" according
to the reporting officer's assessment.
◼ Moderate Injury (Visible Injury): This category encompasses collisions where individuals sustained
injuries that are evident to observers at the collision scene, such as bruises or minor lacerations. These
injuries are considered less severe than those in the severe injury category.
◼ Minor Injury (Complaint of Pain): This category pertains to collisions where individuals report
experiencing pain or discomfort, even though there may not be any visible injuries. These injuries are
categorized as complaints of pain and do not involve severe physical trauma or visible injuries.
The Draft Safety Action Plan designates Oregon Expressway, Meadow Drive, Charleston Road, Middlefield
Road, and El Camino Real as High-Injury Corridors due to their disproportionately high number of crashes.19
Figure 27 presents a five-year (2018 - 2022) overview of the pedestrian and bicyclist collision data. Over the
five-year period, a total of 25 pedestrian and 61 bicyclist collisions were reported in the Study Area. These
collisions represent 24% of pedestrian and bicyclist collisions for the City during the same period. Two fatal
collisions and four serious injury collisions were reported. The fatal collisions occurred on Charleston Road
near Herbert Hoover Elementary School and on El Dorado Avenue at South Court. For the severe injury
collisions, two occurred on El Camino Real at Barron Avenue/Wilton Avenue, one occurred at San Antonio
Road and Middlefield, and one occurred at Meadow Drive and Alma Street.
19 City of Palo Alto. Safety Action Plan DRAFT. December 2024. Retrieved from
https://www.cityofpaloalto.org/Departments/Transportation/Transportation-Projects/Safety-Action-Plan
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Figure 27: Pedestrian and Bicyclist Collisions (2018 – 2022)
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Environment
Environmental and physical factors affecting the Study Area may also affect potential crossing opportunity
locations. The following are some of the primary factors that will be considered throughout the Project.
Additional evaluation will be completed in later phases of the Project as individual crossing locations are
analyzed.
WATER BODIES AND FLOOD RISK
A series of creeks and streams pass through the Study Area as they drain the local foothills into the San
Francisco Bay.
• Matadero Creek runs east-west through the Study Area between Oregon Expressway/Page Mill Road
and Loma Verde Avenue, passing Hoover Park.
• Barron Creek runs east-west through the Study Area between Loma Verde Avenue and Meadow
Drive.
• Adobe Creek runs east-west though the Study Area between Charleston Road and San Antonio Road
before turning north to cross under Charleston Road and continue past Mitchell Park.
The creeks have been heavily engineered over the past decades and now primarily serve a very important
role as flood control channels. Partnerships with the Santa Clara Valley Water District (SCVWD) and other
organizations will be required to consider any potential improvements to the creeks.
Figure 28 shows flood risk areas using the latest maps available from the Federal Emergency Management
Agency (FEMA) portal. These maps categorize areas based on their associated flood risk levels. The Study
Area falls within the Moderate Risk zone.
GEOTECHNICAL HAZARDS
The Safety Element in the City of Palo Alto Comprehensive Plan (2022)20 identifies areas that have a high risk
for geotechnical hazards such as earthquake-induced landslides, soil liquefaction, and surface rupture along
fault traces. The Study Area does not fall within any of these zones.
WILDFIRE
Cal Fire maps Fire Hazard Severity Zones21 for the state of California and has recently updated its maps for
the Bay Area. The maps define very high, high, and moderate severity zones. The Study Area does not fall
within any of these zones.
20 City of Palo Alto Comprehensive Plan 2030: https://www.cityofpaloalto.org/files/assets/public/v/4/planning-amp-development-
services/3.-comprehensive-plan/comprehensive-plan/full-comp-plan-2030_with-dec19_22-amendments.pdf
21 https://calfire.app.box.com/s/wahuw9ny7cgn89xpxh7092ur50r1pwvj/folder/308443211682
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OVERHEAD UTILITIES
Based on the field visit conducted by the Project team, overhead utility lines are found along the Caltrain
corridor but are not present along most streets in the Study Area. As mentioned earlier, the rail grade
separation projects along the Caltrain corridor will further affect the location of utility lines. Any potential
overcrossings will require coordination with utility providers to avoid potential conflicts. A more detailed
review of utilities data (both above ground and underground) will be completed as part of the evaluation of
potential crossing locations.
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Figure 28: Flood Risk
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Potential Crossing Locations
Based on the information presented in this Existing Conditions Report, the crossing opportunity locations, as
shown in Figure 29 and described further below have been identified for further exploration. The crossing
opportunity locations were identified based on the review of the following items:
◼ Previous plans and studies: Based on the literature review, the four locations (Matadero Creek, Loma
Verde, El Carmelo Avenue, Adobe Creek and San Antonio Road) are areas where community have
expressed interest in additional bike and pedestrian crossings. The Midtown Connector Feasibility Study
evaluated Matadero Creek, Loma Verde and El Carmelo Avenue. Community feedback on the 2012
BPTP and Rail Corridor Study included Adobe Creek and San Antonio Road.
◼ Preliminary review of right-of-way (ROW) constraints: Figure 30 shows GIS data for the Caltrain ROW
and easements, along with parcel boundaries used for an initial review. Since the GIS data may not
precisely reflect actual property lines, a field survey will be conducted before the design phase to
confirm property boundaries.
◼ Field review: An on-site assessment to evaluate ROW constraints along the railroad corridor and
identify preliminary crossing opportunities was conducted. A summary of observations and key findings
from each site visit stop is provided in Appendix D.
Below are several crossing opportunity locations that have been identified for further exploration in this
Project.
A. Near Colorado Avenue and Page Mill Road: This location is near
California Avenue Caltrain Station, making it a strategic point for
improving multimodal connectivity. It is also near NVCAP, the
planned transit-oriented, mixed-use neighborhood within the North
Ventura neighborhood, which is expected to generate increased
pedestrian and bicycle activity.
Alma Street at Oregon Expressway
B. Around Matadero Creek (El Dorado Avenue to Loma Verde
Avenue): Situated equidistant between two existing railroad
crossings at California Avenue and Meadow Drive, this location
presents an opportunity to significantly reduce travel distances for
pedestrians and bicyclists. The presence of Matadero Creek offers
potential for integrating a dedicated bicycle and pedestrian path
along the creek, creating a seamless connection between residential
neighborhoods and key destinations along Park Boulevard.
Matadero Creek
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C. Near Barron Creek: This location could leverage Barron Creek as a
natural corridor for a new bicycle and pedestrian crossing. Exploring
options for a pathway along the creek could provide a safe, off-
street alternative for non-motorized users. Additionally, on-street
parking along El Verano Avenue could be repurposed to
accommodate crossing infrastructure, ensuring minimal disruption
while maximizing connectivity.
El Verano Avenue at Alma Street
D. Between Meadow Drive and Charleston Road: A crossing at this
location would provide direct access to Robles Park, benefiting local
residents and enhancing recreational connectivity. This area also
serves as a gateway to nearby community destinations, such as JLS
Middle School and Alma Village.
Lindero Drive at Alma Street
E. Near Adobe Creek: A bicycle and pedestrian path could be
developed along Adobe Creek, utilizing existing open space to create
a scenic and functional crossing. This would connect residential
neighborhoods with Park Boulevard and nearby schools, parks, and
retail areas.
Adobe Creek
F. Near San Antonio Road: This location would utilize the existing
San Antonio Road overpass to accommodate bicycle and pedestrian
movements. By upgrading the overpass with dedicated bike lanes,
widened sidewalks, or improved signage, this crossing could provide
a safe and efficient route across the railroad corridor. Given its
location near the San Antonio Caltrain Station, this improvement
would enhance first- and last-mile connectivity for transit users.
San Antonio Road
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Figure 29: Potential Crossing Locations
Source: Circlepoint 2025, Kittelson & Associates, Inc. 2025, City of Palo Alto
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Figure 30: Caltrain, Public and Private Right of Way
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Appendices
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Appendix A: Literature Review Memorandum
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TECHNICAL MEMORANDUM
April 1, 2025 Project# 30555
To: Charlie Coles, City of Palo Alto
From: Kittelson & Associates, Inc.
RE: South Palo Alto Bike/Ped Connectivity – Literature Review
Literature Review
Kittelson reviewed the documents identified to develop an understanding of the planning context
and prior efforts completed within the study area. The purpose of this memorandum is to provide
a synthesis and summary of existing plans, programs, and policies from recent documents. This
will help develop an understanding of the policy and planning environment for walking and biking
in Palo Alto.
Document List
The following Table 1 lists the relevant documents and programs that were reviewed, summarized,
and synthesized for this task.
Table 1. List of Documents Reviewed
No. Document Name Year of
Adoption
1. City of Palo Alto Comprehensive Plan 2017
2. City of Palo Alto Comprehensive Plan Update 2022
3. City of Palo Alto Sustainability and Climate Action Plan 2022
4. City of Palo Alto Housing Element Update 2024
5. City of Palo Alto Bicycle and Pedestrian Transportation Plan 2012
6. City of Palo Alto Bicycle and Pedestrian Transportation Plan Update In progress
7. City of Palo Alto Safe Streets for All Plan In progress
8. City of Palo Alto San Antonio Road Corridor Area Plan In progress
9. City of Palo Alto North Venture Coordinated Area Plan 2024
10. City of Palo Alto Midtown Connector Feasibility Study 2016
11. City of Palo Alto Parks, Trails, Natural Open Space and Recreation Master
Plan 2017
12. City of Palo Alto El Camino Real Master Planning Study Public Review
Draft 2007
13. City of Palo Alto Rail Corridor Study 2013
14. Connecting Palo Alto Website --
155 Grand Avenue, Suite 505
Oakland, CA 94612
P 510.839.1742
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15. Expanded Community Advisory Panel (XCAP) on Grade Separations Report
for Palo Alto 2021
16. Palo Alto's Local Road Safety Plan by VTA 2022
17. Santa Clara Countywide Bicycle Plan 2018
18. 2050 Plan Bay Area 2021
19. VTA Bicycle Technical Guidelines 2022
20. VTA Bicycle Superhighway Implementation Plan 2021
21. VTA 2025 Transit Service Plan 2024
22. Caltrans District 4 Bike Plan 2018
23. Caltrans District 4 Pedestrian Plan 2021
24. Grand Boulevard Initiative 2006
25. California High Speed Rail Website --
26. Caltrain Corridor Crossing Delivery Guide 2024
27. Caltrain Electrification Project Website --
28. Californians Advocating for Responsible Rail Design (CARRD) --
29. Peninsula Rail Program --
30. Palo Alto Intermodal Transit Center --
31. Mountain View 2015 Bicycle Transportation Plan 2015
32. Mountain View 2014 Pedestrian Master Plan 2014
33. Mountain View 2019 El Camino Real Streetscape Plan 2019
34. Los Altos Complete Streets Master Plan: Active Transportation Framework 2022
35. Los Altos Hills Countywide Trails Master Plan Map Update Project 2023
Topics and Key Themes
The following relevant topics were reviewed and summarized for each document and overall
themes within each topic and across all reviewed documents are synthesized in this section.
◼ Vision and goal statements
◼ Existing policies and programs related to active transportation
◼ Established needs, issues, and concerns raised in the study
◼ Current/planned projects coming from the study
◼ Community feedback captured in the document
Key themes from this review are presented in this section.
Vision and Goals
There is strong alignment among the vision and goals established in the documents reviewed,
particularly surrounding sustainability and climate action. For example, the 2012 Palo Alto Bicycle
and Pedestrian Transportation Plan supports the goals identified in the City of Palo Alto
Comprehensive Plan and reflects specific targets mentioned in the 2007 Palo Alto Climate
Protection Plan.
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Common themes around vision and goals from the review of these plans include:
◼ Increasing biking and walking trips for all purposes
◼ Connecting multi-modal networks for walking, biking, and transit
◼ Developing a network of bikeways, pathways, and traffic-calmed streets that connect various
business districts, residentials areas, open spaces, parks, and schools
◼ Constructing and maintaining safe and accessible streets for walking and biking to all modes
and people of all ages and abilities
◼ Reducing the number, rate, and severity of bicycle and pedestrian collisions citywide
◼ Reducing bicycle and vehicular conflicts at transit stops
◼ Maintaining a high-quality active transportation system and reducing gaps in pedestrian and
bicycle networks
◼ Improving the aesthetics and quality of walkways, bike paths, and corridors to attract more
walking and biking trips
◼ Increasing active transportation options and reducing the overall vehicle miles traveled
◼ Reducing barriers to bicycling and walking at freeway interchanges, expressway
intersections, and railroad grad crossings
◼ Enhancing pedestrian and bicycle crossings at key locations across physical barriers
◼ Ensuring the highest possible safety at rail crossings while mitigating impacts on
neighborhoods, schools, and public facilities
◼ Ensuring access for all ages, abilities, and underserved communities while prioritizing equity
areas
◼ Improving Caltrain system performance to reduce noise, improve air quality, and lower
greenhouse gas emissions
◼ Increasing opportunities for community feedback and implementing a formal feedback
process
Policies and Programs
Most of the policies and programs mentioned in each plan aim to promote the goals and vision
of that specific plan. They are also in line with the vision of similar plans that promote non-
motorized transportation.
For instance, the 2030 City of Palo Alto Comprehensive Plan introduced policies that focus on
pursuing grade separation of rail crossings along the rail corridor (Policy T-3.15); keeping existing
at-grade rail crossings open for pedestrians and bicyclists with safety studies (Policy T-3.16);
improving existing at-grade rail crossings for safety and accessibility (Policy T-3.17); improving
safety and minimize adverse noise, vibrations and visual impacts of operations in the Caltrain rail
corridor on adjoining districts, public facilities, schools and neighborhoods with or without the
addition of High Speed Rail (Policy T-3.18); coordinating proactively with the California High
Speed Rail Authority and Caltrain to minimize negative impacts and maximize benefits to Palo
Alto from any future high speed rail service through Palo Alto (Policy T-3.19); working with Caltrain
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to increase safety at train crossings, including improving gate technology and signal coordination
(Policy T-6.3); continuing the Safe Routes to School partnership with PAUSD and the Palo Alto
Council of PTAs (Policy T-6.4); supporting regional bicycle and pedestrian plans including
development of the Bay Trail, Bay-to-Ridge Trail and the Santa Clara County Countywide Bicycle
System (Policy T-8.8); minimizing noise spillover from rail related activities into adjacent residential
or noise-sensitive areas (Policy N-6.13).
Some programs directly support these policies, including evaluating the implications of grade
separation on bicycle and pedestrian circulation (Program T3.15.2); identifying near-term safety
and accessibility improvements at crossings through studies like the Palo Alto Avenue crossing
study (Program T3.17.1); working with Caltrain to ensure that the rail tracks are safe and secure
with adequate fencing and barriers (Program 13.17.2); providing adult crossing guards at school
crossings that meet established warrants (Program T6.4.3); improving pedestrian crossings by
creating protected areas, enhancing visibility, and incorporating design tools such as bulb-outs,
small curb radii, and high-visibility crosswalks (Program T6.6.6); and reducing barriers to walking
and bicycling at railroad grade crossings, freeway interchanges, and expressway intersections
(Program T8.8.1); encouraging the Peninsula Corridors Joint Powers Board to pursue technologies
and grade separations that would reduce or eliminate the need for train horns/whistles in
communities served by rail service (Program N6.13.1); evaluating changing at-grade rail crossings
so that they qualify as Quiet Zones based on Federal Railroad Administration (FRA) rules and
guidelines in order to mitigate the effects of train horn noise without adversely affecting safety at
railroad crossings (Program N6.13.2); participating in future environmental review of the California
High-Speed Rail (HSR) Project, planned to utilize existing Caltrain track through Palo Alto, to
ensure that it adheres to noise and vibration mitigation measures (Program N6.13.3). These
policies and programs are in line with the goals and visions of the Comprehensive Plan.
The 2024 City of Palo Alto North Venture Coordinated Area Plan adopts the Transit-Oriented
Communities (TOC) Policy. The Metropolitan Transportation Commission’s (MTC’s) regional TOC
policy update aims to support the region’s transit investments by fostering communities around
transit stations and along transit corridors. These communities are designed to not only increase
transit ridership but also serve as places where Bay Area residents of all abilities, income levels,
and racial and ethnic backgrounds can live, work, and access essential services, such as education,
childcare, and healthcare. The TOC policies apply to Priority Development Areas (PDAs) served by
fixed-guideway transit, such as the California Avenue Station (Caltrain). PDAs that comply with
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TOC policies are eligible for grant funding administered by the MTC.
Figure 1 shows the NVCAP area, Palo Alto’s priority development areas, and San Antonio Road
Area Plan boundary.
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Figure 1. NVCAP area, Palo Alto’s priority development areas, and San Antonio Road Area Plan
boundary.
The rezoning changes adopted as part of the City’s 2023-2031 Housing Element update
substantially increase the capacity for development along San Antonio Road with an objective to
create cohesive mixed-use neighborhoods with safe access to transportation, employment,
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services, and third places (public spaces such as parks, libraries and community centers, and
privately owned spaces like churches, cafés, fitness centers and entertainment venues). The San
Antonio Road Area Plan (in progress) will establish goals, policies, and implementation programs
for land use, transportation, critical infrastructure and other improvements that will support the
redevelopment of the PDA surrounding San Antonio Road.
The 2012 Bicycle and Pedestrian Transportation Plan (2012 BPTP) identified a proposed network
of bikeways, pedestrian paths, and crossings to address gaps in the existing system and promote
active transportation. The recommendations included the following:
◼ Maintaining Class I trails from the 2003 Plan and adding new projects, including sidepaths
along key corridors, supports recent efforts by the San Francisquito Creek Joint Powers
Authority to design and build a trail along the Palo Alto side of the creek from Alma Street
to Chaucer Road, and modify or replace unnecessary trailhead and barrier crossing
obstacles to improve Class I path convenience for larger bicycles and families
◼ Improving substandard Class II bike lanes by addressing potential “dooring” issues
adjacent to parked cars or where gutter pans affect the functionality of curbside bike lanes,
adding innovative green colorization and markings for visibility, and proposing new bike
lanes on key arterials like Middlefield Road and El Camino Real
◼ Implementing sharrows and signage for Class III shared roadways for major arterial routes
such as Alma Street, El Camino Real, Embarcadero Road, and San Antonio Road, and
improve bicycling comfort along San Antonio Road by providing wider shoulders and
parking restrictions as part of an upcoming paving and median replacement project
◼ Removing unnecessary stop signs on bicycle boulevard corridors and upgrading pavement
conditions, focusing implementation on specific bicycle boulevard corridors, and interim
Bike Route signage on future bicycle boulevards citywide
◼ Enhancing bicycle connections with neighboring jurisdictions and creating enhanced
bikeways and crossings
◼ Implementing across-barrier connections to improve pedestrian and bicycle access to
key destinations while addressing potential implementation challenges and prioritizing
alternatives.
◼ Implementing intersection improvements including a variety of markings, curb extensions,
and signalization changes to improve bicyclist and pedestrian visibility in key locations.
Figure 2 and Figure 3 show the proposed bicycle network and the proposed bicycle boulevard in
the 2012 BPTP, respectively. The BPTP Update will recommend implementation of the alignments
identified in this study.
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Figure 2. Palo Alto 2012 BPTP Bikeway Network
Figure 3. Palo Alto 2012 BPTP Bicycle Boulevard Network
The Midtown Connector Feasibility Study evaluates three viable alignments to enhance bicycle
and pedestrian connectivity in Palo Alto including the Matadero Creek Shared-Use, the Matadero
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Creek Pedestrian-Only Path, and the Loma Verde Avenue Class IV Protected Bikeway. The study
further explores how a trail facility along Matadero Creek could connect to existing bicycle and
pedestrian networks, despite significant barriers such as US 101 and the Caltrain corridor. Potential
solutions include utilizing existing and proposed crossings (e.g., Oregon Avenue and Adobe
Creek), building a new undercrossing or overcrossing of Alma Street and the Caltrain tracks, or
enhancing the current US 101 undercrossing. Three alignments for undercrossing were proposed
(Figure 4):
1. Alignment 1: An at-grade crossing of Alma Street at Matadero Creek, followed by an
undercrossing of just the Caltrain right-of-way. The ramps for this undercrossing would
run parallel to the train tracks and the west side could exit through an existing City-owned
power transmission property. This alignment is unlikely because of the constraints for
developing a trail along Segment A of Matadero Creek. At Alma Street, maintenance
access ramps make a creek trail infeasible.
2. Alignment 2: A ramp down from El Carmelo Avenue to a tunnel under the Caltrain tracks,
similar to the ramp on N. California Avenue. Similar to Alignment 1, the tunnel would exit
at the power plant where an at-grade pedestrian and bicycle connection would be
provided. Alternatively, a ramp could be located along Alma Street on the north side
between Matadero Creek and El Carmelo Avenue shown as Alignment 2b.
3. Alignment 3: At-grade crossing of Alma Street followed by an undercrossing of the Caltrain
right-of-way. It is likely that this alignment would require right-of-way purchase where the
tunnel daylights
The conceptual under crossing configuration for the three alignments is shown in Figure 5. The
feasibility analysis for three alignments in Midtown Palo Alto identifies varying degrees of
feasibility for each option. A shared-use path will accommodate the most user diversity and
provide a recreational path that is largely protected from motor vehicle travel, but faces high costs,
right-of-way challenges, and public safety and privacy concerns. A pedestrian-only path would be
easier to implement at lower cost but shares similar public concerns. A Class IV bikeway on Loma
Verde Avenue provides a cost-effective bicycling connection through Midtown Palo Alto without
additional right-of-way needs but poses challenges with numerous driveway that must be crossed
and limited pedestrian infrastructure improvements.
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Figure 4. Midtown Connector Feasibility Study Potential Alignments
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Figure 5. Conceptual Undercrossing Configuration Under Caltrain Corridor In The Vicinity Of
Matadero Creek
The 2018 Santa Clara Countywide Bike Plan proposed policies that focus on leveraging
development to build bicycle infrastructure by ensuring existing and new development supports
bicycling (Policy 1B); supporting bicyclist safety and traffic laws through equitable enforcement
and improved driver education (Policy 2C); improving bicycle access to transit by funding and
constructing transit-connected bikeways (Policy 4A); and supporting safe and convenient
interactions between bicyclists and transit vehicles, including providing adequate bicycle storage
on-board transit vehicles (Policy 4C).
The 2014 Mountain View Pedestrian Master Plan introduced programs and policies such as
accommodating all transportation modes in the design and construction of transportation
projects to safely meet the needs of all users, including pedestrians, bicyclists, transit riders,
motorists, and persons of all abilities (Policy 1.2); promoting pedestrian improvements that
increase connectivity, provide placemaking opportunities, and foster a greater sense of
community (Policy 1.3); improving universal access within private developments, public transit
facilities, programs, and services (Policy 2.1); providing a safe and comfortable pedestrian network
(Policy 3.1); increasing connectivity through safe pedestrian connections to public amenities,
neighborhoods, and other destinations (Policy 3.2); and enhancing pedestrian crossings at key
locations across physical barriers (Policy 3.3).
These existing programs and policies mentioned in the relevant plans are consistent with and will
be reflected in the alternatives developed for this study.
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Needs and Challenges
Common themes surrounding needs and challenges per review of the plans include:
◼ Providing safe and accessible east-west bicycle connections at Charleston Road and Meadow
Drive, which are critical for school commuters and community access
◼ Addressing congestion and safety at at-grade railroad crossings due to increased train
frequency from Caltrain electrification and future High-Speed Rail (HSR) integration
◼ Ensuring railroad crossings are optimized for bicyclists by improving track angles, surface
smoothness, gap between the flangeway and roadway, and closing bike paths at night
◼ Removing railroad tracks at intersections from abandoned rights-of-way, with priority given
to streets with higher bicycle volumes
◼ Balancing 24-hour access on bike paths with safety, enforcement, and maintenance
considerations, including inconsistent hours and trail safety at night
◼ Mitigating traffic congestion and safety impacts caused by frequent train gate closures
during peak hours at at-grade crossings
◼ Enhancing pedestrian and bicycle crossings at major barriers, including railroad tracks, Alma
Street, and El Camino Real, to improve safety and connectivity
◼ Improving safety for students and residents who must cross heavily trafficked streets or the
rail corridor to access schools, parks, and other amenities
◼ Finding community-supported solutions for grade separation while securing funding,
regulatory approvals, and addressing design challenges
◼ Reducing traffic stress for “interested but concerned” bicyclists by providing separated and
lower-stress facilities at crossings and throughout the network
◼ Managing safety risks at rail crossings while balancing increased train frequencies and
ensuring the community’s transportation needs are met
◼ Maintaining transit systems in good condition by addressing operational needs and ensuring
state of good repair through fleet and facility upgrades
◼ Uncertainty of funding opportunities
◼ Failure to yield to pedestrians on the roadway
◼ Bicycle theft
Plans and Projects
Relevant projects and planning studies recommended in the prior and in progress plans reviewed
for this study are presented in this section.
◼ Roadway and intersection improvements, including full grade separations for automobiles,
pedestrians, and bicyclists at Caltrain crossings; retrofitting and improving existing grade-
separated crossings for pedestrians and bicyclists at California Avenue and University
Avenue; and constructing new pedestrian and bicycle grade-separated crossings in South
Palo Alto and North Palo Alto including:
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o Churchill Avenue, alternatives included a Viaduct (Figure 6), a closure with traffic
mitigations, and two bike/pedestrian tunnel options. A community-generated "Partial
Underpass" alternative would depress Churchill on the west side of the tracks, allowing
north/south turns onto Alma but restricting crossing. From the east side of Alma, traffic
traveling westbound towards Alma could only turn right to head north on Alma
Figure 6. Churchill Avenue Viaduct on Viaduct Structure (Churchill Avenue and Alma Street
Intersection)
o Churchill Avenue Partial Underpass, it would separate Churchill Avenue from the current
Caltrain tracks via an underpass. However, there would no longer through traffic on
Churchill Avenue east of Alma; instead, it would form a T-intersection (Figure 7)
Figure 7. Churchill Avenue Partial Underpass
o Meadow Drive and Charleston Road, alternatives including a viaduct, a trench, and a
hybrid (raised berm) solution (Figure 8)
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Figure 8. Meadow Drive Proposed Solutions
o Palo Alto Grade Separation Planning Study: Meadow Drive and Charleston Road
underpass plan (Figure 9)
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Figure 9. Palo Alto Grade Separation Planning Study
o Alma Street and Oregon Expressway Improvements in traffic signals (Figure 10)
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Figure 10. Alma Street and Oregon Expressway Improvements
o Caltrain/Highway 101 Crossing, providing connections through a new undercrossing or
overcrossing of Alma Street and the Caltrain tracks
o Caltrain/Alma Barrier Crossing at Matadero Creek
o Caltrain Railroad Planned Bike and Pedestrian Crossing at Loma Verde Ave. Crossing and
Everett Ave. Crossing
o Caltrain Crossing at Stanford Ave/Seale Avenue (Potential Bike Ped Bridge)
o The Caltrain Business Plan identified that the California Avenue 4-track segment overlaps
with planned crossing projects and will necessitate alignment with local and regional
planning efforts to preserve this corridor for future infrastructure needs
o The California Avenue 4-track segment overlaps with the City of Palo Alto’s “Connecting
Palo Alto” project. The crossings at Churchill Avenue and Meadow Drive are adjacent to
the California Avenue 4-track segment and will likely require minor modifications to
planning concepts to accommodate the transition between 2-tracks and 4-tracks.
Caltrain is actively coordinating this effort
◼ Safety improvements such as sidewalk extensions, crosswalk improvements, expanded
pedestrian refuges and waiting plazas, improved lighting and wayfinding, advance warning
signage and signalization for motorists, pedestrians and bicyclists, and landscape
enhancements
o Alma Street/Meadow Drive and Alma Street/Charleston Road intersections and
roadways approaches that can be undertaken in the near term by the City of Palo Alto
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prior to rail improvements. Include improvements such as sidewalk extensions, crosswalk
improvements, expanded pedestrian refuges and waiting plazas, improved lighting and
wayfinding, advance warning signage and signalization for motorists, pedestrians and
bicyclists, and landscape enhancements. The City of Palo Alto Rail Corridor Study
identified potential locations for additional railroad crossing study areas to evaluate
opportunities for improving connectivity across the rail lines in southern Palo Alto (Figure
11).
Figure 11. City of Palo Alto Rail Corridor Study – Priority Rail Crossing Locations
◼ Expansion and modernization of the regional rail network to better connect communities,
increase frequencies, and advance projects. This expansion will address the increased
demand for multimodal connections, enhance safety through grade separations, and
support accessibility improvements for last-mile connectivity. Additionally, it will necessitate
improved connectivity and upgraded bicycle and pedestrian crossings to ensure safe and
efficient multimodal integration in areas impacted by increased rail activity.
o Link21 new transbay rail crossing
o BART to Silicon Valley Phase 2
o Valley Link
o Caltrain Downtown Rail Extension
o Caltrain/High-Speed Rail grade separations
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◼ Design, Feasibility, and Planning
o Middlefield Road "Complete Street" Plan Line Study, located 0.65 miles north of the
Caltrain railroad, it includes implementing sidewalk and traffic calming improvements on
Middlefield Road to further promote pedestrian safety and reduce vehicle speeds
o El Camino Real Complete Streets project, located 0.25-0.5 miles south of Caltrain
railroad, it integrates bicycle and transit use on the corridor and upgrades crossing
treatments at intersections.
o Bicycle facilities upgrade on East Meadow Drive
Community Feedback
Community feedback and public input is a crucial factor throughout long-term planning process.
It helps to inform and shape the final recommendations of plans. Most plans are significantly
invested in conducting public workshops, public surveys, open houses and community
engagement events to hear from the public throughout the development of the plan. Common
themes and takeaways per the review of the relevant prior and in progress plans are presented in
this section.
◼ Providing accessible and safe active transportation (walking, biking, etc.) routes to natural
open space, community centers and parks is a high priority
◼ Addressing dangerous and difficult crossings due to high vehicle speeds, high vehicle
volumes, or lack of bicycle facilities
◼ Roadways highlighted include El Camino Real, Middlefield Avenue, University Avenue,
Churchill Avenue, Meadow Drive, Alma Street, San Antonio Road, California Avenue, and
Stanford Avenue
◼ Requests for improved traffic control, wayfinding signage, and infrastructure for cyclists and
pedestrians, with proposals for traffic calming measures
◼ Improving connections to trails, transit hubs, employment centers, schools, public buildings,
and parks
◼ Enhancing physical and mental well-being is a critical function of parks for people who live,
work and play in Palo Alto. Loop trails, bicycle and pedestrian paths to parks and places to
relax are top priorities, along with exercise equipment or additional classes
◼ Low-stress bicycle facilities are desired
◼ Frequently requested bicycle infrastructure improvements include more trail lighting, better
accommodation at signalized intersections, better access and signage to bicycle paths, more
frequent maintenance, more space to store bicycles on transit vehicles, secure bicycle
parking
◼ Design safer and more intuitive highway crossings and interchanges
◼ Streamline and communicate the process for local agencies to engage with Caltrans and for
Caltrans to engage with local communities
◼ Increase investment in bicycle facilities on state highways
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◼ Preference for fully dedicated bike facilities that is separate from traffic and has space for
multiple modes
◼ Bike highways should prioritize access and connection for low-income and disadvantaged
communities and people without personal access to vehicles
◼ Residents prefer current policies that prioritize services and facilities for local residents over
regional attractions
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Appendix B: Traffic Counts
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Table 1: Pedestrian Crosswalk Counts at Major Intersections – 12-Hour Total (7:00 am – 7:00 pm)
Intersection Weekday Weekend
North South East West Total North South East West Total
Alma Street & E. Meadow Drive 364 100 33 0 497 295 108 35 2 440
Alma Street & Charleston Road 144 123 74 4 345 89 98 29 0 216
Bryant Street & El Carmelo Avenue 67 141 61 197 466 51 39 35 121 246
Middlefield Road & Colorado Avenue 172 302 262 105 841 198 294 303 173 968
Middlefield Road & Loma Verde Avenue 110 68 73 99 350 34 18 12 10 74
Middlefield Road & E. Meadow Drive 63 192 63 85 403 53 115 56 85 309
Middlefield Road & Charleston Road 222 151 104 296 773 96 144 73 246 559
Middlefield Road & San Antonio Road 90 126 64 48 328 100 119 87 73 379
El Camino Real & California Avenue 509 573 243 195 1,520 513 635 347 241 1,736
El Camino Real & Los Robles Avenue 96 61 63 48 268 72 44 78 149 343
El Camino Real & Margarita Avenue 89 63 99 128 379 55 42 103 72 272
El Camino Real & Arastradero Road 101 226 129 140 596 94 92 93 188 467
Source: City of Palo Alto, 2024
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Table 2: Bicyclist Turning Movement Counts at Major Intersections – Total 12- Hour Counts
Weekday
Intersection northbound southbound eastbound westbound Total
right thru left right thru left right thru left right thru left
Alma Street & E. Meadow Drive 0 1 0 0 1 0 1 335 4 4 170 0 516
Alma Street & Charleston Road 1 2 5 0 3 0 0 213 1 0 191 0 416
Bryant Street & El Carmelo Avenue 7 211 2 15 239 8 1 2 17 5 1 2 510
Middlefield Road & Colorado Avenue 1 18 5 2 18 2 2 109 4 8 86 6 261
Middlefield Road & Loma Verde Avenue 3 26 1 4 24 1 7 78 1 2 64 2 213
Middlefield Road & E. Meadow Drive 2 20 8 7 29 0 33 218 9 5 290 8 629
Middlefield Road & Charleston Road 2 17 10 12 50 5 36 106 3 1 129 5 376
Middlefield Road & San Antonio Road 0 1 0 0 10 2 1 63 1 0 60 0 138
El Camino Real & California Avenue 1 2 1 4 8 1 4 160 3 3 134 1 322
El Camino Real & Los Robles Avenue 0 2 0 0 3 0 0 51 1 1 72 0 130
El Camino Real & Margarita Avenue 0 4 0 6 8 0 0 50 0 2 43 0 113
El Camino Real & Arastradero Road 0 6 0 0 4 0 0 146 0 1 162 0 319
Weekend
Intersection northbound southbound eastbound westbound Total
right thru left right thru left right thru left right thru left
Alma Street & E. Meadow Drive 1 1 0 0 1 0 0 139 1 5 95 0 243
Alma Street & Charleston Road 1 1 2 0 1 0 1 102 0 0 120 0 228
Bryant Street & El Carmelo Avenue 8 124 3 9 146 4 3 3 8 11 5 3 327
Middlefield Road & Colorado Avenue 0 16 4 2 11 2 4 36 4 1 30 1 111
Middlefield Road & Loma Verde Avenue 7 6 0 2 6 4 2 14 2 3 16 2 64
Middlefield Road & E. Meadow Drive 3 15 2 0 10 0 15 64 0 0 84 0 193
Middlefield Road & Charleston Road 9 11 18 16 26 3 19 45 8 7 51 9 222
Middlefield Road & San Antonio Road 2 1 2 3 2 1 1 25 1 1 40 0 79
El Camino Real & California Avenue 2 5 1 2 8 5 2 115 8 9 75 1 233
El Camino Real & Los Robles Avenue 0 1 0 0 4 1 1 10 1 1 16 1 36
El Camino Real & Margarita Avenue 1 3 0 1 3 0 0 16 0 0 7 0 31
El Camino Real & Arastradero Road 0 4 0 2 3 0 2 75 2 0 84 3 175
Source: City of Palo Alto, 2024
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VEHICLE COUNTS
Turning movement count data was collected as part of the connecting Palo Alto’s Churchill, Meadow and Charleston Grade Separa tion Traffic Analysis1. The data
was collected at two intersections: Alma Street at Meadow Drive and at Charlston Road. Counts were collected during a typical weekday (Tuesday, January 28,
2020) for the AM peak hours (7:00 – 9:00 AM) and PM peak hours (4:00 PM – 6:00 PM). Table 3 illustrates the existing vehicle turning movement counts,
respectively:
Table 3: Vehicle Turning Movement Counts – AM and PM Peak Hours
AM Peak
Intersection
northbound southbound eastbound westbound
Total right thru left right thru left right thru left right thru left
Alma Street & Meadow Drive 46 1,174 82 142 511 92 69 145 120 73 207 62 2,723
Alma Street & Charleston Road 33 1131 346 43 517 63 130 376 95 71 245 44 3,094
PM Peak
Intersection
northbound southbound eastbound westbound
Total
right thru left right thru left right thru left right thru left
Alma Street & Meadow Drive 61 848 95 182 1,102 109 74 169 88 99 245 55 3,127
Alma Street & Charleston Road 49 806 245 50 1,094 57 216 237 83 83 313 42 3,275
Source: Churchill, Meadow and Charleston Grade Separation Traffic Analysis, January 2024
1 Churchill, Meadow and Charleston Grade Separation Traffic Analysis: Traffic-Analysis-Report_Churchill-Meadow-and-Charleston-Grade-Separation_revised.pdf
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Appendix C: Replica Data Details
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APPENDIX – REPLICA BACKGROUND AND VALIDATION
This appendix provides additional technical background on the use of Replica for origin/destination
analyses. Replica builds on the traditional approaches for traffic models used by transportation agencies
in the Bay Area and the United States. Replica differs from traditional transportation models in that it
incorporates vehicle probe data (GPS records generated by on-board sensors on vehicles) to produce
more granular representations of trip patterns and routes. Additionally, Replica has a greater focus on
estimating walking and biking activity compared to traditional transportation models. Since Replica’s
processes include multiple data sources, it has the potential to capture trip patterns more accurately;
however, the blending of multiple datasets results in a more complex dataset to understand.
The Replica data used in the analysis represents Spring 2024 conditions. Thursday data was used to
represent weekday conditions and Saturday data was used to represent weekends.
Prior to finalizing the use of Replica, a reasonableness check was completed by comparing Replica’s peak
hour trip estimates against traffic counts collected in the Study Area. Specifically, the AM and PM peak
hour volumes for Meadow Drive and Charleston Street from Replica were compared against peak hour
turn counts for those same locations collected as part of the Palo Alto Grade Separation Project.1 Table 1
summarizes the comparison; as shown in the table, the Replica estimates were found to be 15% higher
than observed counts for Meadow Drive and 19% higher than observed counts for Charleston Street.
Table 1: Comparison of Volume Data between Counts and Replica Data
Location Turn Movement Count1 Replica Count2 % Difference
Meadow Drive 1,918 2,270 +15%
Charleston Street 2,560 3,140 +19%
1. Peak AM and PM count collected January 28, 2020. Total includes people walking and biking, and motor vehicles.
2. Peak AM and PM count from Replica Data, modeled Spring 2024 Thursday . Total includes person trips for people
driving, walking, biking, taking on-demand services, and completing commercial freight deliveries. It excludes driving
passenger trips.
A difference of less than 20% is viewed as reasonable given that traffic counts can also exhibit this level of
variability on a given day. Based on this comparison, Replica is considered a reasonable data source for
analyzing multimodal trip patterns for the Study Area.
1 Hexagon Transportation Consultants, Inc. (2020). Churchill, Meadow, and Charleston Grade Separation Traffic Analysis
from https://connectingpaloalto.com/wp-content/uploads/2021/02/Traffic-Analysis-Report_Churchill-Meadow-and-
Charleston-Grade-Separation_revised.pdf
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Appendix D: Field Visit Summary
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The field visit took place on Tuesday, November 19, from 9:00 AM to 12:00 PM in sunny weather
conditions, with temperatures in the mid-to-high 50s. Table 1 shows the corresponding field visit
locations. The route began by traveling south along the Alma Street sidewalk and on -street through
the Circles neighborhood. The team then crossed Alma Street, and the railroad tracks at
Charleston and continued north along Park Boulevard. The field visit team included a
representative from Kittelson, Circlepoint, BKF, City Staff and Safe Routes to School Coordinator.
Table 1. Field Visit Locations
Map ID Stop Location
Start California Avenue Caltrain Undercrossing
1 Colorado Avenue
2 El Dorado Avenue
3 Matadero Creek & El Carmelo Avenue
4 Loma Verde Avenue & Margarita Avenue
5 El Verano Avenue
6 Lindero Avenue & Robles Park
7 Adobe Creek & Ely Pl
Source: Kittelson & Associates, Inc. 2024
Start
◼ Field observations started at the California Avenue Tunnel at Alma Street
◼ The existing undercrossing serves pedestrians and bicyclists crossing the railroad tracks
and Alma Street
◼ The tunnel width is narrow and inadequate to accommodate current volumes of two-way
pedestrian and bicyclist traffic during peak hours, particularly morning and afternoon
school peaks
◼ The tunnel grades are steep and not ADA-compliant, which requires bicyclists to either
dismount and walk or wait for pedestrians to clear the tunnel before biking through
◼ There are gates at both ends of the tunnel that enforce slower movement through the
tunnel and restrict two-way travel
◼ The tunnel is inadequately lit, which causes visibility and safety concerns
1: Colorado Avenue
◼ Colorado Avenue intersects Alma Street adjacent near the ramps to/from Oregon
Expressway
◼ The sloping exit ramp access creates challenges for tunnel structure, which would need to
extend deeper to clear the ramp up to Alma Street
◼ Alma Street is wider at this location, requiring longer structure to accommodate the
roadway and railroad
◼ This alignment provides access to California Avenue Caltrain Station
◼ If this alignment is selected, supporting improvements, such as widening or formalizing
access from Park Boulevard to the California Avenue Caltrain Station parking lot, should be
considered.
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Oregon Expressway on ramp from Alma
Street
Alma Street and Colorado Avenue
2: El Dorado Avenue
◼ El Dorado Ave intersects Alma Street at a wider, three-track railroad segment
◼ Access to Park Boulevard could be achieved through surface parking lots with property
acquisition, easement, or a connection to City-owned switching station
◼ The Caltrain right-of-way (ROW) is wider at this location, requiring a longer structure to
clear the roadway and railroad. A lease agreement or easement may be possible if the third
track is not in use.
Alma Street and El Dorado Alma Street and El Dorado
3: Matadero Creek & El Carmelo Avenue
◼ The area includes a service road and a narrow-banked channel along Matadero Creek
◼ The potential for widening Matadero Creek is limited by existing constraints
◼ Vertical clearance within Matadero Creek tunnel is insufficient
◼ Opportunities at this location involving the nearby City-owned power transmission property
could be explored
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◼
Alma Street and El Carmelo Ave Matadero Creek
4: Loma Verde Avenue & Margarita Avenue
◼ Consider implementing a center-running bicycle/pedestrian ramp on Loma Verde Avenue
Consider implementing one-way traffic on Loma Verde Avenue may mitigate impacts but
could affect residential driveways
◼ Property(ies) acquisition may be required on Park Boulevard near Margarita Avenue and
Loma Verde Avenue near Emerson Street
Park Blvd at Margarita Loma Verde at Alma Street
5: El Verano Avenue
◼ El Verano Avenue has on-street parking on both sides of the road with rolled curbs
◼ On-street parking was observed to be over 90% occupied
◼ The sidewalks on El Verano Avenue are narrow (approximately 5 feet wide) on Alma Street
and frequently interrupted by driveway access
◼ There are potential opportunities to utilize an auxiliary merge lane (a short, additional traffic
lane designed to facilitate smooth merging or diverging movements) on Alma Street, this
may be challenging due to frequent driveway spacing
◼ This would require property acquisition or easement to access Park Boulevard
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◼ There are two existing driveways to Boardwalk Apartments that could provide potential
future access for a new crossing
El Verano at Alma Street Boardwalk Apartments on Park Blvd
6. Lindero Ave & Robles Park
◼ The connectivity to existing bicycle and pedestrian network is limited and requires crossing
major arterials at Meadow Drive and Charleston Road or out-of-direction travel via indirect
streets within the Circles neighborhood
◼ Lindero Avenue at Alma Street is wide, and the landscaped strip along Alma Street provides
a potential location for a ramp structure
◼ Lindero Avenue is located between Meadow Drive and Charleston Road, where future grade
separation projects are planned (including future improved pedestrian/bicycle crossings)
◼ Consider the implications of nearby grade separation project on desirability of this as a
pedestrian/bicycle crossing location
◼ Connecting to Park Boulevard would require property acquisition
◼ A connection to Robles Park would provide access for multiple school routes
◼ If this alignment is selected, supporting improvements such as paving and widening paths
through Robles Park, should be considered
Lindero Drive at Alma Street Lindero Drive at Alma Street
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Attachment A - Existing
Conditions Report
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7: Adobe Creek & Ely Pl
◼ The creek channel is narrow, with limited potential for widening
◼ Access to the creek is constrains, as it abuts private property. It is challenging for
pedestrians and bicyclists to navigate from both sides of the railroad tracks
◼ Installing a crossing at Ely Place may require property acquisition
◼ The available ROW in this area is constrained/limited
◼
Adobe Creek Alma Street at Adobe Creek
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Attachment A - Existing
Conditions Report
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South Palo Alto Bike/Ped Connectivity DRAFT Design Priorities and Evaluation Criteria Memo
Kittelson & Associates, Inc. Page 1
SOUTH PALO ALTO BIKE/PED CONNECTIVITY
DRAFT DESIGN PRIORITIES AND EVALUATION CRITERIA
MEMORANDUM
Introduction
This memorandum presents the draft design priorities and evaluation criteria that will be used to guide
the development and selection of rail crossing designs and bicycle and pedestrian infrastructure options
(alternatives) in southern Palo Alto as part of the South Palo Alto Bike/Ped Connectivity Project (Project).
It also outlines the engagement and evaluation processes that will be utilized to inform the assessment of
designs and subsequent selection of two locally preferred alternatives.
Project Background
The City of Palo Alto Comprehensive Plan 2030 (2022), City of Palo Alto 2012 Bicycle and Pedestrian
Transportation Plan (BPTP) (2012), and Palo Alto Rail Corridor Study (2013) identified a critical need for
additional grade-separated bicycle and pedestrian crossings, particularly in the southern portion of the
City. In response, the City of Palo Alto is conducting this Project to assess ways to improve bicycle and
pedestrian access across the rail corridor in south Palo Alto.
The purpose of this Project is to develop community-supported locations and design concepts (15
percent designs) for two new grade-separated bicycle and pedestrian crossings of the Caltrain corridor
and Alma Street in south Palo Alto (i.e., south of Oregon Expressway/Page Mill Road). The Project will also
identify context-sensitive bicycle and pedestrian enhancements that link the proposed grade-separated
crossing sites to the existing/future bicycle and pedestrian networks within the neighborhoods adjacent
to the railroad tracks. The Project will engage the community to select preferred crossing locations,
designs, and network improvements and develop an implementation plan and funding strategy for future
construction.
Engagement Process
During the first engagement phase of this Project, Phase 1 Establish Design Priorities (Spring 2025), the
Project team is seeking community input to confirm crossing opportunity locations and establish design
priorities and evaluation criteria to be applied in the evaluation of alternatives. Engagement is occurring
via small group discussions, an online survey, several pop-up events, a community workshop, and
discussions at standing committee meetings. The outcome of Phase 1 will be prioritization of crossing
opportunity locations and a final set of design priorities and evaluation criteria that will be further
developed and evaluated in Phase 2.
During the next engagement phase of this Project, Phase 2 Feedback on Alternatives (Fall 2025), the
Project team will present concept designs and corresponding network modifications for up to eight
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Attachment B - Draft
Design Priorities and
Evaluation Criteria
Memorandum
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South Palo Alto Bike/Ped Connectivity DRAFT Design Priorities and Evaluation Criteria Memo
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alternatives and evaluate each alternative using the selected design priorities and evaluation criteria
established in Phase 1. The initial eight alternatives and completed evaluation will be shared with the
community for review and feedback during Phase 2 via small group discussions, pop-up events, a second
online survey, a second community workshop, and discussions at standing committee meetings. The
feedback received during this phase will result in the refinement and selection of two preferred
alternatives that will be carried forward for 15 percent concept design.
The Public Draft Report will be shared for feedback as part of Phase 3 Review Public Draft Report (Spring
2026). The Final Report will be shared in Summer 2026 in Phase 4 Final Report for community review and
Council adoption.
Draft Design Priorities
The following draft design priorities were identified based on the Project needs, goals, benefits, and
themes documented in several plans and studies previously prepared by the City, which are summarized
in the literature review in the South Palo Alto Bike/Ped Connectivity Existing Conditions Report (April 2,
2025).
•Improve Mobility: Prioritize locations and designs that integrate with surrounding networks,
provide access to critical destinations, serve the most users, and accommodate current and
future transportation needs.
•Enhance User Experience: Design facilities guided by the prioritization of the most vulnerable
populations, and create safe, well-lit spaces that are comfortable to access and utilize.
•Maximize Ease of Construction: Minimize potential for disruption during construction and
complexity of design, while ensuring that construction costs and maintenance costs are feasible
to implement given reasonably expected project funding.
•Enhance Visual Appeal: Ensure that newly constructed facilities enhance the sense of community
by incorporating public art, public spaces, and attractive structures.
•Minimize Community Impacts: Limit potential impacts on existing neighborhoods, including the
amount of space needed (parking spaces, roads, and buildings are minimally affected) and
impacts on the environment.
Draft Evaluation Criteria
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Attachment B - Draft
Design Priorities and
Evaluation Criteria
Memorandum
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South Palo Alto Bike/Ped Connectivity DRAFT Design Priorities and Evaluation Criteria Memo
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Table 1. Draft Design Priorities and Evaluation Criteria
Draft Design
Priority
Draft Evaluation
Criteria1
Description
Improve
Mobility
Accessibility Walk and bike access within 5- 10- and 15-minutes
Demand# Projected number of users during the weekday peak hour
Capacity#
Width of facility and ability of rail crossing to accommodate
people walking and biking
Enhance
User
Experience
Crossing length# Total length of the crossing facility
Crossing elevation# Total change in elevation of the crossing facility
Pedestrian and
bicyclist comfort
Extent to which existing bicycle and pedestrian network would
provide low-stress access to the rail crossing(s)
Personal security
Alignment of rail crossing facility and approaches with Crime
Prevention Through Environmental Design (CPTED) best
practices
Maximize
Ease of
Construction
Utility and right-of-
way impacts
Level of disruption to existing and planned utilities, extent of
relocations required, extent of right-of-way impacts
Construction cost# Rough order of magnitude of project construction cost
Operations and
maintenance cost
Magnitude of projected annual cost of operations and
maintenance
Enhance
Visual
Appeal
Public space and
green infrastructure
Potential to create new public spaces and implement green
infrastructure
Minimize
Community
Impacts
Environmental
impacts
Extent to which crossing impacts the environment -
impervious areas, creeks/drainage, sea level rise, wetlands,
sensitive habitats
Parcel impacts#
Number of parcels needed, all or in part, to construct crossing
and approach facilities
Parking and
driveway impacts
Extent to which rail crossings affect existing vehicle parking
and access to existing driveways
Notes:
1 Criteria marked with an “#” are quantitative and a specific value will be presented. Criteria without a “#” are qualitative and will be scored using
a scale of high, medium, and low, for its performance.
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Design Priorities and
Evaluation Criteria
Memorandum
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Next Steps
With input from community and committee members, the final evaluation criteria will be selected based
on how well they facilitate evaluation against the overarching set of established priorities and how
effectively they differentiate alternatives. Each of the eight crossing alternatives will be evaluated against
the same subset of criteria and scored quantitatively with a specific value reported or qualitatively using a
scale of high, medium, and low, for its performance. The results of this evaluation will be presented in
Phase 2 Feedback on Alternatives and community input will be sought to inform selection of the two
preferred alternatives for the rail crossing and associated bicycle and pedestrian infrastructure
improvements in south Palo Alto.
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Attachment B - Draft
Design Priorities and
Evaluation Criteria
Memorandum
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