City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Transportation
Meeting Date: June 15, 2026
Report #:2605-6367
TITLE
Approve Conceptual Design for Alma Street-Charleston Road Railroad Crossing Near-Term Section 130 Safety Improvement Project – Direct Staff to Complete Final Design, Environmental Analysis, Project Specifications, and Engineering Cost Estimates based off of the Conceptual Design as Recommended by Rail Committee; CEQA status: Categorically Exempt under Section 15301-Class 1 minor alternations to existing facilities.
RECOMMENDATION
Rail Committee and staff recommend that the Council approves the conceptual design and directs staff to move forward with the proposed near-term safety improvements to the Alma Street and Charleston Road Railroad Crossing, including direction to complete final design plans, environmental analysis, project specifications, and engineering cost estimates for construction. The Rail Committee unanimously voted to recommend approval of the conceptual design to the City Council.
EXECUTIVE SUMMARY
The California Department of Transportation (Caltrans) Division of Rail, in cooperation with the Peninsula Corridor Joint Power Board (also known as Caltrain or JPB) and the City of Palo Alto, proposed a railroad crossing improvement project at Charleston Road in Palo Alto. This intersection was identified by California Public Utilities Commission (CPUC) for safety improvements as part of Section 130 federal funding for hazard elimination at railroad crossings.
In December 2024, City Council authorized a contract with BKF Engineers to prepare plan line concepts, final design plans, permit applications, and construction documents for improvements to the intersection of Alma Street and Charleston Road. The project objectives are to improve the safety, efficiency, and experience of the intersection and rail crossing for pedestrians, bicyclists, and motorists. Based on the scope of improvements listed in the Service
Contract with Caltrans, the project team collaboratively developed concept plans that include the following described below:
Installation of a pre-track traffic signal (pre-signal), Relocation of select traffic signal equipment at Alma Street, Replacement of the existing pedestrian crossing markings, Reconstruction of pedestrian curb ramps,
Reconfiguring pedestrian sidewalks at the northwest and southwest corners of the intersection,
Addition of bike lane markings, and
Modification of railroad emergency pedestrian gates and gate arms.
On October 28, 2025, the project team held a community meeting to introduce the project, present existing conditions, and receive feedback from members of the public on the proposed improvements. On March 3, 2026, the Palo Alto Bicycle Advisory Committee (PABAC) also reviewed the concept plan for this project, discussed, and provided comments and input.
On May 12, 2026, Rail Committee reviewed the concept plan and unanimously recommended Council approve the concept plan and direct staff to undertake final design.1
BACKGROUND
The intersection of Alma Street and Charleston Road is close to an active railroad, with high volumes of vehicular, bicycle, and pedestrian traffic, particularly in the morning and afternoon commute periods as students travel to and from school.
The intersection was identified by the CPUC as a candidate for safety improvements and hazard elimination for at-grade railroad crossings. A diagnostic team comprised of staff from CPUC, Caltrans, JPB, and the City of Palo Alto developed recommendations for safety improvements at this location. The diagnostic team evaluated the existing conditions with respect to vehicular travel, bicycle travel, pedestrian pathways, and rail operations, and determined that the identified safety improvements would be 100% eligible for Section 130 Program funding. The Peninsula Corridor Joint Powers Board (JPB) and the City will be required to coordinate their respective work items.
The Railway-Highway Crossings (Section 130) Program overseen by the U.S. Department of Transportation Federal Highway Administration (FHWA) provides funds for hazard elimination at railway-highway crossings. The Section 130 Program has been correlated with a significant decrease in collisions and fatalities at railway crossings. Section 130 funds are eligible for projects at all public crossings including roadways, bike trails, and pedestrian paths. 1 Rail Committee , May 12, 2026; Item 1, Action Item, SR# 2604-6222 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=88051&dbid=0&repo=PaloAlto In November 2023, Caltrans’ Division of Rail and Mass Transportation executed Service Contract No. 50LP298, with the City of Palo Alto; and on December 2, 2024, Palo Alto City Council authorized a contract with BKF Engineers for Charleston Road and Alma Street Railroad Crossing Safety Improvement Plan. Scope elements include preparation of concept plans, final design plans, and construction documents, for intersection improvements at Charleston Road and Alma Road. Improvements include, but are not limited to, traffic signal modifications, sidewalk and crosswalk improvements, signing and striping updates, and pedestrian railroad crossing improvements. The project team includes BKF Engineers, along with subconsultants, Hexagon Transportation Consultants and Callander Associates, in consultation with City staff.
Concurrent with this project, JPB is developing plans for improvements within their right-of way at this intersection. JPB and City staff are coordinating improvements at the intersection to ensure that work items are compatible. The JPB will be responsible for most of the construction and improvements within JPB right of way, and the City will manage construction and improvements within City right-of-way. Attachment A shows the current concept plan.
ANALYSIS
This report provides information on the various stages of this work, including:
Collision data
Required scope of work
Proposed project improvements
Traffic analysis
Community outreach and engagement
Next steps
Collision Data
Section 130 projects are triggered based on documented crossing safety concerns. At Charleston Road railroad crossing, the Federal Railroad Administration (FRA) reported six collisions from January 2018 through January 2024. The FRA reporting tool only captures railroad crossing incidents reported by the railroad operator (Caltrain) to the FRA specific to the Charleston Ave Railroad Crossing only. These do not include any incidents that occurred within the intersection or local streets.
Required Scope of Work
A diagnostic team comprised of staff from CPUC, Caltrans, JPB, and the City of Palo Alto developed the initial scope of work for the project as detailed in the City’s contract with Caltrans. The scope of work includes:
Installation of pre-signal for eastbound motorists, interconnected to the railroad signal system and the existing traffic signal at Alma Street and Charleston Road, Modification of the existing traffic signal operations at the nearby intersection of Alma Street / Charleston Road, including the addition of advance traffic signal preemption, Installation of channelizing delineators on the northeast bound approach, and Installation and update of signage and striping in compliance with the CA MUTCD.
Based on this scope of improvements, which is outlined in the City’s contract with Caltrans, the project team developed a conceptual plan. The conceptual plan encompasses:
Installation of a traffic signal pre-signal,
Relocation of traffic signal equipment,
Updates to the existing pedestrian crossing markings,
Reconstruction of pedestrian curb ramps, and
Expansion of pedestrian areas at the northeast and northwest corners of the intersection.
Proposed safety improvements include a pre-track signal on eastbound Charleston Road. The pre-signal would add a traffic signal pole with multiple signal heads west of Alma Street, for vehicles to stop at the existing stop line west of the railway tracks. It would also add regulatory restrictions for motorists from queuing within the train crossing area. A pre-track signal would also restrict vehicles from crossing the tracks against a red signal and would restrict right-turns on red at Alma Street.
Traffic Analysis
The Project team prepared a traffic analysis memo for the Charleston Road and Alma Street intersection in January 2026 (Attachment B), which evaluated the operational performance of the intersection under existing condition, and with proposed improvements including a pre- signal.
As part of the project concept development, the project team observed existing traffic conditions and utilized existing (January 2025, with school in-session) data at the project study location, during AM, after school, and PM peak periods. Details of these observations are outlined in the traffic analysis. Key findings are listed below:
The railroad crossing is approximately 25 feet southwest of the Charleston Road/Alma Street intersection, with a stop line and “Stop here on Red” sign for eastbound Charleston Road located west of the train tracks and a hatched area between the tracks and Alma Street to indicate that this is not a queuing area. Field observations showed that eastbound motorists and bicyclists frequently passed the stop line and railway tracks to wait in the hatched area to the east of the tracks. Eastbound motorists were also frequently observed making right-turns on red. Vehicular queues were observed on Alma Street and eastbound Charleston Road that sometimes required one or two cycles to clear.
Analysis of traffic effects of the proposed project was conducted. Table 1 summarizes AM, after school, and PM peak hour intersection delays and levels of service at Alma/Charleston intersection under existing conditions and with the proposed safety improvement.
Community Outreach and Engagement
Community engagement on this project included a community meeting held at Mitchell Park Library on October 28, 2025. A summary of this meeting is included in Attachment C.
Outreach for the meeting included mailers to 736 residents living within 1,000 feet radius of Alma/Charleston intersection in addition to an ad published in the local newspaper one month before the meeting date and posting of meeting details on City social media sites such as NextDoor and Facebook. Eight community members attended the meeting in person.
At this meeting, the project team received many constructive comments from community members including comments on bicycle and pedestrian treatments, safety concerns, and connectivity. Meeting participants and respondents generally supported the proposed concept designs and raised questions regarding:
Whether proposed improvements sufficiently address motorist, cyclist and pedestrian safety in advance of the long-term railroad grade separation project. Potential property impacts (there are no property impacts to adjacent residences). Safety and visibility for bicyclists including bike lane striping suggestions that will be evaluated and incorporated where possible.
On March 3, 2026, the project team also presented this project to the Pedestrian and Bicycle Advisory Committee (PABAC) for review and discussion. A summary of the PABAC meeting is included in Attachment D. In addition to the questions shared during the meeting, the committee was encouraged to submit any follow-up questions or comments via e-mail to staff.
PABAC members provided the following key comments:
Attendees expressed gratitude that the proposed project is moving forward given the high volume of pedestrian and bicyclists that use this intersection. Some attendees noted bike marking improvements, and signal timing improvements at other Palo Alto locations as potential examples for providing safer movements for bicyclists and pedestrians through the intersection.
On May 12, 2026, Rail Committee reviewed and discussed the concept plan for this project and unanimously recommended that Council approve the concept plan and direct staff to complete final design plans.
Next Steps
The project team is currently updating conceptual plans based on input from community members, stakeholders, and City staff. An in-progress concept plan set from November 2025 is provided in Attachment A, with jurisdiction limits of work displayed in Attachment E.
Pending Council approval, the project team will develop final design plans, specifications, and engineer’s cost estimates for the construction bid. Staff will work closely with JPB, Caltrans, and CPUC during the final design process. Design work is slated for completion by Fall 2026.
Construction would be scheduled thereafter and is expected to be completed by the end of 2027.
These near-term improvements do not preclude Quiet Zone implementation or longer-term actions to implement a railroad crossing grade separation that has been identified as a Council Priority.
FISCAL/RESOURCE IMPACT
Funding for improvements to Alma Street and Charleston Road intersection is provided through the approved Charleston Road/Alma Street Railroad Crossing Safety Improvements Capital Improvement Project PL-25002. This location was identified through the Federal Section 130 program administered by Caltrans for increasing safety at at-grade rail crossings.
Based on Service Contract No. 50LP298 between the City of Palo Alto and Caltrans Division of Rail and Mass Transportation, the City will receive federal Section 130 Grade Crossing Improvement Program funds on a reimbursement basis. The existing agreement between the City and Caltrans provides the City with $700,000 for the design phase through Section 130 funds, including the existing BKF design contract in the amount of $397,705.
The preliminary construction cost estimate for this project is $2.2 million. Upon final approval of the construction documents and engineer’s estimate, the City will request additional Section 130 funds for the construction phase to be allocated to the City through an amendment to the existing agreement with Caltrans. The project will be competitively bid for procurement of the construction contract, and actual project cost will depend upon the bid proposals received for construction.
STAKEHOLDER ENGAGEMENT
Since June 2025, the design team has been conducting monthly stakeholder check-in meetings to provide updates and coordinate proposed improvements. Stakeholders involved in the monthly meetings include the City of Palo Alto, Caltrans, CPUC, JPB and the consultant design team.
A community meeting was conducted on October 28, 2025 at Mitchell Park Library to provide information on the project and obtain input on the project from local residents. In addition, the project was reviewed by the PABAC on March 3, 2026, Rail Committee on May 12, 2026, and City School Traffic Safety Committee on May 21, 2026. These committee meetings are open to public and noticed on the City Calander for public outreach.
ENVIRONMENTAL REVIEW
The project is a collaboration between Caltrans, City of Palo Alto, and Peninsula Corridor Joint Powers Board. Caltrans will be leading environmental review efforts under National Environmental Policy Act (NEPA) and the Project is Categorically Exempt under Section 15301- Class 1 that covers minor alterations to existing facilities under the California Environmental Quality Act (CEQA). A Notice of Exemption was filed with the Santa Clara County City Clerk on May 1, 2026.
ATTACHMENTS
Attachment A: Conceptual Plan Exhibit - November 2025
Attachment B: Traffic Analysis Memo by Hexagon Transportation Consultants Attachment C: Community Meeting Summary
Attachment D: PABAC Meeting Summary
Attachment E: City and JPB Limits of Work
APPROVED BY:
Ria Hutabarat Lo, Chief Transportation Official