City Council
Staff Report
From: City Manager
Report Type: INFORMATION REPORTS
Lead Department: Transportation
Meeting Date: September 8, 2025
Report #:2506-4896
TITLE
Community Engagement Plan for Rail Grade Separation Project at Churchill Avenue, Meadow Drive, and Charleston Road Crossings
RECOMMENDATION
Receive information on the Community Engagement Plan for the Rail Grade Separation Project at Churchill Avenue, Meadow Drive, and Charleston Road Crossings
EXECUTIVE SUMMARY
In partnership with City staff, Caltrain has prepared a Draft Public Outreach and Engagement Plan for the Preliminary Engineering and Environmental Phase of the City of Palo Alto Project for Grade Separation at Churchill Avenue, Meadow Drive, and Charleston Road. The goal of the engagement plan is to foster the involvement of community, Rail Committee and Council members at key project milestones, inform decision-making, and advance well- supported alternatives for the project. Efforts include diverse outreach strategies, transparent processes, and accessible engagement opportunities to guide decision-making that reflects community priorities. This plan was reviewed with the Rail Committee at its meeting on May 20, 2025.
Caltrain will lead engagement efforts and the City will act as the project sponsor. The anticipated project timeline to complete 35% conceptual design and environmental clearance is Fall 2027.
BACKGROUND
The City of Palo Alto’s rail corridor planning efforts commenced in 2010 with the Palo Alto Rail Corridor Study, which was adopted by Council on January 22, 2013 (SR # 34101). From November 4, 2013, the City developed preliminary grade separation alternatives as part of 1 City Council , January 22, 2013; Item 7, Action Item, SR# 3410 https://www.paloalto.gov/files/assets/public/v/1/agendas-minutes-reports/reports/city-manager-reports- cmrs/year-archive/2013/railcorridor1_22.pdf
the Connecting Palo Alto project, which explored multiple options for the four at-grade rail crossing locations of Charleston Road, Meadow Drive, Churchill Avenue, and Palo Alto Avenue. This work resulted in a Rail Corridor Circulation Study and initial screening of ideas for various alternatives that was reviewed by the Council on May 29, 2018 (Staff Report # 92842) . In April 2018, in-depth analysis of engineering options continued, with review by the Council Rail Committee and Rail Crossing Community Advisory Committee (XCAP). The XCAP process concluded deliberations in March 2021. The XCAP completed the review and presented its recommendation to the Council on March 23, 2021 (Staff Report 117973)
Since 2021, staff have secured grants from Federal Rail Administration (FRA), California State Transportation Agency (CalSTA) and Santa Clara Valley Transportation Authority (VTA), and have continued to develop, evaluate and present grade separation alternatives for consideration. In consultation with the community, Rail Committee and Council, the City has refined project alternatives for rail crossings at Charleston Road, Meadow Drive, and Churchill Avenue. Palo Alto Avenue crossing was put on hold.
On June 10, 2024 (Staff Report # 2402-29574) and June 18, 2024 (Staff Report # 2406-31695 , Council selected the following alternatives to advance into the Conceptual Development phase in preparation for Preliminary Engineering and Environmental Documentation:
For Churchill Avenue, the Council selected the Partial Underpass as the locally preferred alternative with vehicle crossing at Churchill Avenue and pedestrian/bicycle crossing at Seale Avenue / Peers Park. Additionally, the Council identified the Pedestrian/Bicycle Undercrossing at Churchill (aka Closure Alternative) as the backup alternative if needed in the future for this location. (The backup alternative will not advance to preliminary engineering at this time.) For Meadow Drive and Charleston Road, the Council identified the Hybrid Underpass and Underpass as the two alternatives to advance to Conceptual Development with refinements to minimize right-of- way impacts and improve mobility at each location. A preferred alternative for each location will advance to 35% Design. (Constructability concerns may require the City to implement grade 2 City Council , May 29, 2018; Item 7, Action Item, SR# 9284 https://www.paloalto.gov/files/assets/public/v/1/agendas-minutes-reports/reports/city-manager-reports- cmrs/year-archive/2018/9284.pdf
3 City Council , March 23, 2021; Item 1, Study Session Item, SR# 9284 https://portal.laserfiche.com/Portal/DocView.aspx?id=99&repo=r-704298fc 4 City Council , June 10, 2024; Item 13, Action Item, SR# 2402-2957 https://portal.laserfiche.com/Portal/DocView.aspx?id=72813&repo=r-704298fc 5 City Council , June 18, 2024; Item AA3, Action Item, SR# 2406-3169 https://portal.laserfiche.com/Portal/DocView.aspx?id=73959&repo=r-704298fc separations in these two locations in a coordinated manner.) Caltrain will lead the Preliminary Engineering and Environmental Documentation phase and the City will collaborate with Caltrain on project design and will act as project sponsor. The City has successfully secured $6 million in Rail Crossing Elimination (RCE) program funds from the FRA towards completing the Preliminary Engineering and Environmental phase for grade separations at Churchill Avenue, Meadow Drive, and Charleston Road. In addition, on December 9, 2024 (Staff Report # 2408-33226), the City Council approved a Cooperative Agreement with VTA for $14 million in Measure B Grade Separation funding for this phase.
ANALYSIS
In consultation with City staff, Caltrain has prepared a Draft Public Outreach and Engagement Plan for the Preliminary Engineering and Environmental Phase of the Grade Separation at Churchill Avenue, Meadow Drive, and Charleston Road (Attachment A). The plan aims to foster involvement from the community, Rail Committee, City Council, and interested parties at key Project milestones for the proposed Project.
The goals of the plan are to provide clear public information and updates on the project; ensure accessible platforms and diverse opportunities for meaningful community involvement; actively gather detailed feedback to understand community needs; communicate community insights and concerns to decision-makers; present well-supported alternatives for decision-makers to evaluate; and inform decision-making.
To facilitate durable decision-making and expedited refinement of the alternatives, the Project is divided into two steps:
Preliminary Engineering Conceptual Development (15% Design), which is anticipated to progress through mid-2026; and
Preliminary Engineering (35% Design) and Environmental Documentation under the California Environmental Quality Act (CEQA) and the National Environmental Policy Act (NEPA), which is anticipated to conclude in Fall 2027.
The Council has directed staff to refine the project Concepts with a focus on minimizing property impacts and enhancing pedestrian and bicycle crossings. Conceptual Development will also include estimation of project costs and evaluation of constructability issues in order to support the selection of a Locally Preferred Alternatives at each location, prior to development of 35% design plans and environmental documents. Public engagement events will be hosted throughout the life of the Project to share information and gather community feedback on the alternatives.
6 City Council , December 9, 2024; Item 12, Consent Item Item, SR# 2408-3322 https://portal.laserfiche.com/Portal/DocView.aspx?id=113787&repo=r-704298fc
FISCAL/RESOURCE IMPACT
Funding for these projects is programmed in the 2026-2030 Capital Improvement Plan in the Meadow Drive and Charleston Road (PL-24000) and Churchill Avenue (PL-24001) Rail Grade Separation and Safety Improvements projects. This item is included in the scope of the two projects with no additional fiscal impact.
STAKEHOLDER ENGAGEMENT
This staff report provides the Public Outreach and Engagement Plan for the Preliminary Engineering and Environmental Documentation phase of the project. Activities include meeting postings on the City calendar and through the City and Caltrain‘s communications channels and events such as community workshops, public open houses, and regular updates to the City’s Rail Committee, and Caltrain’s Technology, and Operations, Planning, and Safety (TOPS) Committee. Additionally, the project team will bring forward considerations to the City Council for review and direction at key decision points.
The City and Caltrain remains committed to community engagement and collaboration with regional partners to ensure that grade separation solutions align with the City’s long-term mobility and safety goals. Staff presented the draft Public Outreach and Engagement Plan to the Rail Committee on May 20, 2025 (Staff Report # 2504-44997). Following that meeting, staff reviewed and incorporated recommendations and feedback from both the Rail Committee and members of the public.
ENVIRONMENTAL REVIEW
This is an informational report with no proposed action as part of this report. The grade separation project will include environmental review in accordance with the California Environmental Quality Act (CEQA) and National Environmental Protection Act (NEPA).
ATTACHMENTS
Attachment A: Public Outreach and Engagement Plan for Grade Separation Project at Churchill Avenue, Meadow Drive, Charleston Road, (Preliminary Engineering & Environmental Documentation Phase)
APPROVED BY:
Ria Hutabarat Lo, Chief Transportation Official
7 Rail Committee , May 20, 2025; Item 1, Action Item, SR# 2504-4499 https://portal.laserfiche.com/Portal/DocView.aspx?id=174903&repo=r-704298fc