1 Attachment A
Expedited Evaluation of Potential Temporary Closure of the Churchill Avenue Rail Crossing
2 Table of Contents
INTRODUCTION ...................................................................................................... 3 I. DEFINITION & REQUIRED ACTIONS FOR A TEMPORARY RAIL CROSSING CLOSURE 3 Definition of Temporary Rail Crossing Closure .......................................................... 3 Required Actions for Implementing a Temporary Rail Crossing Closure ...................... 4 II. POTENTIAL IMPACTS OF CLOSURE ....................................................................... 5 Pedestrian and Bicycle Safety .................................................................................. 5 Traffic Congestion Impacts on Alternative Routes ..................................................... 6 Emergency Access and Response Times .................................................................. 7 Pedestrian and Bicycle Access and Alternative Routes .............................................10 Motorist Access and Traffic Detours during the Temporary Rail Crossing Closure ......13 High School Drop-off and Pickup ............................................................................17 Special Event Access .............................................................................................18 Process for Reopening Temporary Rail Crossing Closure ..........................................19 III. POTENTIAL MITIGATION MEASURES TO ADDRESS IMPACTS .................................19 Accelerate Embarcadero Road Improvements (Pedestrian and Bicycle Safety) ..........19 Develop Detour Plan for Pedestrians and Cyclists ....................................................20 Develop Detour Plan for Motorists ...........................................................................20 Accelerate Churchill Avenue Enhanced Bikeway Project ..........................................20 Communications and Non-Physical Improvements .................................................21 Accelerate or Delay Quiet Zone Implementation at Churchill Avenue ........................21 Longer Term Traffic Flow Mitigations ........................................................................22 Estimated Costs.....................................................................................................23 Potential Impact on Disrupting the Suicide Cluster ..................................................24 Potential Evaluation Elements of Temporary Rail Crossing Closure ...........................25 I V. POTENTIAL DECISION SUPPORT CONSIDERATIONS ............................................25 Should Council Direct Proceeding with Temporary Closure: .....................................25 Should Council Direct Not Proceeding with Temporary Closure: ...............................26 3 INTRODUCTION
This report summarizes the expedited review of processes and possible impacts for implementation of a temporary closure of Churchill Avenue rail crossing, as an emergency measure in the interest of public safety. Addressed are definitions, potential implications such as emergency service access and traffic circulation, and potential measures to address impacts.
Also addressed are additional potential decision-making considerations and alternative scenarios for next steps.
Specialists in suicide prevention have identified reducing access to lethal means as a primary way to reduce suicide attempts and deaths. Installation of physical barriers and structures is an example of lethal means reduction and can be effective at preventing suicides in publicly accessible areas
1. During a suicide cluster, which is defined as a group of suicides or suicide attempts that occur closer together in time, space, or both than would normally be expected in a community
2, reducing access to lethal means is especially important. Recent youth suicides at the Churchill crossing have led to consideration of this emergency measure. Following the recent death in February 2026, the City has undertaken this expedited evaluation with intention to enable City Council consideration within roughly 60 days.
I. DEFINITION & REQUIRED ACTIONS FOR A TEMPORARY RAIL
CROSSING CLOSURE
Definition of Temporary Rail Crossing Closure
City staff, a City Council Ad Hoc Committee, and Caltrain staff initially discussed various potential forms of a temporary rail crossing closure. This included full-time closure to all vehicles, cyclists, and pedestrian crossings, as well as a gated closure that could enable crossings during supervised hours. The conclusion was reached that intermittent closure would present complexity that cannot be feasibly implemented while also meeting the intent of restricting access and preferably silencing train horns during closure. As a result, this report anticipates a temporary rail crossing closure would consist of 24 hours/7 days per week to all modes of transportation for the duration of temporary closure.
1 American Foundation for Suicide Prevention Lethal Means Safety, https://afsp.org/policy-priority-lethal- means-safety/
2 Center for Disease Control,
https://www.cdc.gov/suicide/prevention/cluster.html#:~:text=The%20overall%20goal%20of%20a%20comm unity%20response,and%20health%20equity%20needs%20of%20the%20community.
4 The duration of a temporary rail crossing closure could range from a few months to a year. The low end of this range could be pursued if the primary intent of closure is to demonstrate changes in travel patterns resulting from closure, given the typical time required for traffic patterns to adjust following a major street system change. Given the magnitude of change involved at Churchill Avenue, staff would recommend a rail crossing closure of at least six months. At the higher end, specialists in suicide prevention have cited the twelve months following a youth suicide as a critical period for postvention measures. Based on this consideration, a temporary closure could extend at least twelve months from February 2026.
Required Actions for Implementing a Temporary Rail Crossing Closure The California Public Utilities Commission (CPUC) holds jurisdiction over rail crossings throughout California. For temporary roadway closures at tracks, the CPUC’s Rail Crossings and Engineering Branch (RCEB) reviews and authorizes modifications based on General Order 88-B, providing regulations and governing standards for warning devices for at-grade highway-rail crossings throughout the state.
City staff have consulted with representatives from the CPUC and Caltrain throughout this expedited evaluation. These meetings have clarified basic design requirements and confirmed required actions for implementing a temporary rail crossing closure at Churchill Avenue as summarized below:
The initial diagnostic review identified a potential variance between how CPUC and the Federal Railroad Administration (FRA) would treat a temporary rail crossing closure in their respective systems. This discrepancy is not anticipated to affect the feasibility or approval of a temporary closure but does raise some uncertainty with respect to process and requirements for reopening following a temporary closure.
Staff prepared preliminary sketches illustrating the traffic control measures needed to implement the temporary rail crossing closure and detour routes associated with closure.
Should the City Council approve proceeding with closure, the next step is to develop technical plans and layouts for the proposed measures in accordance with the California Manual on Uniform Traffic Control Devices (CA MUTCD). Development of the technical plans will require consultant services. Technical plans must then be submitted to CPUC for review and approval.
Staff estimates, based on diagnostic meetings with CPUC and Caltrain, that the temporary rail crossing closure could be implemented by late summer.
Diagnostic Review
with CPUC &
Caltrain
Design Required
Improvements
Request for CPUC
Review (GO 88-B)
Complete Required
Improvements
5 The primary traffic control elements for a temporary rail crossing closure of the roadway consist of fencing and vehicle barriers on both sides of the tracks, crosswalk and other striping changes, signage, traffic signal modifications, signal timing changes, and train signal and gate changes. Required elements will need to be constructed or installed and maintained for the duration of the temporary closure. Public Works staff would oversee the initial set-up and ongoing monitoring of these elements through the duration of a temporary closure. Staff will likely require contractor services to implement the temporary improvements.
Given the increased travel distances required by detours, CPUC and Caltrain have identified concerns regarding possible trespassing by damaging the fences. There will be interest in coordinating the response in the event of such trespassing. Caltrain has suggested the need for a Memorandum of Understanding with the City that delineates repair responsibilities in the event of damage to fencing.
The temporary closing of the Churchill Avenue rail crossing would be an emergency public safety measure exempt from the California Environmental Quality Act per guidelines section 15269(c).
II. POTENTIAL IMPACTS OF CLOSURE
A temporary rail crossing closure will require all vehicles, pedestrians, bicyclists, and other traffic that currently travels on Churchill Avenue at the railroad crossing to be detoured onto other roadways. This would affect access between Alma Street and El Camino Real including access to Palo Alto High School as well as the Southgate and Old Palo Alto neighborhoods.
It is anticipated that a temporary rail crossing closure will result in transportation network impacts. There is potential for impacts affecting pedestrians, bicyclists, and motorists, traffic congestion at other nearby crossings, principally Embarcadero Road and Oregon Expressway, emergency access and response times, school bus circulation, and special events access. These projected impacts are discussed further below.
Pedestrian and Bicycle Safety
A temporary rail crossing closure of Churchill Avenue would have impacts for student pedestrian and bicycle access in the city including a large number of Palo Alto High School students as well as Stanford affiliates. For example, the 2025 PTA-administered yearly bike count at the high school indicated approximately 714 (or 39% of) students biked to school, with a majority of east-west connections via Churchill Avenue/Alma Street or the California Avenue undercrossing.
6 For a majority of pedestrians and bicyclists using Churchill Avenue, the closest available detour is via Embarcadero Road. However, this route is not currently included as a recommended route by the City’s Safe Routes to School (SRTS) program due to crossings of the on- and off- ramp-like connections between Embarcadero Road and Alma Street on both the north and south sides of Embarcadero Road. These crossings are characterized by high motorist speeds and failure to yield to pedestrians in the crosswalks, even after pedestrians activate the rapid flashing beacon on the north side of Embarcadero.
These concerns would be reduced through an upcoming capital project at Kingsley Avenue on the north side of Embarcadero Road, widening of the existing sidewalk path on Embarcadero from Emerson Street to High Street, reconfiguring High Street and Emerson Street intersections to reduce conflicts, reduce the speed of turning vehicles and increase visibility for pedestrians and bicyclists, and installation of a bulb-out at the corner of Emerson Street and Embarcadero Road on the south side of Embarcadero Road. It should be noted that the intersection of Embarcadero Road (on the westbound side) and Emerson Street would be a motor vehicle detour route during closure of the Churchill Avenue crossing, which makes it preferable to complete improvements at this intersection prior to closure.
Traffic Congestion Impacts on Alternative Routes
Closure of the Churchill Avenue rail crossing would be expected to significantly increase traffic congestion on alternative routes, principally Embarcadero Road and Oregon Expressway. The City previously evaluated the effect of the Churchill Avenue crossing closure as part of the evaluation of grade separation alternatives in 2019-20. Traffic conditions were evaluated using level of service (LOS). Level of service is a qualitative description of operating conditions ranging from LOS A, free-flow conditions with little or no delay, to LOS F, jammed conditions with excessive delays.
That analysis found that six intersections would experience unacceptable levels of service as a result of the rerouted traffic under existing conditions and under future year 2030 traffic conditions:
1. Alma Street/Lincoln Avenue
2. Alma Street/Embarcadero Road
3. Alma Street/Kingsley Avenue
4. El Camino Real/Embarcadero Road
5. El Camino Real/Oregon Expressway-Page Mill Road
6. Alma Street/Oregon Expressway
7 These impacts are further summarized in the following table3:
Given that this analysis was conducted in pre-Covid conditions, effects in 2026 conditions may vary. However, the report’s findings that average intersection delays during peak hours would exceed 50-80 seconds per vehicle likely remain valid.
Emergency Access and Response Times
The Fire Department’s emergency access and response times are critical for saving lives and limiting property damage, as every minute saved directly improves survival rates for cardiac arrest, trauma, and fire incidents.
The Fire Department conducted targeted analyses to evaluate potential impacts of the temporary rail crossing closure on emergency response performance. For initial response times (first-arriving response), the Fire Department reviewed contractor predictive modeling based on historical call activity and current response coverage. The modeling indicates that response- time impacts would be limited and concentrated near the closure area; for the subset of locations showing impacts, the average modeled increase to first-arriving unit response time is approximately 15 seconds. Based on available data, the modeled change appears operationally
3 “Churchill, Meadow and Charleston Grade Separation Traffic Analysis Report” (as revised on February 3, 2021) Hexagon Traffic Consultants, Inc., August 13, 2020) https://www.paloalto.gov/files/assets/public/v/1/transportation/rail/connecting-palo-alto/project-studies- amp-reports/traffic-analysis-report_churchill-meadow-and-charleston-grade-separation_revised.pdf
8 manageable from first-arriving unit coverage and redundancy standpoint. However, actual field conditions may vary depending on traffic conditions including how traffic congestion and intersection delays due to the Churchill Avenue rail crossing closure would affect travel times under certain peak or disrupted conditions.
In addition to first-arriving unit response, the Fire Department considered larger-scale incidents that require multiple companies, command staff, and ambulance coordination from both sides of the rail corridor. Fire Department impacts are not limited to the immediate area of the Churchill crossing; increased congestion on Embarcadero Road and Oregon Expressway could reduce routing flexibility and contribute to incremental delays in the arrival of later-assigned resources on expanded incidents during peak traffic periods. While these impacts are not expected to prevent emergency response, they could affect overall incident build-up times and will warrant monitoring throughout any temporary closure period.
The Fire Department also recognizes that ambulance access to incidents in the affected area, as well as ambulance transport from those incidents to receiving hospitals, may experience incremental delay due to detour-related congestion and intersection queueing. Although alternative transport routes remain available, travel times may become somewhat less predictable under peak traffic conditions, special events, or other network disruptions. These impacts are expected to be manageable operationally, but they should be tracked as part of the City’s evaluation of the temporary closure.
If a rail crossing closure is approved by the City Council, the Fire Department will coordinate with dispatch to use the most efficient travel routes, monitor conditions in the affected area, and adjust routing or operational guidance if unanticipated impacts emerge.
Similarly, Police access and rapid response times are crucial for improving public safety, increasing criminal apprehension rates, and strengthening public trust in law enforcement.
It should be noted that the Police Department and Fire Department response models are different. Fire personnel typically respond from 1 of 6 stations located throughout the city and Stanford campus, whereas Police Officers typically respond from dynamic locations in the field.
Officers are assigned to 1 of 4 beats, geographically divided by Alma Street (north-south) and Oregon Expressway/Page Mill Road (east-west); however, they often respond to calls outside of their assigned beat due to concurrent priority calls for service in the same beat, a call for service requiring multiple officers, and staffing limitations. While Fire personnel typically respond to a fixed emergency location, Police Officers frequently respond to a location that changes enroute. For example, crime suspects at large are often mobile (e.g., on foot or in a 9 vehicle), so responding Police Officers must adapt their response routes accordingly. Police Department staff devised a way to capture and examine fleet-wide patrol vehicle GPS data.
During a recent 30-day period, patrol vehicles used Churchill Avenue to cross Alma Street an average of 7 times daily. While crossings at this intersection are relatively infrequent, because it is one of a limited number of locations where Police Officers can cross Alma Street, it is a valuable response route.
Police Department staff reviewed 5 years of police calls-for-service data for the Southgate neighborhood, Palo Alto High School, and PAUSD offices. Importantly, in addition to responding to reports of criminal activity, Police Officers are often the first to arrive on the scene of medical emergencies. During this 5-year period, Emergency Calls (those involving a high likelihood of injury or death, with a targeted response time of 6 minutes or less) occurred in this area an average of 2 times monthly; Urgent Calls (those with a lesser human threat, with a targeted response time of 10-minutes or less) occurred in this area an average of 8 times monthly. Average Police response times to these locations have historically met targets. While Emergency and Urgent Calls are infrequent in this area, a delayed response to an incident of this type has the potential to result in the escape of a suspect, serious injury, or death.
The impact of a potential temporary Churchill Avenue rail closure on Police response times is not limited to the immediate area. Because the traffic displaced by the closure is anticipated to significantly impact congestion on Embarcadero Road and Oregon Expressway/Page Mill Road, it is assumed that police responses via these routes will also be negatively impacted.
Embarcadero Road is a primary response route to Town and Country Village, Stanford Shopping Center, and Stanford Hospital among other notable locations. Oregon Expressway/Page Mill Road is a primary route for responses to California Avenue, Stanford Research Park, and the foothills among other prominent locations. Of note, existing congestion, as well as road characteristics (e.g., no shoulder, concrete center barriers, impaired sight lines), already make emergency driving challenging through the Embarcadero Road and Oregon Expressway/Page Mill Road undercrossings, so Police Officers’ ability to “drive around” traffic is limited.
In sum, while Police Department staff cannot predict, at this time, the extent of the impact on response times that a temporary rail crossing closure and the resulting increased congestion on Embarcadero Road and Oregon Expressway/Page Mill Road would have, staff assumes response times to impacted areas and via impacted routes will be longer than current times. If a temporary rail crossing closure occurs, the Police Department will capture this response data, consult with the Office of Transportation, and engage an outside analyst, to better quantify the definitive impact on response times to include meeting targets.
10 Pedestrian and Bicycle Access and Alternative Routes Until improvements at Embarcadero Road/Alma Street interchange are completed, school access detours would be recommended via the pedestrian and bicycle crossings at California Avenue and Homer Avenue. Based on a review of the high-injury network for pedestrians and for bicycles, Transportation Injury Mapping System (TIMS) output for Safe Routes to School, and the City’s suggested routes for walking/biking, the recommended alternate route for school aged pedestrians and bicyclists crossing the tracks are as follows:
• Eastbound pedestrians north of Seale Avenue would likely divert to Embarcadero Road path (southside) (up to one (1) mile detour or 22 minutes extra including steps):
Pedestrians travelling from the area north of Seale Avenue with destinations that include Palo Alto High School and Stanford may also travel to Alma, Bryant or Emerson streets and head north, before turning left (west) on the Embarcadero Road sidewalk via a crossing at Kingsley Avenue and/or steps at Alma Street.
• Eastbound pedestrians and bicyclists south of Seale Avenue would likely divert to California Avenue pedestrian/bicycle undercrossing (up to 0.9-mile detour):
Bicyclists or pedestrians travelling from the area south of Seale Avenue with destinations that include Palo Alto High School and Stanford would travel to Bryant Street and head south on Bryant Street, then turn right to travel west on California Avenue and undercrossing, then turn right to travel north on Park Boulevard, then jog left to continue north on Castilleja Avenue to the high school.
For someone traveling to Palo Alto High School from Seale Avenue/Bryant Street, this detour would increase trip length by 0.9 miles from 0.4 miles (a 4-minute ride or 15- minute walk) to 1.3 miles (a 6-minute ride or 28-minute walk).
11 Figure 1: Proposed route for bicyclists from Bryant St & Churchill Avenue to Palo Alto High School (1.5 miles, 9 minutes) and return (1.5 miles, 8 minutes)
• Eastbound bicyclists north of Seale Avenue are recommended to divert to Homer Avenue Undercrossing (up to 0.9-mile detour) until the improvements at Embarcadero/Alma Street interchange are completed:
Bicyclists travelling from the area north of Seale Avenue with destinations that include Palo Alto High School and Stanford would travel to Bryant Street and head north on Bryant Street, then turn left to travel west on Homer Avenue and undercrossing, then turn left to travel south on Embarcadero Bike Path Paly. For the return trip, since Homer Avenue is a one-way street with only one block of counterflow protected bikeway, bicyclists would need to turn right from Homer at Ln 8 W then turn left on Channing Avenue to get to Bryant Street.
For someone traveling to the edge of Palo Alto High School from the Churchill Avenue/Bryant Street intersection, this detour would increase trip length by 0.9 miles from 0.3 miles (2-minute ride or 7-minute walk) to 1.2 miles (a 7-minute ride or 23- minute walk).
Figure 2: Detour via California Avenue underpass (1.3 miles; 6 minutes)
Prior to Embarcadero Road improvements, staff does not recommend Embarcadero Road as an alternative access route. However, Embarcadero Road is likely to be the shortest alternative route for most pedestrians and bicyclists if Churchill Avenue is not available. Once improvements are implemented, the bicycle detour via Embarcadero Road would be as follows:
12 • Westbound bicyclists would divert via Bryant Street to Kingsley Avenue and Embarcadero Road path (northside):
Bicyclists travelling from the area north of Seale Avenue with destinations in the vicinity of Palo Alto High School or Stanford would travel to Bryant Street and head north on Bryant Street across Embarcadero Road, then turn left to travel west on Kingsley Avenue to the path on the north side Embarcadero Road via the crossing of Alma Street on- ramp from Embarcadero Road.
For someone traveling from Churchill Avenue and Bryant Street, this detour would increase trip length by 0.5 miles from 0.3 miles (2-minute ride or 6-minute walk) to 0.8 miles (a 5-minute ride or 25-minute walk). As indicated below, the westbound route coincides with the motor vehicle detour at the corner of Emerson Street and Embarcadero Road, thereby suggesting the need for additional consideration of that intersection.
• Eastbound bicyclists would divert to Embarcadero Road path and Bryant Street:
Bicyclists making the return trip would remain on the path on the south side of Embarcadero Road between Palo Alto High School and Bryant Street.
13 Figure 3: Bicycle and pedestrian detours to and from Bryant Street and Seale Avenue to Palo Alto High School and Stanford via Embarcadero Road, Homer Avenue, and California Avenue underpass. Route connects to Greene Middle School.
A second safety concern relates to the secondary effect of increased walk/bike travel time to school and concerns about the Embarcadero Road connection, which could result in some families deciding to switch from walking and biking to school, to driving -- with either an adult driver drop off trip (which adds two trips) or a novice, minor driver. Almost all collisions in Palo Alto are the result of a driver striking another road user, therefore an absolute increase in car trips represents a net negative for transportation safety. The safety concern of a higher mode of driving to school is exacerbated when novice drivers are involved. Increased student driving could also have potential parking spillover effects such as in Town and Country Village. These effects could be reduced with enhanced wayfinding, Safe Routes to School (SRTS) training and messaging in addition to interim improvements to the Alma Street – Embarcadero Road eastbound area, and acceleration of Embarcadero Road Improvements in both directions.
Motorist Access and Traffic Detours during the Temporary Rail Crossing Closure
Churchill Avenue is a major collector that provides connections to key community destinations, including the Palo Alto Unified School District (PAUSD), Palo Alto High School, Stanford University, and the Southgate and Old Palo Alto neighborhoods. Based on 2023 traffic counts, more than 8,000 vehicles use Churchill Avenue daily. If the rail crossing was closed temporarily, much of this traffic would likely be diverted to parallel corridors such as Embarcadero Road and Oregon Expressway to access destinations on the west side of the rail tracks and along El Camino Real.
As part of the grade separation project in 2020 referenced earlier, an analysis was conducted to evaluate the potential closure of Churchill Avenue at the railroad crossing using standard traffic analysis software. The analysis indicated that diverting vehicular traffic from Churchill Avenue would result in substantial operational effects at six intersections described earlier in this report. The following provides background information on how traffic would likely be redistributed to nearby roadways.
• Eastbound motorists may divert to El Camino Real, Oregon Expressway and Embarcadero Road:
Eastbound traffic currently using Churchill Avenue would likely divert to El Camino Real and then access Embarcadero Road, resulting in additional northbound right-turn movements from El Camino Real onto Embarcadero Road. From there, traffic would 14 continue along local streets such as Kingsley Avenue, High Street, Lincoln Avenue, Emerson Street, and other nearby roadways to access Alma Street or to reach destinations east of the tracks.
Similarly, some traffic would divert south to Oregon Expressway, resulting in increased left-turn movements from El Camino Real onto Oregon Expressway. This traffic would subsequently utilize the Alma Street ramps to access Alma Street or continue east.
An illustration of these traffic diversion patterns during the peak hour is shown in the exhibit below.
Figure 4: Redistribution of Eastbound Churchill Avenue trips
• Westbound motorists may divert to Alma Street, Embarcadero Road, Oregon Expressway, and connecting segments on Lincoln Avenue and Emerson Street:
15 Westbound traffic currently using Churchill Avenue would likely divert onto Alma Street, with some vehicles using parallel local streets such as Bryant, Waverley, and Cowper to reach Embarcadero Road or Oregon Expressway. To the north, Alma Street connects to Embarcadero Road via Lincoln Avenue and Emerson Street. To the south, Alma Street provides connections to Oregon Expressway through the on- and off-ramps, which would also see increased traffic volumes.
An Alma Street and Churchill Avenue illustration of these traffic diversion patterns during peak hour is shown in the exhibit below.
Figure 5: Redistribution of Westbound Churchill Avenue trips
16 Based on the analysis above, the following detours are suggested:
• Motor vehicle detours via Oregon Expressway:
Traffic needing to cross Churchill Avenue from east of the tracks would be detoured to Oregon Expressway using Alma Street, then turn right onto El Camino Real. Vehicles needing to access Southgate or Palo Alto High School would turn right onto Churchill Avenue from El Camino Real. Likewise, traffic on west side of tracks would be detoured to El Camino Real, turning left onto Oregon Expressway. Vehicles may exit at Alma Street or continue along Oregon Expressway depending on their destination. This route is displayed in the figure below.
• School bus access via Oregon Expressway:
Approximately 26 school buses, accounting for a total of 52 daily trips, currently cross the railroad tracks (based on information provided by PAUSD staff in 2023 data. With the temporary rail crossing closure in place, school buses would need to use the same detour routes described above. As a result, the PAUSD Transportation Department may need to adjust school pickup and drop-off schedules to account for the anticipated congestion and delays, which could lead to longer travel times for students.
17 Figure 6: Proposed traffic detour on Oregon Expressway and including for school bus
High School Drop-off and Pickup
A large proportion of students at Palo Alto High School currently access the campus by bike or on foot and will continue to do so. For those accessing the campus by motor vehicle, detours have been recommended to facilitate access while minimizing safety impacts on pedestrian and bicycle access routes. From Churchill Avenue in Southgate, drop off and pick up vehicles access campus directly as they do today. Castilleja Avenue is not recommended for detour use since it is part of the city’s bike boulevard and suggested route to school.
18 Figure 7: Bicycle detours for trips to school through the California Avenue underpass and vehicular detours for school drop offs and pickups through El Camino Real and Oregon Expressway intersection.
These detours are expected to increase traffic volumes and potential motor vehicle delays on several residential, collector, and arterial streets including the following:
• Residential and collector streets adjacent to Palo Alto High School such as Castilleja Avenue and Park Blvd.;
• Churchill Avenue and El Camino Real intersection particularly during construction of Churchill Avenue Enhanced Bikeway project (currently underway); • Oregon Expressway at El Camino Real, Alma Street on-ramp and off ramps, Emerson Street, Bryant Street, and Waverley Street;
• Embarcadero Road at El Camino Real, Town and Country Village, Palo Alto High School, Emerson Street, Bryant Street, and Waverley Street.
• Alma Street at Lincoln Avenue, Kingsley Avenue, and California Avenue.
Special Event Access
Stanford University and PAUSD host several special events, such as football and other sporting games, concerts and graduations. Stanford stadium hosts around 10-15 major events per year with 6-8 home games between September and November, 3-4 days of major concerts over summer, and 2-3 soccer games between July and September. Due to the proximity of these facilities to the Churchill Avenue rail crossing, the proposed closure would likely impact traffic
19 circulation during such events, resulting in additional congestion and delays along key corridors, including El Camino Real, Embarcadero Road, Alma Street, and Oregon Expressway. Nearby residential streets will also experience increased spillover traffic and associated inconvenience during these periods.
Process for Reopening Temporary Rail Crossing Closure
Representatives from CPUC and Caltrain staff advised that the City would need to undergo a process to reopen a previously closed temporary rail crossing that includes:
• Conducting a diagnostic meeting with CPUC and Caltrain. • Design of modifications and traffic control (signage, striping, and signal) elements to be reinstalled or reactivated to facilitate reopening of the crossing. • Request for CPUC review and GO-88B approval.
• Construction of design modifications.
• Testing and approval of all equipment including Caltrain gates and bells, City signals, and pre-signals prior to being returned to service.
The reopening represents a potential uncertainty regarding the timing and cost to reopen the crossing due to the potential variation in state and federal review interpretations and decisions.
This may also delay permanent Quiet Zone implementation as discussed further below.
III. POTENTIAL MITIGATION MEASURES TO ADDRESS IMPACTS
To mitigate the possible effects of a temporary Churchill Avenue rail crossing closure, staff has identified a multi-pronged approach including accelerating specific projects and communication of alternative routes and travel options.
Accelerate Embarcadero Road Improvements (Pedestrian and Bicycle Safety) Embarcadero Road is the closest alternative route but is not currently recommended as an alternative pedestrian and bicycling route. Improvements to pedestrian and bicycle access on Embarcadero Road are therefore a priority to maintain safety during a temporary rail crossing closure. Staff would recommend accelerating implementation of improvements north of the Embarcadero Road centerline to facilitate more convenient alternative access relative to Homer Avenue. Acceleration to complete construction during the summer of 2026 would require procurement exceptions to shorten the time required for contract bidding and construction.
The anticipated costs for this phase of work is estimated to be between $1.5-$2 million.
20 Develop Detour Plan for Pedestrians and Cyclists
A detour plan will be developed to provide wayfinding to alternative routes for pedestrians and bicyclists. Wayfinding may include signage regarding the closure and enhanced information at decision points for pedestrians and cyclists.
Develop Detour Plan for Motorists
Similarly, detour plans will provide clarity on advanced signage and Variable Message Signs (VMS) for routing traffic as outlined in the information on detours above.
Accelerate Churchill Avenue Enhanced Bikeway Project
The recommended detour for pedestrians and bicyclists traveling to Palo Alto High School from south of Tennyson Avenue is via California Avenue, Park Boulevard, and Castilleja Avenue. Key crossings in this journey are California Avenue undercrossing and Park Boulevard, and the crossing of Churchill Avenue at Castilleja Avenue. In the current school year, two collisions have occurred at the Churchill Avenue/Castilleja Avenue intersection, therefore enhancement of this intersection is a priority to the safety, comfort, and convenience of this route.
Figure 8: Enhancements at the intersection of Churchill and Castilleja Avenues as part of the Enhanced Bikeway Project
21 The City is currently implementing the Churchill Avenue Enhanced Bikeway project, which will implement curb extensions and a high visibility crosswalk at Churchill Avenue/Castilleja Avenue intersection, improving the visibility of pedestrians and cyclists and encouraging lower driver speeds. The temporary rail crossing closure at Churchill Avenue may reduce the volume of movements along this corridor. This project is in the construction phase, but has experienced a supply delay in receiving streetlights and signal poles required for the project.
To enhance safety and the attractiveness of this route for students traveling from south of Tennyson Avenue, implementation of project elements at the intersection of Churchill Avenue and Castilleja Avenue should be accelerated to ensure completion before the temporary rail crossing closure is implemented. Project elements that can be implemented at this intersection include installation of new ADA compliant curb ramps at all corners, new valley gutter across the northwest side of the intersection, and new streetlights integrated with a rapid flashing pedestrian beacon system for crossing Churchill Avenue. Temporary striping will need to be added to the scope of work to direct bicyclists and connect existing bike lanes through the modified intersection. This option is limited to the lead time of the rapid flashing pedestrian beacon system and streetlights, which currently face a supply delay and will not be on-site until summer of this year. If lead times are not favorable, the existing rapid flashing pedestrian beacon system will remain in place.
Communications and Non-Physical Improvements
In addition to safety enhancements for pedestrians and bicyclists, the XCAP process identified mitigation measures to address potential increases in traffic volumes along Embarcadero Road associated with a temporary rail crossing closure at Churchill Avenue. Since the closure would be temporary and implemented as an emergency measure, there is insufficient time to develop, design, and implement these mitigations. As a result, there is a greater need for communications efforts to encourage travelers to avoid this area or switch to more space efficient modes such as walking, biking, and/or transit. Staff would also enhance communications on recommended alternative routes via Safe Routes to School communications and efforts that could include back to school rides.
Accelerate or Delay Quiet Zone Implementation at Churchill Avenue In the context of youth mental health, community members have expressed strong support for accelerated implementation of a Quiet Zone in Palo Alto to potentially reduce triggers, particularly at the Churchill Avenue crossing given proximity to Palo Alto High School.
22 In the long-term, Quiet Zone implementation would involve design and construction of a four- quadrant gate system and related improvements at Churchill Avenue, incorporating review and approval by CPUC for modification of the existing crossing under the GO 88-B process and FRA, followed by Notice of Implementation to affected agencies.
In the short term, while a temporary closure is in place, Quiet Zone implementation could also be potentially implemented by Caltrain as the existing at-grade crossing at Churchill Avenue will be considered as permanently closed in FRA database, and will be considered as open and inactive in CPUC database.
However, if a temporary closure is implemented and/or in progress, that action will likely delay or complicate the implementation of a Quiet Zone in the long term since the diagnostic meeting identified this crossing as open and active in both FRA and CPUC databases. During the temporary closure period, the FRA may treat the crossing as closed, which creates a conflict with the previously documented conditions. Thus, FRA review will likely have to be coordinated after the temporary closure has concluded and the City has successfully undertaken actions and obtained permission to reopen access to the rail crossing.
The Quiet Zone Project is currently planned to be included in the FY 27 Budget. Project design is anticipated to begin in Fall 2026, with the project transitioning to Caltrain for construction anticipated in Fall 2027 with Measure K funding.
Longer Term Traffic Flow Mitigations
As part of the grade separation project, a traffic study evaluated the operational effects of a potential rail closure and identified the following measures to ameliorate these effects if the closure were made permanent. Estimated costs of these improvements exceed $50 million and would require several years to implement.
• Right in/Right out restriction at Alma Street/Lincoln Avenue Intersection:
To address increased traffic along Alma Street to Embarcadero Road via Lincoln Avenue and Emerson Avenue, a traffic study recommended that the Alma/Lincoln intersection be restricted to right-in and right-out movements—prohibiting south bound left turns from Lincoln Avenue to Alma Street. This change would enhance safety at the intersection of Lincoln Avenue and Alma Street and is potentially achievable in the short term through quick build methods, however it may not be desirable without signalization which may not be achievable in the context of the temporary closure.
23 • Signalization of Embarcadero Road/Alma Street and Embarcadero Road/Kingsley Avenue and widening of Alma Street over Embarcadero Road (not recommended for a temporary closure):
In the longer term, the traffic study recommended facilitating left-turning traffic from Embarcadero Road slip ramp to Alma Street through installation of traffic signals at the Alma Street/Embarcadero Road slip ramp; however, this change would not be achievable in the context of a temporary closure.
Likewise, the traffic study recommended installation of a traffic signal at the Embarcadero Road/Kingsley Avenue intersection, and roadway widening of the Alma Street bridge over Embarcadero Road to provide a 75- to 100-foot left-turn pocket on southbound Alma Street at Kingsley Avenue. Signalization and bridge widening are not achievable or desirable in the context of a temporary closure.
• El Camino Real/Embarcadero Road and El Camino Real/Oregon Expressway Intersection Changes (not recommended for a temporary closure):
Pending Caltrans approval, the traffic flow analysis recommended changes at El Camino Real/Embarcadero Road intersection to increase vehicle flow capacity for westbound left-turn movement, northbound right-turn movements and signal optimization.
Likewise, the analysis recommended strategies to increase westbound right-turn capacity from Oregon Expressway to northbound El Camino Real and signal timing optimization at El Camino Real/Oregon Expressway. These intersection changes are not achievable in the context of temporary closure.
• Signalization of Alma Street/Oregon Expressway (not recommended for a temporary closure):
The traffic analysis also recommended signalization of on and off ramps between Oregon Expressway and Alma Street. This change is not considered achievable within the context of temporary closure.
Estimated Costs
The estimated cost of closure, maintenance, and reopening is $1-1.7 million. This includes all material and labor for closure, maintenance, and reopening including for fence, covering and changing signal heads and timing, detours, traffic calming, signs, and markings ($826,000), as well as staff and consultant services ($141,000), JPB (Caltrain) ($150,000), data collection and outreach ($55,000).
24 Potential Impact on Disrupting the Suicide Cluster
The preceding sections have focused on services and facilities controlled by the City.
Fundamentally, however, temporary closure of the Churchill Avenue rail crossing would be intended to address the much more challenging goal of disrupting the suicide cluster, and determining the likely effectiveness of closure toward this goal is much more difficult. Closure of the Churchill Avenue rail crossing should be considered in the context of several considerations.
This includes the recent deployment of 24 hours a day/7 days per week track monitoring staff at all four rail crossings in Palo Alto. On February 23, 2026, the City Council approved a 1-year agreement with Orion Security, which provides for a rail safety monitor (guard) to be assigned to each of Palo Alto’s at-grade rail crossings 24 hours per day, seven days per week. The $1.8 million annual cost of the guards is split equally between the City and the Palo Alto Unified School District via a cost-sharing agreement. The guards were in place beginning February 23, and have since completed both in-person rail safety training and on-line suicide prevention training.
The City first deployed contracted guards to monitor train crossings in late 2009, in response to a cluster of youth fatalities and continued to do so through late 2018. Initially, coverage was provided during evenings at the Charleston and Meadow rail crossings only. Over time, coverage expanded to include 24-hour coverage at all rail crossings. Prior to the current contract, on-site staffed monitoring ceased in late 2018, when the City deployed a camera- based intrusion detection system at all rail crossings. The City’s intrusion detection system has recently been supplanted by an intrusion system operated by Caltrain.
Several related considerations may be relevant to a temporary crossing closure:
• Available records indicate that there were no fatalities at sites and timeframes where monitoring staff were present during the 2009-2018 period. • If the Churchill crossing were closed, access to the tracks can be achieved at other crossings, stations, and other locations where fencing can more easily be overcome. • While the most recent fatalities have occurred at Churchill Avenue, several other locations were involved over the course of the past decade and more. In fact, most youth suicides have not involved the tracks (Attachment B). • The City and PAUSD have engaged the nationally-recognized suicide prevention organization The JED Foundation to conduct a community-wide evaluation of suicide prevention and postvention efforts in Palo Alto. Community engagement in this work is ongoing, and recommendations are expected later this year. 25 Potential Evaluation Elements of Temporary Rail Crossing Closure Should a temporary rail crossing closure of the Churchill Avenue proceed, staff have identified preliminary measures/criteria that could be used to evaluate closure effectiveness in terms of safety, traffic, and community impacts:
a. Fire and Police response performance in response to calls from the neighborhoods on both sides of the tracks before and during the closure; in addition to baseline increase in response times, delays due to additional traffic at intersections during closure b. Delays to pedestrians, bicycles, and vehicles as well as traffic congestion at key intersections
c. Data collection and assessment would occur throughout the school year to identify seasonal variations
d. Traffic and operational impacts such as alternate route capacity and safety in the ability to manage redirected traffic. Vehicular traffic volume or the average annual daily traffic, peak hour traffic, and potential for traffic queueing on adjacent roads, as well as traffic circulation will be assessed
e. Evaluating the public’s involvement through community engagement and feedback will be necessary to measure effects on nearby residential and commercial areas f. Ensure compliance with CPUC and Caltrain on regulations and requirements.
Given the increased travel time, especially for bicyclists and pedestrians, possible trespassing by damaging the fences will need to be monitored and coordinated response plan developed. Caltrain has suggested the need for a Memorandum of Understanding with the City that delineates repair responsibilities.
IV. POTENTIAL DECISION SUPPORT CONSIDERATIONS
Based on the preceding evaluation of issues, staff is outlining for City Council consideration the following recommendations for both a rail crossing closure and non-closure options.
Should Council Direct Proceeding with Temporary Closure:
A. Determine Closure Duration with Intermediate Checks – As described in this report, rail crossing closure would likely occur in late Summer 2026. Depending on the overall duration selected for closure, intermediate check-ins would provide public opportunities to share their experiences. The City Council could set a planned timeframe through June 2027, with an evaluation to occur in December 2026 to confirm the timeframe or potentially terminate the closure immediately at that time. 26 B. Expedite Bike/Pedestrian Improvements at Embarcadero Road/Kingsley Avenue – Given increased traffic and bike/pedestrian activity expected at Embarcadero/Kingsley due to Churchill Avenue closure, these planned improvements should precede closure if possible. The City Council could approve the staff recommended procurement actions to expedite bicycling and pedestrian safety modifications at Embarcadero Road/Kingsley Avenue.
C. Prioritize Quiet Zones at Meadow and Charleston Rail Crossings – As reported earlier, temporary closure at Churchill Avenue would likely delay approval to proceed with establishment of a permanent Quiet Zone there. In recognition of this, the City Council could direct staff to prioritize Quiet Zones at Meadow and Charleston to advance these projects during the temporary Churchill Avenue closure. A Quiet Zone at Alma Street/Palo Alto Avenue is already in the final stages of approval.
D. Implement Detour Plans for Pedestrians, Bicyclists, and Motorists – Traffic management will be necessary throughout the temporary closure, and will be particularly important in the first weeks following the closure. The City Council could direct staff to prioritize plans to provide pedestrian, bicyclists, and motorists information to ease their navigation around the closure area.
Should Council Direct Not Proceeding with Temporary Closure:
A. Prioritize Churchill Quiet Zone – Student testimony highlighted the impact of train horns on the everyday environment experienced by Palo Alto High School students. The City Council could direct staff to return with a reallocated funding plan to accelerate Churchill Quiet Zone implementation, potentially including other projects that will need to be deferred in order to prioritize Churchill Avenue while also continuing work on Quiet Zones at Meadow and Charleston.
B. Commit to Ongoing Track Monitoring Staff – The City Council could direct staff to develop a funding plan to continue track monitoring staffing indefinitely, including seeking continued partnership with PAUSD.
C. Expedite JED Foundation Work – The City Council could direct staff to work with the JED Foundation to identify steps to accelerate and increase awareness of their ongoing review of suicide prevention and postvention practices in Palo Alto.
27 D. Support Continued Intrusion Prevention Efforts - The City should continue working with Caltrain on the identification and piloting of equipment to intrusion at grade crossings more difficult, including devices that inhibit persons from bypassing gate arms.
The points above are intended to provide substantive actions in the range of dimensions involved with this difficult community health concern.