April 11, 2006
REPORT IN BRIEF
This report updates activities on the Borregas Avenue Bicycle and Pedestrian Overcrossing Project. The Borregas Avenue Bicycle and Pedestrian Over-crossing project will provide a more safe and convenient bicycle and pedestrian access between central Sunnyvale (residential areas and Caltrain) and north Sunnyvale (major employment area and light rail), along the north-south Borregas corridor. The project accomplishes this by constructing two bicycle and pedestrian overcrossings of Highway 101 and State Route 237. Freeways 101 and 237 constitute a major east-west barrier along the corridor. Borregas has low traffic volumes and medium-low density land uses within the project limits. The closest parallel routes that cross the freeways, Mathilda Avenue and Fair Oaks Avenue, have high traffic volumes and speeds, side friction from driveways, parked vehicles and intersecting roadways, and no bike lanes. The over-crossings will eliminate about two miles of detours for bikes and pedestrians to cross over the freeways. The project will also improve access to the Bay Trail and other recreational facilities such as Baylands Park and the John W. Christian Greenbelt. It also provides improved access to the Santa Clara Valley Transportation Authority (VTA) Light Rail, Caltrain and Lakehaven Elementary School and Columbia Middle School.
The over-crossings are included in the Tier 1 priority list of projects in the Santa Clara Countywide Bicycle Expenditure Program. It is located on County Bicycle Corridor #14 as designated in the Valley Transportation Plan 2020. The project is now at the 95% design stage, environmental clearance has been achieved, and consideration by the California Transportation Commission is pending in June.
BACKGROUND
In September 1998, the City completed a feasibility study of the construction of two new bicycle/pedestrian bridges over Routes 101 and 237 in a Borregas Avenue alignment (See Attachment A for a Project Vicinity Map). These bridges would create a new alternative transportation corridor between central Sunnyvale and the Moffett Industrial Park. In accepting the study, the City Council directed staff to continue planning for these bridges. The City has secured several grants for preliminary engineering, environmental reporting, and construction of these bridges. The project was granted outside funding from various sources as part of the Santa Clara County Valley Transportation Authority's (VTA) Bicycle Expenditure Program. Staff has been coordinating the design, environmental, community outreach, and State approval process for this project for the last several years. The project is now at the 95% design stage, environmental clearance has been achieved, and consideration by the California Transportation Commission is pending in June.
This report is for information only. The Borregas Bridges Project was originally placed on the Study Issue Calendar to complete a feasibility study, which was approved by Council in 1998 and grant funding for a capital project subsequently secured. This item was retained on the Study Issue Calendar by staff as a means to keep City Council informed of the progress of the project.
EXISTING POLICY
Land Use and Transportation Element: Goal C3-Attain a transportation system that is effective, safe, pleasant, and convenient.
Land Use and Transportation Element: C3.5.1 Promote alternate modes of travel to the automobile.
Land Use and Transportation Element: C3.5.4 Maximize the provision of bicycle and pedestrian facilities
Land Use and Transportation Element R1.2, Support coordinated regional transportation system planning and improvements.
Land Use and Transportation Element C3.7, Pursue local, state, and federal transportation funding sources to finance City transportation capital improvement projects consistent with City priorities.
DISCUSSION
Engineering Process
In 1998 the City completed a study issue that prepared a feasibility study for a Borregas project. The idea for this project was developed by the Sunnyvale Bicycle and Pedestrian Advisory Committee. The initial feasibility study considered a range of potential alternatives and identified issues and considerations with each. Based on the results of this study, the project has focused on two horseshoe-shaped bridges landing adjacent to the Highway 101 and State Route 237 freeways (See Attachment B).
In May 2001, the City issued a Request for Qualifications (RFQ) for the selection of a design firm to prepare a Project Study Report (PSR) for the Borregas Avenue Bicycle Corridor project. A Project Study Report is a requirement of a State-funded portion of the project and constitutes technical approval of the project concept and major features. The RFQ was distributed to fourteen firms. The firm of Brain Kangas Foulk (BKF) Engineers of Redwood City was selected for preparation of the PSR.
The City completed advanced planning studies and an alternatives analysis in order to gain necessary permits and approvals from the Metropolitan Transportation Commission (MTC) and the California Department of Transportation (Caltrans). MTC concurrence was achieved. Several iterations of a PSR document were submitted for consideration by Caltrans. For various reasons, including a staffing shortfall at Caltrans, this document underwent several lengthy revisions and did not receive approval before reasonable professional services contract costs for BKF were significantly exceeded (total contract was $158,602 funded through the project grant revenue from Federal TEA-21 as well as Gas Tax funds). As funding considerations placed pressure on the schedule, the BKF contract was closed out and the project was moved to the design and environmental phase without approval of the PSR by Caltrans. The PSR/Project Report approval process was subsequently included in the work scope for the design engineer.
In August 2004, a Request for Proposals was issued, seeking proposals from qualified engineering firms to design the pedestrian/bicycle bridges over Highways US 101 and SR 237, to prepare construction documents and to provide construction phase services. Proposals were received from six firms. An evaluation team consisting of City staff from the Department of Public Works and Planning, Caltrans staff and VTA staff, determined that the proposal from T. Y. Lin International offered the best value to the City. T.Y. Lin International is a general transportation engineering services firm specializing in the design of bridges and other transportation structures. They have designed more than thirty bicycle/pedestrian bridges in California and have extensive experience coordinating with Caltrans. The firm also has the organizational structure to complete the project on an aggressive schedule in order to meet funding requirements.
The project design and engineering has progressed significantly. Right of way certification, bridge type selection, environmental documentation, Project Study Report/Project Report preparation, and 95% design/specifications/estimate are all complete. Sign off by the California Transportation Commission is still required as part of the funding process and a Cooperative Agreement to be executed between Caltrans and the City is in draft. Also, as final cost estimates are developed for construction, staff is anticipating that a request will be submitted for additional funding through the VTA Bicycle Expenditure Program. This request will occur as part of an upcoming update of the Bicycle Expenditure Program, and is anticipated to be approved by the VTA. Finally, Caltrans will need to issue an encroachment permit to allow for construction in the State right of way.
Environmental Review/Community Outreach
Outreach meetings have been held throughout the project development process, and a number of issues raised. The community outreach process culminated in a pair of meetings held in September and November, 2005 to gather stakeholder input and develop responses to concerns. These meetings were well attended, and a large number of concerns, both previously stated and new, were expressed at the initial meeting. A mix of alternative transportation supporters, residents, and business community representatives were in attendance. Staff and the consulting team returned with responses to concerns at the second meeting. A number of features have been incorporated into the project to address concerns. The project team concluded that the outreach process provided valuable input towards addressing community concerns, and feedback at the second meeting was largely receptive. Summaries of these two meetings are included as Attachment C.
Key issues and measures proposed to address community concerns are as follows:
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ISSUE |
RESPONSE |
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Traffic control, visibility, traffic safety at the Ahwanee/Borregas intersection |
Project to incorporate three way stop sign, high visibility crosswalks, extensive advance warning signs, high visibility flashing signs, lighting |
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Loss of parking spaces on Ahwanee Drive causing a shift in parking demand to neighborhood street |
Extensive parking study completed, propose residential permit parking on Alturas Avenue to address parking spillover issues. |
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Sufficient bridge landing area at Ahwanee Avenue |
Landing area to extend the length of the intersection, extra width beyond sidewalk standard. Bridge rail redesign to accommodate bikes. Bicycle/pedestrian scale warning signs. |
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Overflow lighting from the bridge |
Lighting design to angle inward from bridge railing towards center of the travel way |
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Lack of landscaping visible from residences, general aesthetics |
Landscaping will be included in an area underneath the ramp structure. Distinctive column shape, fencing shape and color, and concrete formliner will be used to give architectural appeal to the structure |
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Visibility from the structure towards residences |
Combination of tight mesh baffle screen and angled screen will be installed on the structure |
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Graffiti |
Anti-graffiti materials and shapes to be used |
This project received a Mitigated Negative Declaration of environmental impacts per the California Environmental Quality Act (CEQA), based on identification and response to environmental issues. An initial study document was prepared and noticed to the general community per CEQA, as well as stakeholder community groups and all attendees at community meetings. One comment was received on the environmental document from Caltrans, citing the need for an encroachment permit for construction of this project. There were also three emails received in support of the project.
Funding Background and Considerations
In April 2000, City Council approved a resolution and budget modification authorizing the City Manager to execute a funding agreement for initial preliminary engineering costs related to the Borregas Avenue Bicycle Corridor project. Included in the budget modification was the recognition of $132,000 in Federal TEA-21 funds and related expenditures totaling $159,202. A local match of $17,152, as required by Federal TEA-21 regulations, was also appropriated to fully fund this first grant phase of this project. These actions were taken in response to a recommendation by VTA that unanticipated Federal TEA-21 funds be granted to the City for preliminary engineering costs.
The Metropolitan Transportation Commission (MTC), the programming authority for Federal TEA-21 funds, then informed the VTA that federal funds cannot be used for preliminary engineering costs unless a fully funded project plan is in place. At that time project construction phase costs were estimated at $4,508,000. Subsequently, VTA developed and approved a ten year, $31 million Bicycle Expenditure Plan for Santa Clara County that made additional funding for the construction phase of the project a regional priority. Under this plan the City was eligible for $1,500,000 in State Transportation Improvement Program funds and an additional $3,000 in Federal TEA-21 funds. The remaining funds needed to fully fund the construction phase of this project were to come from VTA's Bicycle Expenditure Program, $2,200,000, and a local match of $805,000 from the City's Future Land Use and Transportation reserve established through the collection of Cumulative Traffic Mitigation funds. Staff identified the use of Cumulative Traffic Mitigation fees as the local match source due to the improvement in north-south corridor travel that will result from the completion of this project. North-south bicycle travel barriers are an identified transportation deficiency in the Land Use and Transportation Element and Sunnyvale Bicycle Plan.
Staff has continued to work closely with the VTA staff to review and update funding for this project. In April 2002, a grant application proposal for regional Transportation Fund for Clean Air (TFCA) funds was submitted for the project. Authorization and funding for $400,000 of TFCA funds was granted in July, 2002. A budget adjustment also occurred at this time to reflect higher actual programming of federal Intermodal Surface Transportation Equity Act funds (ISTEA) in the amount of $14,000.
The current project budget stands at $6,487,000. The VTA Bicycle Expenditure Program has programmed $5,040,000 in funding for this project through various sources (TFCA, Measure B, TDA 3, and TEA). The remaining funding comes from the ISTEA funding ($150,000) as well as the City’s Future Land Use and Transportation Reserve ($1,297,000 - $805,000 transferred in FY 01/02 and $492,000 transferred in 05/06).
The total estimated cost to complete the design and construction of the Borregas Avenue Bicycle Corridor Project is projected to come in higher than the current budget, at an estimated $8.4 million total cost. This $1,913,000 increase is due primarily to the length of time of project development and significant fluctuations in materials costs over the time of project development. Staff is working with the VTA to identify the additional funds. As per the VTA Bicycle Expenditure Program (BEP) requirements, the City must contribute 20% of the total project cost with non-BEP funds. An additional City match would likely be required in an amount estimated at $233,000. This funding would most likely come from the Land Use and Transportation Reserve. This would bring the total non-BEP match to $1,680,000 ($1,297,000 Land Use and Transportation Reserve, $150,000 Federal funds, $233,000 to be determined). Consistent with City Policy, staff will pursue various non-BEP grant funding sources to fulfill the matching requirement. However, no additional outside funding for the matching requirement has been secured at this time. Staff will return to Council at the time of the project bid with a budget modification to consider additional funding.
FISCAL IMPACT
There is no fiscal impact associated with this project update. The Borregas Bicycle and Pedestrian Bridges Project is budgeted in the current Resource Allocation Plan at $ 6,487,000 from a number of funding sources The total estimated cost to complete the design and construction of the Borregas Avenue Bicycle Corridor Project is projected to come in higher than the current budget, at an estimated $8.4 million total cost. This $1,913,000 increase is due primarily to the length of time of project development and significant fluctuations in materials costs over the time of project development. Staff is working with the VTA to identify the additional funds. As per the VTA Bicycle Expenditure Program (BEP) requirements, the City must contribute 20% of the total project cost with non-BEP funds. An additional City match would likely be required in an amount estimated at $233,000. This funding would most likely come from the Land Use and Transportation Reserve. This would bring the total non-BEP match to $1,680,000 ($1,297,000 Land Use and Transportation Reserve, $150,000 Federal funds, $233,000 to be determined).
Consistent with City Policy, staff will pursue various non-BEP grant funding sources to fulfill the matching requirement. However, no additional outside funding for the matching requirement has been secured at this time. Staff will return to Council at the time of the project bid with a budget modification to consider additional funding. The Borregas Bicycle and Pedestrian Bridges project is very cost effective for the City. More than 80% of the project funding will be secured from outside sources. The additional $173,000 will be needed to leverage this full 80% project funding.
CONCLUSION
The Borregas Bicycle and Pedestrian Bridges Project, first proposed by the Sunnyvale Bicycle and Pedestrian Advisory Committee and supported by the City Council since 1999, is nearing the construction phase. Significant milestones have been achieved and the community is largely supportive or not opposed to the project. The City Council will have an opportunity to consider moving ahead with construction upon California Transportation Commission approval of current State funding, and identification of additional regional and local funds. This could be as early as late 2006.
The purpose of the project is to improve north-south bicycle and pedestrian travel by eliminating significant barriers. While the predominant travel flow in the City is north-south, significant barriers exist on main north-south roads for bicycle and pedestrian travel – freeways, dangerous intersections, narrow roadways, and Caltrain. The City has had policy for years to try to address these barriers to north-south travel, but the bikeway network is still mostly discontinuous on either side of the 101 and 237 freeways. The Borregas Project spans freeway barriers by connecting discontinuous segments of Borregas Avenue. It provides the benefits of low volume, wide roadway with bike lanes, neighborhood connections to schools, recreational trails and parkway facilities, other bikeways, and access for the disabled.
The project is considered a regional priority, and the VTA supports major outside funding from federal, air quality, and sales tax sources. City is providing matching funds from developer mitigation funds. After an initial feasibility study that looked at overall feasibility and potential alternatives, the design has proceeded through several technical steps and is nearing final approval from State and other involved agencies. The design is at the 95% stage and takes into account input on key community issues heard during a community outreach process. These include:
- Enhanced crosswalks will be provided at frontage roads – high visibility signs, ladder style crosswalks, and a new stop sign at Ahwanee and Borregas Avenues.
- New parking controls to avoid shifts in parking demand in the Ahwanee/Alturas neighborhood.
- Unobtrusive lighting aimed at the walkway with minimal spillover.
- Aesthetic treatments to the concrete, alternative bridge pier shapes, and opportunities to add color.
- Landscaping fronting residential areas.
- Privacy screening to yards adjacent to the Ahwanee Avenue.
Time frame is for construction to potentially begin late 2006, with the bulk of work in 2007.
PUBLIC CONTACT
Public contact was made through posting of the Council agenda on the City’s official notice bulletin board, posting of the agenda and report on the City’s web page, publication of the Council agenda in the San Jose Mercury News, and the availability of the report in the Sunnyvale Library and the City Clerk’s Office.
All owners and tenants of the properties in the vicinity of the project were noticed of the meeting by direct mail.
This item was considered by the Sunnyvale Bicycle and Pedestrian Advisory Committee on March 30, 2006. The Committee took action to “endorse the Borregas Avenue Bicycle/Pedestrian Bridges Project and recommend that the Council accept the information only update report.”
RECOMMENDATION
This report is for information only. This report updates activities on the Borregas Avenue Bicycle and Pedestrian Over-crossing Project, which is nearing the Construction Phase. The Borregas Avenue Bicycle and Pedestrian Over-crossing project will provide more safe and convenient bicycle and pedestrian access between central Sunnyvale and north Sunnyvale, along the north-south Borregas corridor.
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Approved by:
Marvin A. Rose,Director of Public Works
Prepared by Jack Witthaus, Transportation and Traffic Manager |
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Approved by:
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Amy Chan |
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City Manager |
Attachments
A. Project Vicinity Map (pdf 473k)
B. Borregas Bridges Conceptual Site Plans (pdf 606k)
C. Community Meeting Summaries (pdf 678k)
D. Study Issue Paper DPW – 01C Engineering of a Borregas Avenue Bicycle Corridor (pdf 52k) |