ONEBAYAREA GRANT (OBAG) APPLICATION Section One: Project Summary Project Title Brief Project Summary University Avenue Transit Mall Improvements The University Avenue Caltrain Station is the second busiest Caltrain Station behind San Francisco, supporting commuters to Stanford University and the Stanford University Medical Center, Downtown, and Stanford Shopping Center. Several regional transit agencies and dozens of private shuttles to regional employers service the station, but only the VTA uses the existing Palo Alto Transit Center (aka, University Avenue Transit Mall). In 2012 the City completed a preliminary transit analysis with the VTA, Samtrans, and Stanford Marguerite, the three major transit operators, at the University Avenue Transit Mall to identify improvements as part of future development activities adjacent to the Palo Alto Transit Center. The City is in the process of starting a Traffic Impact Analysis study for the planned improvements. The University Avenue Transit Mall Improvements project, through the One Bay Area Grant program, provides a partnership to implement the City s vision for improvements at the Center including: New Quarry Road Extension to provide direct transit access to El Camino Real for enhanced service and access Demolishing the existing VTA Transit Mall New University Loop Transit Mall to consolidate transit access by the three major transit operators, expand transit stop stations for growing regional demand, and enhanced customer access to the Caltrain platform Expanded transit access at the El Camino Real ramps to University Avenue and Westin Hotel parking lot where a public private partnership will allow for additional transit shelter opportunities Enhanced pedestrian and bicycle connections to Downtown Palo Alto through a new underpass to Lytton Avenue and expanded trail connections to Stanford Shopping Center
OneBayAreaGrant (OBAG) Application Program Component Agency Guarantee Project Discretionary Complete Streets Project Grant Funds Requested ($) Check all that apply Minimum Discretionary Grant Requested $350,000 Surface Transportation Program (STP) Amount Requested $10,000,000 Congestion Mitigation and Air Quality Improvement (CMAQ) Amount Requested $5,800,000 Transportation Alternatives (TA) Amount Requested $8,000,000 Grant Funds Fiscal Year 2015 16 Local Match (11.47% Min) $10,200,000 (30 percent) Total Project Cost $34,000,000 Member Agency Contact Person City of Palo Alto Jaime O. Rodriguez, Principal Transportation Planner Address 250 Hamilton Avenue, Palo Alto, CA 94301 Email Address Jaime.Rodriguez@cityofpaloalto.org Phone (650) 329 2136 Fax (650) 329 2154 Other Project Partners Valley Transportation Authority (VTA), Caltrain, San Mateo Transit Authority (SamTrans), Stanford University, Caltrans 2 University Avenue Transit Mall Improvements
City of Palo Alto Section One: Project Summary continued 1. For the Complete Streets Competitive program, include a map that clearly identifies the project s location within a Priority Development Area or proximate access to a PDA. This project is primarily within the Cores, Corridors, and Station Areas PDA (San Mateo County), as shown in Attachment A. As a regional transit and employment hub sandwiched between downtown Palo Alto and Stanford University, the project site is one of the most active, urban areas within Santa Clara County. 2. Project Summary Sheet Attachment B provides an overview of the project area, including locations of key trip attractors and generators within a half mile of the project, including the University Avenue Caltrain Station, VTA buses, Marguerite Shuttle, Palo Alto Medical Center, Stanford University Stadium and sports fields, Town & Country Village Center, downtown Palo Alto, and Palo Alto High School. The University Transit Mall Improvements Project would relocate the existing bus terminal facility to a widened University Circle loop to increase bus pick up and layover capacity, while improving service efficiencies and circulation by extending Quarry Road north of El Camino Real. The resulting roadway and transit center network would support a new Arts & Innovation District that will knit together downtown Palo Alto and the Stanford Shopping Center directly adjacent to the busiest Caltrain station outside of San Francisco. University Avenue Transit Mall Improvements 3
OneBayAreaGrant (OBAG) Application Despite high transit patronage and levels of non motorized activity, the existing transit mall s inefficient configuration severely limits overall person carrying capacity, transit oriented development potential, and connectivity between downtown Palo Alto and Stanford University. With new Bus Rapid Transit (BRT) and electrified Caltrain service planned within the next few years, and a serious development proposal being considered by the City, the discretionary Complete Streets OBAG process provides one of the best opportunities to realize long sought improvements to this regional transit hub and employment center. 4 University Avenue Transit Mall Improvements
City of Palo Alto Section Two: Project Narrative Pre Screening Criteria 1. 2008 Complete Streets Act Compliance: An adopted Complete Streets policy resolution no later than January 31, 2013 or proof of a General Plan compliant with the Complete Streets Act of 2008. 2. A General Plan Housing Element adopted and certified by the California Department of Housing and Community Development for 2007 14 Regional Housing Need Allocation (RHNA) prior to January 31, 2013. NOTE: The City of Palo Alto has requested and received an extension of the deadline for certification by HCD to January 31, 2014. Screening Criteria 1. VTP 2040 Consistency (VTP 2035) T13: Palo Alto Intermodal Center Expand the Palo Alto Caltrain Station and Bus Transit Center (VTP 2040) Preliminary Financially Constrained Project List (Draft) Same Project 2. MTC Complete Streets Checklist Below are summary responses to each question included in the MTC Complete Streets checklist. A more formal checklist will be prepared, if necessary, upon approval of the funding application. 1. Existing Conditions The transit mall is currently accessed via a two lane University Circle loop road that forces buses back onto University Avenue at the awkward intersection with the northbound El Camino on ramp. Due to a lack of curb space, existing bus layover activities take place on surrounding surface streets, which reduces transit service efficiencies and increases unnecessary trips on already stressed regional roadways. Existing roadway, tunnel, and sidewalk configurations also result in poor pedestrian and bicycle connectivity. 2. Demand The University Transit Mall is directly adjacent to the busiest Caltrain station in Santa Clara County, with over 4,000 total weekly boarding s, including 400 daily passenger bicyclists. Twenty transit routes including VTA, SamTrans, AC Transit Dumbarton Express, and Stanford Marguerite shuttles directly service the transit mall. University Avenue Transit Mall Improvements 5
OneBayAreaGrant (OBAG) Application Additional service, including City of Palo Alto and City of Menlo Park shuttles, also serve the transit center from adjacent roadways. These services are sandwiched between the major employment and retail destinations of downtown Palo Alto and Stanford Shopping Center, with additional demand from Stanford University, Stanford Medical Center, Palo Alto Medical Foundation, and nearby hotels. 3. Collisions Yes. The 2012 Bicycle + Pedestrian Transportation Plan identifies a significant number of non motorized collisions surrounding the transit center (see Figures 1 and 2 of the application), which include hot spot locations that can be reconfigured or avoided to improve safety. 4. Plans The 2012 City of Palo Alto Bicycle + Pedestrian Transportation Plan, 2012 Palo Alto Rail Corridor Study, City of Palo Alto Capital Improvement Program/Comprehensive Plan, El Camino Real Master Planning Study (2007), VTP 2035, Caltrain Bicycle and Parking Access Plan, and various other historic plans all envision circulation and transit capacity improvements to the Palo Alto Transit Center/University Transit Mall. These plans have, most recently, been distilled into the development proposal for the 27 University Avenue Arts & Innovation District concept. 5. Policies, Design Standards and Guidelines All applicable Caltrans, Caltrain, and VTA design guidelines and transit policies will be included in the design of this project. 6. Review This project site has been extensively studied for multi modal, complete station improvements for well over two decades. As a complex and dynamic site, details of various proposals have changed, but most of the key shared concepts are included in this project proposal. These include a new bicycle friendly underpass of the Caltrain Station at Lytton Avenue and reconfiguration of the University Avenue and El Camino Real intersection(s). 7. Scope This project entirely consists of pedestrian, bicyclist, and transit accommodations, including grade separated underpass and sidewalk/trail improvements to local and regional surface streets. 8. Hindering Bicyclists/Pedestrians Yes, the project is centrally about addressing barriers to non motorized circulation and transit access, with additional focus on transit capacity enhancements to coincide with improved regional BRT and commuter rail services. 9. Construction Period Temporary traffic control will include safety signage and/or detours for pedestrians and bicyclists consistent with applicable local guidelines and best practices. 10. Ongoing Maintenance The City of Palo Alto will be responsible for the ongoing maintenance of most of these improvements. Funding for the maintenance of local roadways and bicycle facilities is included in the City s Capital Improvement Program 6 University Avenue Transit Mall Improvements
City of Palo Alto (CIP). A maintenance agreement with VTA, Caltrans, Stanford University, and potential private property owners/tenants would likely be needed in advance of final design and construction. 3. PDA and proximate access locations See Attachment A. Criteria 1. Safety This project will greatly improve safety, circulation and access to and through the Palo Alto Transit Center by establishing a new Across Barrier Connection (underpass) at Lytton Avenue, reconfiguring the problematic intersections of the El Camino Real northbound ramps/university Avenue, and developing new Class I trail facilities separated from transit and regional automobile traffic. The project area is currently characterized by sub standard pedestrian and bicycle crossings of the Caltrain tracks and automobile circulation is challenging. Bicycle counts from 1997 found this area to have the highest volumes of bicycle use in the City, which are confirmed by 2011 Caltrain ridership counts that show over 4,000 daily boardings, including over 400 bicyclist passengers. As the area develops with planned construction, new uses will increase traffic from all modes. Figure 1: Pedestrian Collisions (2004 2009) and Figure 2: Bicycle Collisions (2004 2009) The City of Palo Alto Bicycle + Pedestrian Transportation Plan 2012 identifies a significant number of pedestrian collisions (top image) and bicycle collisions (bottom image) in the vicinity of the Palo Alto Transit Center, including conflict hot spots at High Street and University Avenue, the El Camino Real off on ramps, and Alma Street at the Caltrain station entrance. These locations would each experience safety benefits by improved circulation across key barriers, enhanced transit service, and coordinated urban design. University Avenue Transit Mall Improvements 7
OneBayAreaGrant (OBAG) Application Automobile traffic accessing the Caltrain station is also currently challenging, and several locations require long pedestrian crossings where drivers are likely to be turning to access the parking lot. The 2008 Caltrain Bicycle Parking and Access Plan notes that the University Avenue undercrossing is narrow with no shoulders or bike lanes and that the three pedestrian undercrossings all require bicyclists to dismount. 2. Project Benefits The benefits of this major overhaul to one of the busiest regional transit hubs in Santa Clara County are numerous and shared between all modes. They are also multi faceted, involving the nexus of transit, land use, economic development, and urban design that is envisioned and promoted by the Bay Area FOCUS and Sustainable Communities Strategy initiatives. Expanded Transit Capacity for Future Anticipated Demand There is a substantial transit capacity issue at the University Avenue Transit Mall due to the inefficient bus circulation and expected increases in transit service and ridership over the next decade. This project more than doubles the capacity of the existing University Loop, improves the efficiency of layover and turnaround routes, and opens up more direct routing options onto El Camino Real and Quarry Road that will improve service routing to/from Stanford Shopping Center/University/Medical Center. In addition to increased transit capacity along a consolidated curb line, the project s proposed underpass and bicycle trail components will help reduce potential congestion impacts to transit from pedestrian surges and bicycle traffic. Regional Trailhead Bicycle counts both near the University Transit Mall and on Caltrain confirm that this area experiences some of the highest volumes of bicyclists in the City, if not the County. The existing Caltrain Path toward Palo Alto High School and the Homer Street Underpass are key facilities for many riders, as are bicycle lanes on Quarry Road, trails within El Camino Park toward Sand Hill Road and Menlo Park, and designated bicycle routes from numerous downtown streets. In addition, Stanford University has a funded project to complete a Perimeter Trail along their frontage with El Camino Real from Quarry Road all the way to Stanford Avenue, and along Stanford Avenue out to Junipero Serra. This project will provide a hub of dedicated bicycle and trail facilities that will link these regionally significant bikeways to and through the transit center, adjacent to major employment centers, and with each other. This hub and spoke network of trails and bikeways will provide a 8 University Avenue Transit Mall Improvements
City of Palo Alto safe, attractive, and efficient alternative to driving for short and mid range trips, particularly since the Bay Area Bike Share (BABS) program will include stations at the transit center, in downtown, and on the Stanford University campus. Arts & Innovation District Integral to, but beyond the benefits stated above, is the opportunity to the development of a new Arts and Innovation District though a partnership with Stanford University. This project proposes to consolidate a collection of centrally located but underutilized and poorly organized parcels in order to develop the new district which may house a theatre. While the exact composition of uses and potential traffic impacts are undergoing further analysis by the City, what is clear is that this reorganization of space is critical to the feasibility of the transit capacity enhancement and Quarry Road extension concepts. Serving to improve local site access, but also to realize longstanding community goals of improved connectivity for walking, biking, and transit the project supports innovative public private partnership opportunities. 3. Gap Closure/Connectivity The Caltrain tracks are a major east west barrier in Palo Alto. Despite three non motorized underpasses at the University Avenue Transit Mall (one within the transit center near Lytton Avenue, and the other two along both sides of University Avenue), none are wide enough to allow bicycle riding or connect well to existing bikeways west/south of the station. These connections are further compromised by the busy Alma Street corridor, which links to University Avenue via a series of uncontrolled roadway ramps that break up the sidewalk environment. Another primary barrier to improved bikeway linkages is the existing transit mall itself, which would be relocated with the proposed project. Current conditions force users of the Caltrain pathway, El Camino Park trail, and Quarry Road bike lanes to navigate through shared vehicle and transit lanes, which is especially difficult during peak commute periods. Lastly, the El Camino Real corridor is a well known barrier between Stanford University and downtown Palo Alto, and is particularly problematic at the approach to University Avenue from Palm Drive, which lacks bike lanes and includes numerous uncontrolled intersection crossings amid high vehicle speeds and volumes. University Avenue Transit Mall Improvements 9
OneBayAreaGrant (OBAG) Application The University Transit Mall Improvements Project is an essential component of the City Center concept articulated by the Palo Alto Rail Corridor Study. That planning process identified a vision to create a vibrant, attractive, transit rich area with city and neighborhood centers that provide walkable, pedestrian and bicycle friendly places that serve the community and beyond; and to connect the east and west portions of the city through an improved circulation network that binds the city together in all directions. 4. Air Quality Improvements and/or Vehicle Miles Traveled (VMT) Reduced This project would likely result in significant reductions in VMT and greenhouse gases, since it encourages all forms of green travel including commuter rail, express bus, BRT, local bus, community shuttles, and bicycle share. The Safe Routes to Transit (SR2T) program provided $500,000 to the VTA Pilot Bike Sharing program. In 2010, $4.3 million was secured through MTC s Climate Initiatives Program to develop an initial bike share program with 1,000 bicycles along the Caltrain corridor in the cities of San Francisco, Redwood City, Palo Alto, Mountain View, and San Jose. A hundred bicycles (out of 1,000) are earmarked for Palo Alto, which will consist of large hub stations at the Palo Alto Transit Center and California Avenue Caltrain stations and a small number of pod stations at select sites in downtown Palo Alto and Stanford University. These stations are expected to become operational before the end of the current year. Providing enhanced transit and last mile capacity, all while serving to remove longstanding barriers to walking and biking between activity centers, is a recipe for reduced automobile use particularly since a repaired connection from the Stanford Shopping Center into downtown would likely result in fewer car trips between these destinations and greater park once activities. Further VMT and greenhouse gas reductions would be likely from encouraging 10 University Avenue Transit Mall Improvements
City of Palo Alto development at the transit center, which will help reduce the need for parking supply and minimize the number of new automobile commute trips compared to business as usual. 5. Documented Public Involvement/Support The current VTA Transit Mall and on street parking condition provides for about 21 transit stops and layover stations. The proposed Transit Mall Reconstruction project builds on the planning activities of the Arts and Innovation District project and recommends implementation of the proposed Quarry Road extension, demolishing of the VTA Transit Mall and replacement with an expanded University Loop Transit Mall for use by the three major transit operations (VTA, Stanford Marguerite, and Samtrans). The New Transit Mall also includes improvements to the El Camino Real ramps to University Avenue and parking lot of the Westin Hotel to expand transit capacity. A total of 32 or so transit stops and layover stations are proposed as part of the project, an increase of 11 stations or 55%. The 2003 Palo Alto Bicycle Plan calls for a new bicycle/pedestrian undercrossing under the Caltrain tracks at Everett Avenue, which will connect Quarry Road (at the north end of the Stanford campus) with the Bryant Street bicycle boulevard and the Caltrain station. The Plan also calls for upgrading University Avenue between El Camino Real and Middlefield Road to a shared arterial roadway, including bike route signs. The Palo Alto Bicycle + Pedestrian Transportation Plan (2012) recommends this project as Across Barrier Connection 3: Palo Alto Transit Center/University Avenue Undercrossings. The project description includes improvements to bicycle and pedestrian access to transit and between downtown Palo Alto and Stanford Universityʹs main entrance, and should include lighting, wayfinding and public art enhancements. The BPTP involved considerable public outreach, including two public open houses and an online survey to solicit input from the general public. Survey respondents most frequently identified University Avenue as a location where they would like to see pedestrian improvements. The BPTP was also developed in coordination with the Palo Alto Bicycle Advisory Committee (PABAC), the City/School Traffic Safety Committee (CSTSC), and the Planning & Transportation Commission. The 2007 Palo Alto Climate Protection Plan (CPP) targets a 15 percent reduction in greenhouse gas emissions from 2005 levels by 2020 to comply with state reduction goals. Medium term recommendations include completing transit projects on El Camino Real and the Palo Alto Intermodal Transit Center. University Avenue Transit Mall Improvements 11
OneBayAreaGrant (OBAG) Application The City has implemented a demonstration project at the intersection of El Camino Real and Stanford Avenue that includes the conversion of two pork chop island facilities. VTA is currently planning upgrades to El Camino Real for the development of Bus Rapid Transit (BRT) from the Palo Alto Transit Center south and east to the HP Pavilion and Eastridge Transit Center in San Jose. In Palo Alto, VTA will retain the bus service and upgrade the bus stops at California Avenue and Charleston/Arastradero Road with bus bulbs that allow for in lane stops to minimize delay and increase sidewalk width. VTA projects that the enhanced service, in conjunction with forecasted development around the stations, will attract three to six times more passengers than the existing 522 Rapid (which BRT will replace). As such, pedestrian and bicycle improvements at and near the proposed BRT stations will be an important strategy for ensuring its success. The 2008 Caltrain Bicycle Parking and Access Plan lists one of the multi agency recommendations is for Caltrain to encourage the City of Palo Alto to improve bicycle access on Alma Street and University Avenue in the vicinity of the station. 6. Local Match The City estimates the project to cost up to $34M with a $10.2M local match to maximize point allocations for the project with 30% local match funding. The City anticipates using funds from the SUMC Sustainability Program fund, developer mitigation fees, and other sources as the local match source for this project if it is funded by the OBAG program. 7. Project Readiness Environmental The City is in the process of starting a Traffic Impact Analysis (TIA) for the site to support future Environmental Impact Report (EIR) activities. Design Part of the Traffic Impact Analysis will include further refinements in the design of the project including development of 15% conceptual plans, refinements in public private partnerships for right of way, analysis of historical structures including the Caltrain Depot Station. Right of Way 12 University Avenue Transit Mall Improvements
City of Palo Alto The fractured composition of uses, leases, and ownership within the project area is a large reason that it has served as a barrier to travel for so long. Stanford University, Caltrans, and the City of Palo Alto are primary title holders, although other leases on Stanford lands require additional cooperation among existing site users, including transit agencies such as VTA. Fortunately, the City and Stanford University will continue to work together through the analysis of the 27 University Avenue proposal to finalize an approach for right of way swaps, easements, and/or acquisitions. Figure 3. Existing Property Ownership & Leases, Proposed Arts & Innovation District University Avenue Transit Mall Improvements 13
OneBayAreaGrant (OBAG) Application 9. Jobs Density There are 9 jobs per acre within a half mile of the project corridor and within the ABAG defined PDA. Adopted in 2010, The Grand Boulevard Initiative is a Corridor Plan for El Camino Real. Using an enhanced version of the Santa Clara VTA Countywide model, the Grand Boulevard Initiative model tests the impacts of various land use scenarios along the corridor. In the GBI model, the Palo Alto Caltrain Station is identified as a Tier 1 transit station; with moderate intensification of land use, the GBI model estimates such station areas would see 260 jobs per acre in 2035. With enhanced land use, the number of jobs per acre could increase to 348 jobs per acre. 10. Housing Density There are 3 housing units per acre within a half mile of the project corridor and within the ABAG defined PDA. The GBI model also projects housing unit density within various land use scenarios. The GBI model estimates such station areas would see 55 housing units per acre in 2035. The enhanced land use scenarios suggest that the number of housing units per acre could increase to 75 units/acre with greater land use intensification. 11. Community of Concern and/or Community Air Risk Evaluation This project is not in a COC or CARE designated location. 12. Affordable Housing &/or Senior/Disabled Serving Facility This project is located within a quarter mile of one affordable housing site. Barker Hotel at 439 Emerson St includes 26 Affordable SRO Units. Less than half a mile away are 107 Affordable Single Room Occupancy Units at Alma Place (753 Alma Street), 53 Affordable Tax Credit Family Units at Oak Court Apartments (845 Ramona St), 4 One Bedroom Affordable Apartments at Emerson House (330 Emerson St), and 11 Studios, One and Two Bedroom Affordable and Section 8 Subsidized Apartments at Elm Apartments (129 Emerson St). 14 University Avenue Transit Mall Improvements
City of Palo Alto Within one mile of the project site are 68 HUD Subsidized Section 8 Family Units at Webster Wood Apartments (941 Webster Street). Additionally, the Palo Alto Crosstown Shuttle provides a free trip from the University Avenue Station through downtown to the Stevenson House, an affordable elderly housing facility. 13. Proximity to Transit Station This project enhances access and circulation directly at the Palo Alto Transit Center, which is the hub for multiple bus lines, a major Caltrain Station, and other shuttles. The 2008 Caltrain Bicycle Parking and Access Plan counted 656 northbound boardings and 166 southbound boardings during the morning peak period. In 2011, ridership activity increased to an average of over 4,000 daily weekday boardings, as well as over 1,000 Saturday boardings (2011 Caltrain Ridership Counts). The Palo Alto Shuttle is a free shuttle that runs approximately hourly on weekdays to connect residential neighborhoods, senior services, libraries, recreation centers, shopping districts, and Caltrain. The Crosstown shuttle runs from the University Avenue Station through downtown to the Stevenson House, an affordable elderly housing facility. The Embarcadero Shuttle runs from the University Avenue Station along Embarcadero Road to serve employers in the East Bayshore area. The Transit Center adjoining the station was renovated in 2005 to accommodate ten bus and shuttle lines. 14. BEP Plan This project is not in Bicycle Expenditure Program University Avenue Transit Mall Improvements 15
ATTACHMENT D PROJECT SUMMARY SHEET (OBAG) PROJECT NAME: AGENCY NAME: City/Town of: University AvenueTransit Mall Improvements Project (Agency with day to day responsibility for implementing PROJECT) City of Palo Alto PROJECT MANAGER: (Person who can answer questions about this PROJECT) Name: Jaime Rodriguez Title: City of Palo Alto Chief Transportation Official Phone: 650.329.2136 email: Jaime.rodriguez@cityofpaloalto.org PROJECT SCHEDULE: Project Phase: BEGIN ENVIRON BEGIN DESIGN BEGIN ROW CERT BEGIN CON Phase Month/Year: 9/13 1/14 10/15 4/16 Funds Requested: $23.8 million Local Match: $10.2 million Match (xx.xx%): 30% (Round dollars to nearest thousands) CRITICAL TASKS: (if applicable) SUBMITTAL DATES Expected Actual* Field Review 5/14 Environmental 1/15 Design 12/15 ROW/Permits 10/15 E76 Packet 1 APPROVAL DATES* 1 Deadline: Feb 1 of programmed year *Project manager will provide status updates X PROJECT is a stand alone project. PROJECT is part of a larger project. Describe larger project: (Provide project title, identifying ID numbers, total project cost, larger project schedule and impact on THIS project schedule.) 1