CITY OF SAN MATEO
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CITY OF SAN MATEO
Agenda Report
City Hall
330 W. 20th Avenue
San Mateo CA 94403
www.cityofsanmateo.org
Agenda Number: 19 Section Name: OLD BUSINESS Account Number: 10-4662 File ID: 25-10243 TO: City Council
FROM: Alex Khojikian, City Manager
PREPARED BY: Public Works Department
MEETING DATE: August 18, 2025
SUBJECT:
Train Quiet Zone Project Status — Update
RECOMMENDATION:
Receive a staff presentation on the status of the Train Quiet Zone implementation efforts and provide feedback.
BACKGROUND:
Since 2017, reducing train horn noise impact on residents at City at-grade crossings has been a priority for City Council.
Staff presented potential approaches to establishing a “Quiet Zone” in August 2018, January 2020, June 2023, and most recently, in July 2024. The plan focuses on implementing Federal Railroad Administration – approved safety measures at specific crossings at E. Bellevue Avenue and Villa Terrace.
From the July 2024 meeting, staff received direction on the following items:
1. Conduct additional outreach with residents directly impacted by the proposed improvements, particularly those living along E. Bellevue Avenue – Completed
2. Coordinate with Public Safety (Fire and Police) to assess access points and emergency response times – Completed
3. Evaluate the feasibility of a temporary closure at E. Bellevue Avenue – Completed FRA Requirements
The Federal Railroad Administration (FRA) mandates train horn usage along the railway and has established requirements that allow for cities to implement a “Quiet Zone” to restrict the use of train horns along train corridors. In order to establish a Quiet Zone, a city must implement FRA-approved safety measures at a number of at-grade crossings within the proposed segment. FRA-approved safety measures include upgraded four-quadrant gates (as opposed to the standard two-quadrant gates currently used in the City), concrete medians, street closures, and one-way street conversions.
In addition to implementation of FRA-approved safety measures, cities must certify that the FRA-approved safety measures sufficiently mitigate the increased risk of collision resulting from restricting train horns, based on a collision risk assessment. To establish a Quiet Zone, the “Risk Index” for the proposed segment of rail corridor must be lower as a percentage score than 100 percent, as determined through FRA risk index calculation tools. Eligibility of an established Quiet Zone is reassessed periodically through the FRA’s risk assessment process, as the proposed segment’s risk index may change based on changes to traffic volumes or in case of any collisions at the at-grade crossings.
It is important to note that should a Quiet Zone be established, train horn noise will not be completely eliminated as Caltrain is still permitted to sound horns at station platforms for operational and safety purposes as required by the FRA.
Caltrain may also sound horns in emergency situations to alert animals, vehicle operators, pedestrians, trespassers, or crews on other trains and near construction sites.
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Proposed Plan
The proposed Quiet Zone would extend from Villa Terrace to Hayward Park. Since the rail crossings south of Hayward Park Station are already grade-separated and do not require horn sounding, implementation of the Quiet Zone would, in effect, cover the entire city.
To achieve this, staff has focused on upgrading the City’s at-grade crossings. New four-quadrant gates at 4th and 5th Avenues have been installed and are currently awaiting final certification from the California Public Utilities Commission (CPUC). Of the remaining at-grade crossings where rail improvements are most feasible, staff is currently evaluating additional safety enhancements at the Villa Terrace and E. Bellevue Avenue crossings, including consideration of four- quadrant gates, complete closures of both crossings, or closure of Villa Terrace and extended medians on E. Bellevue Avenue.
In July 2024, during the presentation to City Council, staff recommended maintaining the Risk Index below 90 percent to provide a buffer against potential future modifications to FRA guidelines, fluctuations in traffic and accident data used in risk calculations, and possible increases in Caltrain train volumes. Between 2024 and 2025, the calculated Risk Index increased (meaning the Risk Indices got closer to 100 percent and therefore provide less of a buffer for future modifications in FRA’s standards) across all proposed scenarios for implementing the Train Quiet Zone improvements, as shown in Table 1 below.
Table 1: FRA Risk Index for proposed improvement scenarios – 2024 vs. 2025 Option Scenarios Risk Index 2024 Risk Index 2025
1 Quad gates at Villa Terrace and E. Bellevue Avenue 89% 98% 2 Closure at Villa Terrace and E. Bellevue Avenue 79% 89% 3 Closure at Villa Terrace and medians at E. Bellevue Avenue 84% 95% Staff attributes the increase in the Risk Index to a rise in train traffic along the corridor. Since both Option 1 and Option 3 exceed staff’s recommended risk threshold of 90 percent, neither option is being recommended for Train Quiet Zone implementation, leaving full closure of both Villa Terrace and E. Bellevue Avenue as the only option that reduces the Risk Index below 90 percent.
Updated Traffic Impact Study
In 2023, a Traffic Impact Study was completed to analyze the potential effects on the transportation network for Option 2 (full closures at both Villa Terrace and East Bellevue Avenue) and Option 3 (closure at Villa Terrace and installation of a median at East Bellevue Avenue).
In 2025, City staff and their traffic consultant, Kittelson & Associates, conducted a supplemental study, which confirmed the same findings as the 2023 analysis. Based on community feedback, the 2025 study also included five additional intersections along North Claremont Street. Traffic counts were collected from Tuesday, May 13, through Thursday, May 15, while schools were in session.
The results of both the 2023 and 2025 studies indicate that the Level of Service (LOS) at the analyzed intersections remains within the City’s adopted thresholds, as outlined in the 2020 Transportation Analysis Guidelines and General Plan.
The supplemental study further determined that North Claremont Street is not eligible for traffic calming measures, as the 85th percentile speed was not more than six miles per hour over the posted speed limit. However, the study also evaluated potential improvements at the intersections of North Claremont Street with State Street and East Bellevue Avenue. It recommends implementing an all-way stop and marked crosswalks at the intersection with State Street and marked crosswalks at the intersection with East Bellevue Avenue.
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Public Outreach and Education
To engage the community further following the July 2024 City Council meeting, staff conducted a second round of extensive outreach to gather feedback and further inform residents about the proposed Project. These recent efforts built upon and expanded the outreach conducted in 2024, with more focus on understanding how that feedback varied among residents on specific side streets, namely on Villa Terrace and East Bellevue Avenue, the streets most directly impacted by the proposed changes.
Staff’s comprehensive outreach strategy included a variety of methods to reach a broad spectrum of residents and businesses:
Bilingual outreach materials: Approximately 5,000 mailed notices (an increase from 3,000 in 2024), e-news updates, and physical posters were distributed at project sites, ensuring accessibility to the City’s diverse language communities.
Coordination with local stakeholders: Staff partnered with neighborhood schools and property management companies to disseminate information and encourage participation from residents directly affected by the proposed improvements.
City social media platforms: Project updates were shared across Twitter (X), Instagram, Facebook, Nextdoor, and the City’s website to amplify outreach and increase awareness. Direct engagement: Staff conducted door-to-door outreach at over 250 homes to engage with residents personally, answer questions, and gather input on their concerns and preferences. Online community survey: The community survey was updated to include a location-based question, allowing staff to better identify and understand feedback from residents living directly along Villa Terrace and East Bellevue Avenue.
To allow more time for community feedback, staff extended the survey deadline to August 12, 2025. This agenda report presents the results of the survey as of August 5th, 2025, which was the original end date of the survey. An updated summary of the survey results will be presented to the City Council as part of the August 18th presentation.
As of August 5, 2025, the community survey received responses from 143 residents. The survey asked participants to provide input on three proposed options:
Option A: Closure at Villa Terrace and installation of a median at East Bellevue Avenue Option B: Full closures at both Villa Terrace and East Bellevue Avenue Option C: None of the above (No Train Quiet Zone established) Consistent with the results of the 2024 survey, the most recent feedback showed strong support for Option B, which proposes full closures at both locations. Specifically, 63 percent of respondents from Villa Terrace supported double closures, while 67 percent on E. Bellevue Avenue supported the double closure option as shown below in Table 2.
Table 2: Survey Summary for Support of Proposed Improvement Options Location of Survey
Participant Option A Option B None of the Above Total
E. Bellevue Avenue 4 17% 16 67% 4 17% 24
Villa Terrace 1 6% 10 63% 5 31% 16
Other 26 25% 47 46% 30 29% 103
Total 31 22% 73 51% 39 27% 143
Staff conducted a public outreach meeting on August 4, 2025, at the King Center to gather additional feedback from community members on the proposed implementation options. The meeting included Spanish interpretation services and offered a remote attendance option to ensure broader accessibility. A total of 27 community members attended in person, and 15 participated remotely.
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In contrast to the survey results, attendees at the meeting expressed strong opposition to both presented options and were vocal in their support for the implementation of quad-gates. There was more opposition to the closure at E. Bellevue Avenue than Villa Terrace, and there was more opposition to the medians than the closure at E. Bellevue Avenue. The majority of attendees raised concerns about potential traffic congestion on alternate routes, restricted vehicle movements, and the loss of parking associated with the proposed medians. Additional concerns included impacts to driveway access, visibility of the medians, and overall traffic circulation and management. They expressed interest in piloting a closure on E. Bellevue Avenue.
Budget Updates
In July 2024, construction cost estimates presented to Council totaled approximately $800,000, with $400,000 for the closure at Villa Terrace and $400,000 for the closure at E. Bellevue Avenue. At the time, these figures reflected the known construction cost estimates for the City’s scope of work at both railroad crossings. However, for closure-related improvements, the estimates did not include: (1) work required by Caltrain for activities within their right-of-way, and (2) Caltrain’s own upgrades to signals and warning devices. These additional costs were assumed to be minimal and expected to be either absorbed within the existing project budget or covered through a minor budget adjustment request in the upcoming fiscal year.
Caltrain’s most recent cost estimates for the closure alternatives are significantly higher than previously anticipated. At Villa Terrace, the estimate increased from $400,000 to approximately $1,730,000. This includes an additional $730,000 for Caltrain’s signal modifications and required safety improvements, as well as $600,000 for work the City must complete within Caltrain’s right-of-way (ROW). In addition to general demolition, the City’s scope within Caltrain’s ROW primarily consists of concrete and asphalt removal, along with the removal of non-essential signage and pavement markings.
While estimates for E. Bellevue Avenue are not yet finalized, they are expected to be similar to that of Villa Terrace, with a slight increase to account for additional coordination with Union Pacific Railroad. Staff can develop an estimate of improvements at E. Bellevue Avenue with Caltrain following receiving City Council direction on whether to proceed with a closure. These estimates are on the conservative side and staff has been working closely with Caltrain to refine and validate the costs. Given that the project is still in the early design phase, maintaining a more conservative contingency is prudent to help mitigate the risk of future budget impacts.
At present, the City’s existing budget of $1,250,000 is insufficient to fund all of the improvements required to qualify for a Quiet Zone. Table 3 indicates updated estimates for the Proposed Quiet Zone Implementation and includes full cost for implementation with staff, design and construction management cost for complete closures at both Villa Terrace and E.
Bellevue Avenue.
Table 3. Updated Estimates for Proposed Quiet Zone Implementation Task Estimated Cost
Staff Cost $ 75,000
Design Cost $ 250,000
Construction $ 3,580,000
Constr. Management $ 150,000
Total $ 4,055,000
Staff anticipates the need for an estimated General Fund budget increase of $2,805,000 (Closure at Villa Terrace and E.
Bellevue Avenue) based on the existing available budget of $1,250,000.
Funding and Coordination Efforts
Given the unexpected funding gap, staff have been working diligently to identify mitigation measures to support the implementation of the Train Quiet Zone within the previously anticipated timeframe of calendar year 2026. These efforts include seeking external funding sources and exploring alternative delivery strategies for the proposed improvements.
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The California Public Utilities Commission (CPUC), in coordination with the California Department of Transportation (Caltrans), has offered Section 130 funding for the proposed closure at Villa Terrace. Section 130 is a federally funded program aimed at reducing fatalities at railway crossings. This funding would cover all related construction costs for both the City and Caltrain. However, to receive the funds, both agencies must follow a federally mandated process through Caltrans, including specific phase authorizations and procurement procedures.
Caltrain has indicated that their implementation schedule could be upwards of 18-30 months after receiving Section 130 authorization. Because both the City and Caltrain must fulfill all program requirements before construction funds are released, this could delay the Train Quiet Zone Program implementation until as late as mid-2028. Staff is working with CPUC and Caltrain to evaluate opportunities to shorten this timeline and achieve implementation by late 2027.
In addition, staff are evaluating opportunities to phase the improvements to establish a Quiet Zone sooner. Namely, this would involve establishing a Quiet Zone concurrent with closure of the street, while remaining construction work within Caltrain right-of-way could occur post-implementation of the Quiet Zone (it is important to note that during this construction phase, horns would be sounded as trains approached and passed through the construction zone). On August 4, 2025, staff met with key stakeholders to assess the feasibility of a phased implementation and received general concurrence for the closure concept. Participating stakeholders included the Federal Railroad Administration (FRA), California Public Utilities Commission (CPUC), California Department of Transportation (Caltrans), Caltrain Joint Powers Board (JPB), and Union Pacific Railroad (UPRR). Given the consensus among stakeholders, staff believes there is a clear path forward for implementing the closure improvements and achieving Train Quiet Zone designation.
Section 130 funding can be utilized to cover construction-related costs at Villa Terrace; however, a funding source has yet to be secured for the full closure improvements within Caltrain’s right-of-way at East Bellevue Avenue. Staff will actively pursue additional Section 130 funding for a potential closure at E. Bellevue Avenue. However, funding projections for FY 2025-26 will not be available until November 2025. Staff remain in regular communication with CPUC and will update the City Council as additional information becomes available. In addition to pursuing Section 130 funding, as part of the San Mateo County Transportation Authority’s (SMCTA) ongoing Grade Separation Program, the SMCTA is reaching out to jurisdictions along the Caltrain corridor to gauge interest in closing existing at-grade crossings. Staff has initiated contact with SMCTA representatives to explore whether E. Bellevue Avenue might qualify for funding support under this program.
However, if external funding is not secured, a local funding match of approximately $1,000,000 may be required to achieve a Quiet Zone.
COUNCIL FEEDBACK:
Does Council support moving forward with closure of both Villa Terrace and E. Bellevue Avenue? Does Council support securing Section 130 funding for the Villa Terrace closure from CPUC and Caltrans and pursuing additional Section 130 funding for the East Bellevue Avenue closure? Does Council support utilizing local funding (General Fund or other appropriate sources) to support improvements if outside funding opportunities are not available?
BUDGET IMPACT:
There is no budget impact due to the presentation of this informational item. These planning efforts and budget for potential future implementation of FRA-approved safety measures at Villa Terrace and E. Bellevue Avenue are funded through the Train Quiet Zone Project (462205).
ENVIRONMENTAL DETERMINATION:
This Council action is statutorily exempt from the preparation of environmental impact documents, because it involves the planning for possible futures actions which have not been approved, adopted, or funded. (CEQA Guidelines Section 15262.)
NOTICE PROVIDED
All meeting noticing requirements were met.
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ATTACHMENTS
Att 1 – Public Comment
Att 2 – Traffic Exhibits
STAFF CONTACT
Jimmy Vo, Engineering Manager
[email protected]
(650) 522-7319