SunnyvaleRTC

May 9, 2006

SUBJECT: Sunnyvale Caltrain Station North Side Access – Position on Near Term Improvements

REPORT IN BRIEF

For many years an informal access path from Hendy Avenue to the Sunnyvale Caltrain station north platform has been fashioned by pedestrians wishing to access the station (Location map, Attachment 1). To gain this access, Caltrain’s right of way fence has been vandalized. Despite the fact this is not City property, over the years the City has pursued formalizing this access or improving another route. For various regulatory, policy, and liability reasons, and potential conflicts with long range planning with the primary responsible agencies, the Peninsula Corridor Joint Powers Board (Caltrain) and the California Public Utilities Commission (CPUC), those agencies have not supported improvements.

However, improvement of the Caltrain platforms to provide gated, controlled crossings and restrict access across the right of way has alleviated many of the CPUC’s concerns at this site. Caltrain has also modified its position, and is now prepared to support construction of a formal access in the near term, should the Sunnyvale community demonstrate support. This access would involve construction of a walkway to the north platform, from which pedestrians would use the existing at-grade crossings to cross the tracks (Attachment 2). Construction would likely be performed by Caltrain, with financial support from the Santa Clara Valley Transportation Authority (VTA). Caltrain requests that the Sunnyvale City Council act to transmit the community’s position on formalizing near term access.

City staff, in cooperation with Caltrain and the VTA, held a community meeting on April 20, 2006 that was attended by approximately 70 citizens. Support for construction of a formal access in the near term was nearly unanimous. A small number of citizens in attendance are opposed to a formal opening. A number of associated concerns were raised including traffic, parking, littering, and crime. The City has also received a significant amount of correspondence overwhelmingly in favor of improving the path (see Attachment 3). Based on this showing of support, staff recommends that the City Council endorse construction of a walkway from Hendy Avenue to the Sunnyvale Caltrain station north platform, subject to negotiation and formalization of any required cooperative agreements, permits, funding or other arrangements between the City, Caltrain, and the Santa Clara Valley Transportation Authority. Staff further requests that the City Council authorize the City Manager to negotiate and execute any required agreements to facilitate construction of this access.

Due to the recent repairs to the Caltrain right of way fence that have blocked access to the station via the illegal path, many citizens requested that the City address this issue urgently. As a result, staff has processed this report as an urgency item. The Sunnyvale Bicycle and Pedestrian Advisory Committee (BPAC) could not review this report at a regular meeting prior to its publication, so a special meeting was scheduled. The BPAC recommendation will be delivered verbally by staff at the May 9, 2006 Council meeting.

BACKGROUND

Formal access for pedestrians from north of the Caltrain tracks to the train station and points south currently exists via an obsolete pedestrian overpass at Mathilda Avenue, and the Sunnyvale Avenue at-grade railroad crossing. For many years, pedestrian “desire lines” have eschewed these routes, resulting in illegal fence cutting and trespassing across the Caltrain right of way. The most prominent and notable location has existed at Hendy Avenue and Frances Street.

The City has occasionally but consistently received requests to formalize this access. The access route is primarily on Caltrain property. Improvement requires at a minimum Caltrain’s permission, if not their primary participation. Formalizing the access has historically required the approval of the CPUC due to the creation of a route that would serve not only train patrons, but the public in general. Both agencies have not historically been supportive of various proposals, grant applications, etc. put forth by the City to facilitate improving the access. In recent years, the City has concentrated its efforts on supporting a longer term plan by Caltrain for underpass construction that would allow for Hendy Avenue access.

Recently, Caltrain improved the Sunnyvale station platforms with a number of features, including access control across the tracks. Unguarded crossings were replaced with fencing, warning bells, gates, and channelizations to guide passengers along a protected route that faced oncoming trains. When contacted by a local resident, the CPUC indicated that these improvements would alleviate its concerns about public, non-train patron access across the tracks from Hendy Avenue. The City subsequently secured a letter from the CPUC stating that it would abdicate its jurisdiction in this regard.

At the time, the City was initiating work on a grant funded project to develop a plan, concept drawings and environmental clearance for an ultimate set of improvements for the Hendy Avenue interface, with the emphasis on an underpass. After confirming with Caltrain that an at-grade, near term improvement could be considered as an option for access from Hendy Avenue, the City and Caltrain began discussions on planning alternatives. Initially, Caltrain was reluctant to provide access in the short term until a long term plan was identified and approved.

In early April a citizen filed an Americans with Disabilities Act complaint with the Federal Transit Administration and the State Attorney General regarding the Hendy Avenue access. Because this complaint was filed for an informal, illegal access, Caltrain had no choice but to immediately repair and actively maintain its right of way fence or face criminal charges. Repairs to the fence caused users of the illegal access to contact the City and Caltrain in significant numbers. This prompted Caltrain to reconsider its position to preclude near term improvements, and to indicate its willingness to support and potentially construct a walkway in the near term.

EXISTING POLICY

The following documents contain policy direction on this issue:

Land Use and Transportation Element R1.1 Advocate the City’s interests to regional agencies that make land use and transportation system decisions that affect Sunnyvale.

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 C3.5.7, Ensure safe and efficient pedestrian and bicycle connections to neighborhood transit stops.

Land Use and Transportation Element C3.6.1 Develop clear, safe and convenient linkages between all modes of travel; including access to transit stations and stops, and connections between work, home, and commercial sites.

DISCUSSION

At this time the most significant hurdles impeding construction of a walkway between Hendy Avenue and the Sunnyvale Caltrain station north platform appear to have been removed. Caltrain has indicated that they will pursue construction of a walkway if the Sunnyvale community desires. Funding for design and construction of a relatively austere facility has been identified by the VTA from its share of Caltrain operating subsidies. A walkway would feature access for the disabled, lighting, a crosswalk or crosswalks on Hendy Avenue, and garbage cans. Some residents have expressed interest in at least some level of “gateway” features.

Caltrain currently maintains the station platforms and appurtenances within their right of way. Staff assumes that Caltrain would similarly maintain a walkway. Garbage service would be by the City’s garbage contractor.

Community Input

A community meeting was held on the issue of near term Caltrain station access on April 20, 2006 at the Sunnyvale Community Center. Approximately 70 citizens attended. Minutes of the community meeting, and written comments received at the meeting are attached (Attachments 4 and 5). Support for construction of a near term access was nearly unanimous, but some concerns were raised. These included:

· Commuters parking in the neighborhood. Currently, unlimited parking is allowed on the south side of Hendy Avenue adjacent to the railroad tracks, while parking in the rest of the neighborhood is restricted to 7 hours. Residents indicate parking restrictions are not regularly enforced. Opinions on parking restrictions are mixed in the neighborhood. A recent neighborhood poll discovered that a majority of residents and property owners favor keeping or increasing the hours of restriction, but some residents support removal of all restrictions and some residents prefer a residential permit parking program. The City has limited resources to manage parking, and does not have sufficient resources to manage an effective permit parking program in a neighborhood as large as the Diana Park area. Previous City Councils have not supported allocating additional resources for parking enforcement.

· Speeding traffic. Residents perceive that speeding is an issue on Hendy Avenue, Frances Street, and other neighborhood streets. Some residents suggested additional traffic control at the Hendy/Frances intersection, or traffic calming measures in the neighborhood. Staff recently made a presentation to the Heritage District Neighborhood Association on the City’s Traffic Calming Policy, but residents to date have not elected to submit a petition for consideration of traffic calming. The Department of Public Safety has been notified of the speeding concerns.

Staff is not recommending any changes to parking restrictions or implementation of traffic calming, but is recommending the installation of a three way stop sign at the intersection of Frances and Hendy. Stop signs are typically placed when certain traffic conditions are met, as defined by standardized “warrants” defined by State and Federal guidance. A warrant study is a standardized engineering “test” of whether traffic conditions are present to justify placement of stop signs. It is unlikely that this location will meet the traffic volume or collision history conditions to warrant a stop sign. However, Federal warrant study guidance does state that additional factors may be taken into account, including:

A. The need to control vehicle/pedestrian conflicts near locations that generate high pedestrian volumes;

B. Locations where a road user, after stopping, cannot see conflicting traffic and is not able to reasonably safely negotiate the intersection unless conflicting cross traffic is also required to stop; and

C. An intersection of two residential neighborhood collector (through) streets of similar design and operating characteristics where multi-way stop control would improve traffic operational characteristics of the intersection.

These conditions are present at the intersection of Hendy and Frances. Pedestrian volumes using the illegal “hole in the fence” were considerable, estimated at as many as 50-100 pedestrians per hour at peak times. Pedestrian traffic would need to emerge from behind a line of trees along the railroad right of way, which impairs visibility to oncoming drivers. Frances Street and Hendy Avenue are through streets with similar characteristics and traffic volumes, and having Hendy traffic stop for Frances traffic, as Frances traffic now stops for Hendy, may address resident speeding concerns and reduce potential conflicts between traffic entering Hendy from Frances and traffic on Hendy. This would represent an operational improvement. The City Council can, at its discretion, direct the installation of a stop sign. Should the Council decide to support a near term Hendy/Caltrain walkway, then based on the above factors the Council may want to consider directing installation of an all way stop sign.

A small number of residents of the area in the immediate vicinity of the proposed access spoke in opposition to providing formal access. Primary concerns were commuters parking in the neighborhood, garbage, and crime.

The Advisory Committee on Accessibility (ACA) reviewed the Hendy/Caltrain access issue at its April 12, 2006 meeting. Minutes of this meeting are attached (Attachment 6). The Committee was generally receptive to supporting construction of a Hendy/Caltrain access in the near term. The Committee also suggested methods to improve the existing route via Sunnyvale Avenue.

The Sunnyvale Bicycle and Pedestrian Advisory Committee (BPAC) could not review this report at a regular meeting prior to its publication, so a special meeting was scheduled. Any public input from the BPAC public hearing will be transmitted verbally by staff at the May 9, 2006 Council meeting.

Long Term Plans And Other Considerations

Long term plans for the Sunnyvale Caltrain station area include proposals that would impact a walkway constructed today. Caltrain’s long range plan calls for construction of four tracks along the entire San Jose-San Francisco route. This would require elimination of station at-grade crossings, and would use the right of way that a walkway would be built on. Access from Hendy Avenue could remain, but access across the tracks would be via a grade separation, most likely an underpass. Caltrain may also modify the station platforms to accommodate longer trains. This could affect the location of an underpass, and therefore the location of access from Hendy Avenue could change. Sunnyvale has received a grant to consider these issues and develop, in cooperation with Caltrain, a plan for a future pedestrian grade separation. This plan is in the early alternatives development stage. Staff intends to continue with production of this plan, and an underpass project is identified as a priority in the Valley Transportation Plan 2030. However, Caltrain now estimates that four tracking is not likely to take place for at least 5 to 10 years. This is part of the reasoning why Caltrain feels it can support construction of a near term access. Construction would be done with the understanding that it is likely that the walkway and at-grade crossing will be replaced in the future, and the access point from Hendy potentially moved.

Another consideration is grade separation or closure of Sunnyvale Avenue. Caltrain staff have expressed informally on several occasions the agency’s desire to eliminate at-grade road crossings of the railroad, specifically Sunnyvale Avenue. This is for the purpose of eliminating the potential for collisions. Recently Caltrain staff have expressed concerns over the physical ability and cost effectiveness of grade separating Sunnyvale Avenue, and have suggested that closure of the road may be an approach. This could not occur without the City’s consent. The City has not considered the issue of closure, but has gone on record as supporting grade separation (LAP 1.i.20). Grade separation could change the track elevation along Hendy Avenue, which could also affect a walkway.

The City also has a project to rehabilitate the Mathilda Avenue Caltrain Bridge. This project includes reconstruction of the existing pedestrian walkway on the bridge. This walkway does not meet Americans with Disabilities Act design standards pertaining to ramp slopes and width. It has been characterized as an unpleasant place to walk as well, due to pedestrians having to walk in close proximity to Mathilda Avenue traffic with no barrier separation. The reconstructed bridge walkway will meet ADA standards and provide a barrier between pedestrians and traffic. However, interest has been expressed in considering an underpass as an alternative to a reconstructed bridge walkway. The relevance to the Hendy Avenue issue is that the bridge project will provide another ADA compliant access across the tracks. It is not likely to be a convenient route for many of the users of the illegal Hendy Avenue access, but it will provide a reasonable alternative for pedestrians destined to the Applied Signal Technology complex or destinations closer to Mathilda Avenue. An underpass alternative could potentially be configured to serve both train patrons desiring to reach the north platform and pedestrians accessing the station or downtown from the north. Therefore, this alternative could be another substitute for a Hendy access. However, no funding has been identified to construct this underpass in the near term.

FISCAL IMPACT

There is no fiscal impact associated with taking a position on construction of a Sunnyvale Caltrain station north side access in the near term. Funds for design work were previously approved by the City Council as part of project Project 825990, Caltrain North Side Access Improvements. Funds for construction of a walkway would be borne by the Santa Clara Valley Transportation Authority. Caltrain is currently responsible for maintenance of station platforms and other appurtenances within the right of way, and staff assumes that Caltrain would assume maintenance responsibilities and costs for a walkway.

PUBLIC CONTACT

Staff met with the Heritage District Neighborhood Association regarding the access issue and the City’s access planning project in October, 2005. A community meeting was held on the near term access issue on April 20, 2006. Notices of this meeting were direct mailed to 913 residents, property owners, business owners, and concerned individuals. Signs were also posted at the Caltrain station regarding this meeting. The meeting was advertised on KSUN and on the City’s web site.

Public contact of this Council report and hearing 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, and the availability of the report in the Library and the City Clerk's Office. Notices of the hearing were mailed to 913 residents, property owners, business owners, and concerned individuals, as well as attendees of the April 20, 2006 community meeting. The BPAC recommendation will be delivered verbally by staff at the May 9, 2006 Council meeting.

CONCLUSION

For many years an informal, yet illegal access path from Hendy Avenue to the Sunnyvale Caltrain station north platform has been fashioned by pedestrians wishing to access the station. The City has supported formalizing this access, but for various regulatory, policy, and liability reasons, and potential conflicts with long range planning, the primary responsible agencies, the Peninsula Corridor Joint Powers Board (Caltrain) and the California Public Utilities Commission (CPUC) have not supported improvements.

Improvement of the Caltrain platforms to provide gated, controlled crossings and restrict access across the right of way have alleviated many of the CPUC’s concerns, and significant public outcry supporting formalizing the access has led Caltrain to modify its position. Caltrain now is prepared to support construction of a formal access in the near term, should the Sunnyvale community demonstrate support. Caltrain has requested that the Sunnyvale City Council act to transmit the community’s position on formalizing near term access. City staff, in cooperation with Caltrain and the VTA, held a community meeting on April 20, 2006 that was attended by approximately 70 citizens. Support for construction of a formal access in the near term was nearly unanimous. A number of associated concerns were raised, including traffic, parking, littering, and crime. A small number of citizens in attendance were opposed to a formal opening. The City has also received a significant amount of correspondence overwhelmingly in favor of improving the path

Determination of the ultimate, longer term improvements for this area remains an open issue. Installation of additional tracks, platform lengthening, and/or construction of a high speed rail system on the Caltrain right of way may necessitate construction of a grade separation (likely an underpass) which could affect any walkways constructed today. However, Caltrain indicates that any changes to the current uses within their right of way are likely 5 to 10 years from consideration.

ALTERNATIVES

1. Support construction of a walkway from Hendy Avenue to the Sunnyvale Caltrain station north platform, subject to negotiation and formalization of any required cooperative agreements, permits, funding or other arrangements between the City, Caltrain, and the Santa Clara Valley Transportation Authority. Direct staff to transmit this position to Caltrain, and authorize the City Manager to negotiate and execute any required agreements to facilitate construction of this access.

2. Direct staff to install an all way stop sign at Hendy Avenue and Frances Street coincident with construction of a walkway.

3. Oppose construction of a walkway from Hendy Avenue to the Sunnyvale Caltrain station north platform and direct staff to transmit this position to Caltrain.

4. Direct staff to consider other alternatives for providing pedestrian access from Hendy Avenue or the neighborhood north of the Caltrain station.

RECOMMENDATION

Staff recommends Alternatives 1 and 2: City Council endorse construction of a walkway from Hendy Avenue to the Sunnyvale Caltrain station north platform, subject to negotiation and formalization of any required cooperative agreements, permits, funding or other arrangements between the City, Caltrain, and the Santa Clara Valley Transportation Authority. Staff further requests that the City Council authorize the City Manager to negotiate and execute any required agreements to facilitate construction of this access. Also, staff recommends that the City Council direct staff to install an all way stop sign at the intersection of Hendy Avenue and Frances Street.

Based on the strong showing of community support for an improved walkway access and the Caltrain’s and CPUC support for construction of a formal access in the near term from Hendy Avenue to the Caltrain station, staff recommends that the City Council endorse construction of a walkway.

Reviewed by:

Marvin Rose, Director, Public Works

Prepared by Jack Witthaus, Transportation and Traffic Manager

Approved by:

Amy Chan

City Manager

Attachment

1. Location Map (.pdf)

2. Conceptual Drawing of a Hendy Avenue/Caltrain Access (.pdf)

3. Correspondence Received (.pdf)

4. April 20, 2006 Community Meeting Notes (.pdf)

5. April 20, 2006 Community Meeting Written Input (.pdf)