City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Transportation
Meeting Date: October 5, 2026
Report #:2608-6615
TITLE
Approval of Professional Services Contract Number C27196802 with BKF Engineers for the Design of Four Quadrant Gate Systems Improvements required for Quiet Zone Railroad Crossings at Churchill Avenue, Meadow Drive, and Charleston Road in an Amount Not to Exceed $1,294,522 for a term ending December 31, 2029; CEQA status: Categorically Exempt, CEQA Guidelines Section 15301.
RECOMMENDATION
Staff recommends the Council approve and authorize the City Manager or their designee to execute Contract No. C27196802 (Attachment A), with BKF Engineers, to prepare the final design documents including Plans, Specifications and Cost Estimates for the design of Quiet Zone Improvements, which primarily includes four quadrant gate systems, at Churchill Avenue, Meadow Drive, and Charleston Road for the total amount not-to-exceed $1,294,522 and a term ending December 31, 2029.
EXECUTIVE SUMMARY
Authorization to execute a professional services agreement with BKF Engineers will enable preparation of the final design and supporting documentation for construction of the quiet zone improvements along the Caltrain corridor at three of the four train crossings.
Implementation of Quiet Zones along the train corridor is a City Council priority to address longstanding community concerns regarding train horn noise. In 2025, the Quiet Zone Study recommended installation of four-quadrant gate systems at Churchill Avenue, Meadow Drive, and Charleston Road crossings. The City Council approved the conceptual plan for these improvements on November 10, 20251, and further prioritized implementation of Quiet Zones during its May 11, 20262, discussion of the Churchill Avenue crossing. 1 City Council, November 10, 2025; Item 7, Action Item, SR# 2509-5227 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83860&dbid=0&repo=PaloAlto https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=88038&dbid=0&repo=PaloAlto 2 City Council, May 11, 2026; Item 8, Action Item, SR# 2604-6320 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=88038&dbid=0&repo=PaloAlto
The Quiet Zones improvements will also serve as interim safety improvements until the planned grade separation projects are constructed. Implementation will require close coordination with Caltrain, the Federal Railroad Administration (FRA), and the California Public Utilities Commission (CPUC) to obtain the necessary approvals and permits.
BACKGROUND
Train horns create noise impacts in Palo Alto. Palo Alto has four at-grade crossing locations with 104 daily Caltrain services in addition to unscheduled Union Pacific freight services. At each of these locations, Federal regulations require that locomotive horns produce sounds from 96 to 110 decibels for at-grade crossings and that trains begin sounding these horns 15–20 seconds before entering public rail grade crossings, and no more than one-quarter mile in advance. The extent and severity of noise impacts is affected by factors including horn noise level and character, ambient noise levels, and prevailing winds.
In September 2024, the Peninsula Joint Powers Board (JPB) completed a multi-decade project to electrify Caltrain operations. Following electrification, Caltrain and Cities along the Peninsula noted an increase in noise complaints related to Caltrain horns, which had initially been set toward the high end of the legal limit. In November 2024, Caltrain adjusted horn noise levels to the low end of the legal range.
Quiet Zones are segments of a rail line where trains do not routinely sound horns at grade crossings. The locomotive engineer may still sound the horn at any time to provide a warning in response to an emergency or any perceived safety consideration. Establishment of Quiet Zones is regulated by FRA and requires installation of Supplemental Safety Measures (SSMs) to bring the Quiet Zone Risk Index below the Risk Index with Horns. The process for establishing Quiet Zones is illustrated in Figure 1 below.
Figure 1: Quiet Zone Implementation Process
1. Diagnostic
Review with
FRA & CPUC
2. Design of
Supplemental
Safety
Measures
(SSMs)
3.Request to
Alter Rail
Crossing to
CPUC (GO-88B)
4. Notice of
Intent (NOI) to
FRA & CPUC
5. Review &
Comment on
SSMs by FRA
6. Installation
of SSMs
7. Field Review
of SSMs &
Update of
FRA/CPUC
Inventory
8. Notice of
Establishment
(NOE) to FRA,
CPUC, JPB &
UP
9. Operators
Silence Routine
Horns
The Palo Alto Council Priority affirmed implementation of quiet zones as a Council Priority under Public Safety, Wellness and Belonging. On March 4, 2024, City Council approved an agreement with Kimley Horn and Associates for performing a Quiet Zone Study (Staff Report 2311-2269)5.
The City of Palo Alto in collaboration with the City of Menlo Park conducted a QZ study to establish a quiet zone at the Palo Alto Avenue/Alma Street crossing in the initial project phase. The design of the improvements required for implementation of a QZ at Palo Alto Avenue was completed in early 2025 and associated improvements are under construction, and expected to be completed by March 2027. Once constructed, the City will be eligible to apply to the FRA for establishment of a quiet zone, train horns will not need to be sounded under normal circumstances. Gate bells will still sound and the train engineer will still have discretion to sound train horns in case of emergency or perceived danger.
The second phase of the quiet zone project for remaining three at-grade crossings of Churchill Avenue, E. Meadow Drive, and Charleston Road is underway. Quiet zone improvements at these locations will serve as interim measures to mitigate noise impacts before planned grade separations are constructed at these crossings.
The Federal Railroad Administration (FRA) Title 49 regulations establish safety requirements for local agencies that wish to mitigate train horn noise impacts by establishing Quiet Zones. The regulations require agencies to complete a quiet zone study to evaluate the Quiet Zone Risk Index (QZRI) and assess Supplemental Safety Measures (SSM) needed to make a crossing eligible for a quiet zone. In total, FRA lists fourteen recognized SSMs. Based on street geometry and nearby signal operations, the only feasible SSM identified for the three crossing locations under consideration in Palo Alto was a four-quadrant gate system.
The City prepared conceptual plans for the required improvements to implement quadrant gate systems at Churchill Avenue, Meadow Drive and Charleston Road to meet regulatory standards for quiet zones plus appropriate signage and striping. Staff also held a community outreach meeting on April 16, 2025, where community members expressed support for the designs and a desire to expedite implementation of quiet zones in Palo Alto.
Conceptual plans and alternatives were also reviewed by Planning and Rail Committee on August 20, 20246 and September 16, 20257 The project received positive feedback from these committees and Rail Committee unanimously recommended that City Council direct staff to proceed with design of improvements.
5 City Council meeting, March 4, 2024, Consent Item SR# 2311-2269 https://portal.laserfiche.com/Portal/DocView.aspx?id=70841&repo=r-704298fc 6 Rail Committee, August 20, 2024; Item 1, Action Item, SR# 2405-3085 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=9263&dbid=0&repo=PaloAlto 7 Rail Committee, September 16, 2025; Item 2, Action Item, SR# 2507-4951 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83877&dbid=0&repo=PaloAlto On November 10, 2025, City Council approved the conceptual plans and directed Staff to initiate the design and review process for establishing Quiet Zone at the three crossings of Churchill Avenue Meadow Drive, and Charleston Road crossing.11 The Office of Transportation staff is now progressing with design of improvements required to implement quiet zone at these crossings. These efforts relate to Step 2: Design of Supplementary Safety Measures (SSM’s) of the flowchart presented above.
This staff report provides the findings of the City’s procurement efforts to secure the services of a consultant and seek approval for the award of the Consultant Contract to perform a Study.
ANALYSIS
The City requested proposals from qualified engineering consultants to prepare plans, specifications, and cost estimates for the improvements needed to implement Quiet Zones at the Churchill Avenue, Meadow Drive, and Charleston Road crossings, including four- quadrant gate systems. The scope includes advancing the existing conceptual plans into design, providing permitting support and obtaining the required GO88-B permit, coordinating with CPUC, FRA, and Caltrain and incorporating their review comments, conducting community outreach, and providing design support during construction.
Solicitation Process
A request for proposals (RFP) for the project was posted on April 28, 2026, on OpenGov, the City’s eProcurement platform. The solicitation period was open for 42 days and only two (2) proposals were received, both responsive to the RFP criteria. The solicitation closed on June 10, 2026.
Summary of Request for Proposal
Proposal Description Quiet Zone Study RFP No. 189371
Proposed Length of Project 36 months
Number of Proposal Packages Downloaded 44
Total Days to Respond to Proposal 42
Pre-Proposal Meeting No
Pre-Proposal Meeting Date NA
Number of Proposals Received 2
Proposal Price Range $1.06M - $1.21M
Public Link to Solicitation https://procurement.opengov.com/portal/palo- alto-ca/projects/260942
11 City Council, November 10, 2025; Item 7, Action Item, SR# 2509-5227 https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83860&dbid=0&repo=PaloAlto Staff believes that the City only received two proposals for a number of reasons. First, the highly competitive environment and the specialized nature of the study requires experience with operating railroads, and working with Federal and State agencies - means that there are limited subject matter experts available to perform such studies. Staff reached out to other potential proposers for feedback, and some indicated that they did not submit a proposal due to existing workload commitments and scheduling constraints. Potential proposers also indicated that they only propose if they know that their service can deliver the high standards of quality expected by the City of Palo Alto.
BKF Engineers was selected because of the quality and effectiveness of their services, the experience of their field staff, prior record of strong performance with the city, and their ability to provide future services. BKF Engineers is also working on the design of safety improvements at Alma Street and Charleston Road crossing and recently completed the design and construction of safety improvements at Alma Street and Churchill Road crossing.
Therefore, BKF Engineers may also provide continuity to the design of required improvements for the Quiet Zones project. This contract is on the City’s professional services template, which permits the City to terminate without cause/for convenience by providing written notice to the consultant.
FISCAL/RESOURCE IMPACT
Funding of $1,400,000 is available in the FY 2027 Adopted Capital Budget for Capital Improvement Project #TR-27000, Quiet Zone Improvements, to fund design and related project development activities for quadrant gates at Churchill Avenue, Meadow Drive, and Charleston Road for FRA and CPUC permits, and staff and Caltrain project management.
Approval of this contract for an amount not to exceed $1,294,522 will leave approximately $105,478 in available project funding for the remaining project activities outside of this contract.
Construction costs are not included in this contract and will be evaluated as part of the final design and cost estimating process. The current five year capital improvement plan estimates $4.3 million in construction costs however, the amount will be determined following completion of final design and selection of a construction firm. This project is anticipated to impact operating expenses in the future. Once the project is in final design, estimates of the committed additional costs will be included in future CIP budget project descriptions and incorporated into future operating and maintenance budgets.
STAKEHOLDER ENGAGEMENT
Community and stakeholder outreach was conducted throughout the project. A community meeting was held on April 16, 2024, followed by presentations to the Rail Committee on August 20, 2024, and September 16, 2025. A diagnostic meeting with CPUC, FRA, Caltrain, and City staff was held in October 2024. The project was also presented to Transportation Connect. These meetings provided opportunities for stakeholders and public review and comment. Additionally, the project scope includes outreach to the community and various committees involved with rail and transportation related issues during the next steps of design and construction.
ENVIRONMENTAL REVIEW
The Project will qualify as Categorically Exempt under the California Environmental Quality Act (CEQA) as defined in CEQA Guidelines, section 15301 -Class 1, Minor Alteration to existing facilities. The project scope includes completion of the environmental documentation and required filing in accordance with CEQA guidelines.
ATTACHMENTS
Attachment A: BKF Transportation Engineers Contract No. C27196802 APPROVED BY:
Ria Hutabarat Lo, Chief Transportation Official