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City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: City Manager
Meeting Date: April 15, 2026
Report #:2603-6075
TITLE
Expedited Evaluation of Potential Temporary Closure of the Churchill Avenue Rail Crossing, Determination of Next Steps, and CEQA Status – Statutorily and Categorically Exempt.
RECOMMENDATION
Staff recommends the City Council receive the expedited evaluation of a temporary closure of the Churchill Avenue rail crossing and provide direction on next steps. The Rail Safety Ad Hoc Committee recommends that after receiving the evaluation and public input, the City Council continue the item to a subsequent City Council meeting to finalize direction.
EXECUTIVE SUMMARY
Following the most recent youth suicide at the Churchill Avenue rail crossing, the City of Palo Alto, in collaboration with the Palo Alto Unified School District (PAUSD) and Caltrain, accelerated measures to restrict access to this form of lethal means. A City Council Rail Safety Ad Hoc Committee was established to support immediate actions, including deployment of 24/7 rail crossing monitoring staff, increased engagement with the nationally recognized suicide prevention organization The JED Foundation, and support for Caltrain’s work on intrusion detection and barriers. A final immediate action has been to evaluate the potential temporary closure of the Churchill Avenue rail crossing. This expedited evaluation was undertaken with the goal of presenting its conclusions and community input on the topic to the City Council by mid- April.
Staff’s expedited evaluation of the potential temporary closure of the Churchill Avenue rail crossing has identified various issues and impacts. This staff report and Attachment A identify potential community impacts, required regulatory actions, and necessary mitigation strategies to inform the City Council's decision on whether to proceed with a temporary closure.
Staff’s comprehensive analysis has identified four key findings for the City Council’s consideration:
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●Urgent Public Safety Rationale: The proposed Churchill Avenue rail crossing closure is a direct response to a public health crisis. It is a recognized emergency strategy to prevent suicide contagion by restricting access to a known location of concern. This action would supplement the 24 hours per day and 7 days per week monitoring guards already deployed as an initial safety measure.
●Significant Community Disruption: A full rail crossing closure would cause substantial disruption for all transportation modes. It would reroute over 8,000 daily vehicle trips and impact many Palo Alto High School students who walk and bike across the rail crossing. The resulting detours would increase travel times and shift traffic onto already congested corridors.
●Impact on Emergency Response: The Fire Department modeling indicates an average increase of approximately 15 seconds for first-arriving units in the immediate area of the closure, which is considered operationally manageable. However, similar to the Police Department, the Fire Department identified broader corridor impacts from increased congestion on Embarcadero Road and Oregon Expressway that could reduce routing flexibility and contribute to incremental delays for later-arriving resources and ambulance response or transport. The Police Department has significant concerns that traffic congestion shifted to key citywide routes (Embarcadero Road and Oregon Expressway) could negatively impact their ability to reach major incident locations, including Stanford Hospital and large commercial centers.
●Potential Uncertainty on Regulatory Processes, Particularly on Reopening and Quiet Zone Implementation: A temporary rail crossing closure requires formal approval from the California Public Utilities Commission (CPUC). Furthermore, disparate treatment of a temporary closure between state and federal agencies may create administrative complexities for future reopening and delay permanent Quiet Zone implementation.
To reduce impacts, staff has identified a variety of mitigation measures before and during a rail crossing closure. Mitigation measures include accelerating pedestrian and bicycle safety improvements on Embarcadero Road, developing wayfinding plans for pedestrians and cyclists, developing motorists detour plans and signage, and accelerating elements of the Churchill Avenue Enhanced Bikeway project at Castilleja Avenue.
From a decision-making perspective, staff describes two potential paths. If the City Council makes the determination to proceed, staff recommends setting a defined duration with an early evaluation, expediting bike and pedestrian improvements, prioritizing quiet zones at other crossings, and implementing detour plans for pedestrians, bicyclists, and motorists. If the City Council decides not to proceed with a temporary rail closure, staff recommends prioritizing the 9 5
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Churchill Avenue Quiet Zone, determining long-term track monitoring capacity, accelerating work with the JED Foundation, and continuing intrusion-prevention efforts with Caltrain.
BACKGROUND
Following the most recent youth suicide on the Caltrain tracks and considering the history of youth suicide clusters in Palo Alto, the City has received requests from community members including the Palo Alto Unified School District (PAUSD) for additional efforts to reduce risks and support local youth. A City Council Rail Safety Ad Hoc Committee was established in February 2026. As an immediate action, through work of the Ad Hoc Committee the City and PAUSD have already collaborated to contract for 24/7 monitor staffing at the railroad crossings. The Committee has also supported Caltrain installation of automated intrusion detection and anti- intrusion mats to deter access to areas adjacent to crossings.
A final immediate action has been the expedited evaluation of the potential temporary closure of the Churchill Avenue rail crossing. 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. This expedited evaluation was undertaken with the goal of presenting its conclusions and community input on the topic to the City Council within 60 days of initiation, resulting in presentation of this report in mid-April.
ANALYSIS
Staff’s evaluation of potential temporary closure has included community engagement, assessment of potential impacts on emergency response, pedestrian, bicycle, and vehicle circulation, and project scoping for a temporary closure (e.g., signal changes, fencing, and review and approval by the California Public Utilities Commission (CPUC). The CPUC is the state agency that has legal authority over railroad crossings.
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%2 0a%20community%20response,and%20health%20equity%20needs%20of%20the%20communit y.
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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 in this staff report are definitions, potential closure 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. The City Council, community members, and interested parties should refer to Attachment A for the comprehensive expedited evaluation of potential temporary closure of the Churchill Avenue rail crossing.
Decision Context
The expedited evaluation is intended to support a City Council decision on whether the City should temporarily close the Churchill Avenue rail crossing as an emergency public safety measure following recent youth suicides at the location. The potential closure is framed as a lethal-means reduction intervention intended to break the suicide cluster while the City considers broader postvention and infrastructure improvements. If the City Council directs staff to proceed with a rail crossing closure, the Churchill Avenue closure would be for 24 hours a day and 7 days a week, for vehicles, pedestrians, and bicyclists. Intermittent or supervised-hour closure options would be too complex to implement while still restricting access effectively and potentially enabling cessation of train horns. The closure period could range from approximately six months to one year. A minimum six-month period is recommended to allow traffic patterns to stabilize and be meaningfully evaluated, while a longer period aligns with the twelve-month postvention window often referenced after a youth suicide.
Implementation Requirements and Process
Implementation would require design, approvals, temporary traffic control changes, and coordination with rail authorities. The California Public Utilities Commission (CPUC) has jurisdiction over rail crossings and would review the temporary closure under General Order 88- B, in coordination with Caltrain. Required physical measures would include fencing and vehicle barriers on both sides of the tracks, crosswalk and striping changes, signage, traffic signal modifications, signal timing changes, and train signal and gate changes. Public Works would oversee installation and ongoing monitoring, with consultant and contractor support likely required.
If approved by the City Council, the Churchill Avenue rail crossing closure may be implemented by late summer 2026. While the rail crossing closure requires a diagnostic meeting with CPUC and Caltrain, restoring the rail crossing later would require a new diagnostic review, redesign or reactivation of traffic-control elements, CPUC review, construction, and testing of gates, bells, and signals. Timing and cost for reopening remain uncertain because state and federal interpretations may differ.
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Key Operational and Community Impacts
A temporary rail crossing closure would create significant transportation network effects. All traffic currently using Churchill Avenue would be diverted to other routes, especially Embarcadero Road and Oregon Expressway, affecting access between Alma Street and El Camino Real, nearby neighborhoods, Palo Alto High School, and Stanford University. Pedestrian and cyclist access is a major concern. The closest alternative route, Embarcadero Road, is not currently recommended by the City's Safe Routes to School (SRTS) program because of high- speed turning movements and poor yielding behavior at ramp-like crossings. For some students, detours would materially increase walking and cycling distances and travel times.
There will be impacts on vehicular traffic and congestion. The diversion of over 8,000 daily vehicle trips from Churchill Avenue would have significant effects on the city's road network. The City previously analyzed 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, or free-flow conditions with little or no delay, to LOS F, or jammed conditions with excessive delays. The analysis found that six intersections would experience jammed conditions as a result of the reassigned 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
These six nearby intersections are expected to experience LOS F under closure conditions, with peak delays likely in the range of 50 to 80 seconds per vehicle. School bus operations, parent drop-off patterns, and special-event access for nearby institutional destinations would also be affected.
Impacts on pedestrians and bicycle access are anticipated. A rail crossing closure would disproportionally affect Palo Alto High School students who represent the largest group of pedestrians and bicyclists who use the Churchill Avenue crossing. ●Current Usage: Approximately 714 Palo Alto High School students (39% of the student body) bike to school, with a significant number using the Churchill Avenue crossing. ●Impact of Closure: Students would face detours of up to 0.9 miles each way. The primary detour via Embarcadero Road is currently not recommended by the Safe Routes to School (SRTS) program due to high-speed vehicle slip lanes and other unsafe conditions. 9 5
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●Anticipated Consequences: The detour may discourage walking and biking, leading more parents to drive their children to school or novice drivers to drive to school. The result would be increased vehicle traffic, congestion, and safety risks in the immediate vicinity of the high school.
In addition, the City Council and community should be aware of the potential impact on emergency services response. Fire Department modeling indicates manageable effects on first- arriving unit response in the immediate area of the closure. However, both Fire and Police have identified the potential for broader congestion-related impacts on key response corridors, particularly during peak traffic periods, special events, or other disrupted conditions. ●Fire Department Analysis:
●Modeling shows an average 15-second increase in response time for the first- arriving unit to incidents in the area immediately surrounding the closure. This estimate is based on predictive modeling of current deployment patterns and available route assumptions; actual field conditions would need to be monitored and validated during implementation.
●This increase is considered operationally manageable for initial response; however, congestion on detour corridors could reduce routing flexibility and contribute to incremental delays for later-arriving resources during larger-scale incidents. Although such incidents are less frequent, timely arrival of additional units remains important for coordinated fire attacks, rescue, ambulance support, and command functions.
●Ambulance response and transport routes would remain available, but travel times in the affected area may become somewhat less predictable. ●Police Department Analysis:
●The primary concern is not so much the temporary rail crossing closure because patrol cars utilize the Churchill Avenue crossing approximately 7 times per day, but the impact of increased traffic congestion at nearby detour areas. ●Embarcadero Road and Oregon Expressway are primary Police response routes to critical facilities like Stanford Hospital and major commercial districts. ●Increased congestion on these corridors could delay Police response and the ability to bypass heavy traffic is limited.
A temporary closure may also create an administrative conflict that could complicate and potentially delay the delivery of the permanent, citywide Quiet Zone. The CPUC defines a 6-12 month closure as "temporary." However, the Federal Railroad Administration (FRA), which maintains the national crossing inventory database, does not have a "temporary" classification and would likely log the Churchill Avenue rail crossing as "permanently closed." This discrepancy creates an inconsistent status for the rail crossing closure between state and federal systems. To 9 5
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implement the permanent Quiet Zone, the rail crossing's status must be clear and active.
Resolving the data conflict between the CPUC and FRA to "re-open" the crossing in the federal database before it can be included in the Quiet Zone project will require coordination. While a rail crossing closure simplifies the Quiet Zone in the immediate term, it may complicate the long- term permanent solution.
Mitigation Measures and Costs
To mitigate the possible effects of a temporary Churchill Avenue rail crossing closure, staff would recommend a multi-pronged approach including accelerating specific projects and communication of alternative routes and travel options such as the following:
Accelerate Embarcadero Road Improvements (Pedestrian and Bicycle Safety) Develop Detour Plan for Pedestrians and Bicyclists
Develop Detour Plan for Motorists
Accelerate Churchill Avenue Enhanced Bikeway Project
Communications and Non-Physical Improvements
Accelerate or Delay Quiet Zone Implementation at Churchill Avenue In 2019-2020, the City evaluated the effect of the Churchill Avenue crossing closure as part of longer-term traffic flow mitigations and grade separation alternatives and identified signalization changes, widening, and intersection capacity upgrades, are estimated to exceed $50 million and would take many years to complete.
Potential Impact on Disrupting the Suicide Cluster
The preceding sections have focused on services and facilities controlled by the City.
Fundamentally, however, a temporary closure of the Churchill Avenue rail crossing would be intended to address the difficult goal of disrupting the suicide cluster, and determining the likely effectiveness of the rail 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 cost of the contract ($1.7 million) is split equally between the City and the Palo Alto Unified School District (PAUSD) via a cost-sharing agreement. Monitoring staff were in place beginning February 23 and have since completed both in-person rail safety training and online suicide prevention training.
The City first deployed contractors 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 only 9 5
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in the evening and only at the Charleston and Meadow rail crossings. Over time, coverage gradually 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 each rail crossing. That 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 Avenue 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 occurred at Churchill Avenue, other fatalities occurred at several other locations over the course of the past decade and beyond. In fact, most youth suicides have not involved the tracks (Attachment B letter from the JED Foundation). 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 as described in the Stakeholder Engagement section, and JED will have a findings report this summer and will share applicable tools later this year.
Potential Evaluation Elements of Temporary Rail Crossing Closure Should a temporary rail crossing closure of Churchill Avenue proceed, staff identified preliminary measures/criteria that could be used to evaluate closure effectiveness in terms of safety, traffic, and community impacts:
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 Delays to pedestrians, bicycles, and vehicles as well as traffic congestion at key intersections
Data collection and assessment would occur throughout the school year to identify seasonal variations
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 traffic queueing on adjacent roads Public feedback and effects on nearby residential and commercial areas Compliance with regulations and requirements, specifically track intrusions and any property damage
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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 staff 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.
B. Expedite Bike/Pedestrian Improvements at Embarcadero Road between Alma Street and Emerson Avenue – Given increased traffic and bike/pedestrian activity expected at Embarcadero 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 pedestrian and bicycling safety modifications at Embarcadero Road.
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 at Churchill Avenue. 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, pending funding availability. 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 Avenue 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 the Churchill Avenue Quiet Zone implementation, potentially including other projects that 9 5
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will need to be deferred 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.
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 to be 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.
FISCAL/RESOURCE IMPACT
Temporary Closure Related Costs:
The estimated cost of closure, maintenance, and reopening is approximately $1.2 million. The estimate includes all material and labor for closure, maintenance, and reopening including 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).
The $1.2 million estimated cost for the potential temporary closure of the Churchill Avenue rail crossing is a preliminary figure intended for planning purposes. This project is not currently included in the proposed Capital Improvement Program (CIP), and no specific capital revenue sources have been identified to fund these costs at this time. Should the City Council provide direction to advance this project, staff will develop and present funding options and potential project reprioritization for consideration during the Finance Committee and City Council reviews of the CIP scheduled for May.
Embarcadero Road Improvement Costs:
If the City proceeds with closure, the Embarcadero Road improvement Project (Between Alma Street and Emerson Avenue) with sidewalk improvements on the north side of Embarcadero Road would proceed as an emergency project. To allow construction to commence immediately upon the end of the school year in June 2026, staff will request City Council direction to work 9 5
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with a contractor to negotiate and execute a contract. The contract is estimated to be between $1.5-$2 million.
To accelerate delivery while maintaining student, pedestrian, and bicyclist access, this project would be delivered in two phases, north and south of the centerline of Embarcadero Road. The bifurcation of the project into two phases with an accelerated schedule for the first portion and separate mobilization for the second phase would result in a total project cost increase.
To fund these improvements, staff will recommend that the City Council approve a new capital improvement project. The Embarcadero Road Improvements (Alma Street to Emerson Avenue) (TR-26000) project, in the Capital Improvement Fund for the amount of $2,886,000, will be offset by Measure B Local Streets and Roads (LSR) revenue in the same amount. An additional $260,000 of appropriation and LSR revenue will be requested as part of the FY 2027 Amendment-to- Proposed Capital Budget.
Not Proceeding with Temporary Closure Costs
The cost for not proceeding with temporary closure and investing in prioritizing Churchill Avenue Quiet Zone, track monitoring staff beyond the current term, and potentially further work with JED and intrusion prevention efforts are also not currently included in the proposed Capital Improvement Program (CIP) or proposed Operating Budget. Should the City Council provide direction to advance these priorities staff will develop and present funding options including funding reprioritization to be considered during the Finance Committee and City Council reviews of the budget scheduled for May.
STAKEHOLDER ENGAGEMENT
On February 6, 2026, Mayor Veenker shared a City of Palo Alto statement calling for action and community support. An online platform for sharing status updates on rail safety priorities (City of Palo Alto website, LinkedIn, and Instagram), ongoing safety measures, local resources available to support community and youth, a digital feedback form for community comments were developed for enhanced public engagement, and a Frequently Asked Questions (FAQ) document was created for additional information sharing. Outreach also included email postings and inclusion in City newsletters including Uplift Local, Transportation Connect, and Business Connect as well as distributing flyers at Town and Country Village, and California Avenue businesses, and notifying Stanford of the Listening Session and JED Foundation workshops.
On March 12, 2026, the City conducted a public listening session at the PAUSD Boardroom on Churchill Avenue to enable community members to provide input on a potential temporary closure of the Churchill Avenue rail crossing. Approximately 85 community members attended in person, with 254 watching live and 80 viewing the YouTube recording afterwards. The information gathered at the Listening Session along with the comprehensive evaluation has 9 5
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allowed staff and local and regional partners to identify key issues and concerns, which are outlined in the Analysis section of this Staff Report and in Attachment A.
The OpenForms online public comment period closed on March 29, 2026. Approximately 280 public comments were received. Roughly 31% of respondents favored a temporary rail crossing closure, 58% were against closure, and 11% were neutral (Attachment C). In addition, roughly 100 community members sent emails directly to the City Council with their input.
The City and JED Foundation hosted interactive workshops on March 17-19, 2026, for community members to discuss and learn about mental health issues and suicide prevention as well as equip community members with the knowledge and skills to support individuals who may be struggling and connecting them with the appropriate resources when needed. JED has also held sessions specific for youth and young adults (ages 13-30) as listening sessions where youth and young adults can share their views on how leaders, adults, and peers can offer better mental health support. There are two upcoming sessions on April 16 and 19 and individuals can sign up here:
https://www.paloalto.gov/Events-Directory/Community-Services/Teen-Focus-Groups-with-JED.
ENVIRONMENTAL REVIEW
The California Environmental Quality Act (CEQA) exempts certain emergency projects from its requirements, including specific actions necessary to prevent or mitigate an emergency. (CEQA Guidelines section 15269(c)). The temporary closing of the Churchill Avenue crossing is an emergency public safety measure in response to the most recent youth suicide on the Caltrain tracks, and the history of teen suicide clusters in Palo Alto. Temporary closing would mitigate this public safety emergency by limiting access to lethal means. Therefore, Council action on this item is exempt from CEQA review.
This project is also exempt as an alteration to an existing public facility with no expansion of an existing use because the temporary closing of the Churchill Avenue crossing will eliminate, and not expand, the use of the crossing by vehicles, bicycles, and pedestrians. (CEQA Guidelines section 15301).
ATTACHMENTS
Attachment A: Expedited Evaluation of Potential Temporary Closure of the Churchill Avenue Rail Crossing
Attachment B: The JED Foundation Letter
Attachment C: OpenForms Public Comments
APPROVED BY:
Ed Shikada, City Manager