Agenda Item No: 8.b Meeting Date: December 19, 2016 Department: PUBLIC WORKS SAN RAFAEL CITY COUNCIL AGENDA REPORT Prepared by: Bill Guerin, Public Works Director City Manager Approval: File No.: 18.01.79 TOPIC: SUBJECT: ANDERSEN DRIVE/SMART AT-GRADE CROSSING A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL APPROVING THE PLANS AND SPECIFICATIONS FOR A NEW AT-GRADE CROSSING AT ANDERSEN DRIVE, AND AUTHORIZING THE CITY MANAGER TO SUBMIT AN APPLICATION TO THE CALIFORNIA PUBLIC UTILITIES COMMISSION FOR APPROVAL OF SUCH AT-GRADE CROSSING. RECOMMENDATION: Staff recommends that the City Council adopt the attached resolution approving the plan, specification, and estimate, and authorize the City Manager to submit an application to the California Public Utility Commission for a new At-Grade rail crossing at Andersen Drive. BACKGROUND: Sonoma Marin Area Rail Transit (SMART) In 2006, the voters of Marin and Sonoma County passed the Measure Q sales tax funding the development of the Sonoma Marin Area Rail Transit (SMART) commuter rail service along the former Northwestern Pacific Railroad Right-of-Way (NWP Mainline ROW, now SMART ROW). Based on available funding, the construction of SMART has been planned in phases. Phase 1 (referred to as the Initial Operating Segment ), which covers the rail service from Sonoma County Airport to Downtown San Rafael, is currently under construction and is expected to be completed and operating in the spring of 2017. SMART staff informed the City of its intent to proceed with Phase 2, which includes the extension of commuter rail service from downtown San Rafael to Larkspur Landing. There is one segment of the SMART ROW where Andersen Drive, a public City street, crosses at-grade with the rail line. As summarized below, the City of San Rafael is responsible for designing, funding and securing the needed permits/approvals for this rail crossing with Andersen Drive. If crossing improvements are not finalized before the initiation of train operations, Andersen Drive FOR CITY CLERK ONLY File No.: Council Meeting: Disposition:
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 2 would be closed at this location to accommodate the train. History of Andersen Drive In the mid-1990s, the City identified a need to improve the connection between downtown San Rafael and Bellam Blvd. which serves the Canal neighborhood, I-580, the Richmond-San Rafael Bridge and US-101. This effort culminated in the construction of Andersen Drive in 1997. In 1995, the City of San Rafael filed an application to the California Public Utilities Commission (CPUC) to allow Andersen Drive to cross the rail tracks. At that time, the Northwestern Pacific Railroad line was not active. On July 16, 1997 the CPUC filed Decision 97-07-055 which approved the crossing with five conditions. The second condition states as follows: 2. This authorization to blockade the tracks shall expire upon the scheduling of regular train service over the tracks which intersect Andersen Drive. Upon such expiration of authority, the City shall take all actions necessary to ensure the unimpeded use of the intersection by the rail service, absent further order of the Commission. SMART has identified funding for the Larkspur extension and completed their 30% design level plans for the Larkspur Extension which will include crossing Andersen Drive. Based on the proposed activation of the rail across Andersen, the City of San Rafael is legally obligated to ensure unimpeded use of the intersection by SMART. Andersen Drive Status Andersen Drive is a heavily traveled, two lane arterial, oriented in a general northbound/southbound direction. The roadway is skewed approximately eleven degrees in relation to the adjacent SMART rail line and ROW. Average Daily Traffic (ADT) volumes on Andersen Drive, which were collected in 2008, indicate over 15,000 vehicular trips north of Francisco Boulevard West, and over 24,000 trips south of Francisco Boulevard West. Andersen Drive is a major bicycle commute route featuring Class II bike lanes in both directions and a wide sidewalk on the west side of the road. The Class II bike lanes provide nonmotorized access between Downtown San Rafael and the Larkspur Ferry Terminal via the recently constructed bridge over Auburn Street and the Cal Park Hill Tunnel. Status of SMART Rail Service to Larkspur Landing (Phase 2) SMART plans to utilize a design-build approach to the construction of the Larkspur Extension and has completed the development of 30% conceptual level plans which will be used by the design/build contractor to construct the project. SMART anticipates awarding the Design/Build contract for construction of the Larkspur Extension in the 2017 and anticipates completing the construction by the end of 2018. SMART's proposed Larkspur Extension would bring thirty trains through Andersen Drive on a daily basis, with the majority of the trips made during San Rafael's peak commute hours between 7:00am to 9:00am and 4:00pm to 6:00pm. Consequently, SMART put the City on notice that Phase 2 will be proceeding and that approvals for a crossing at Andersen Drive would need to be pursued and secured. SMART/Andersen Drive Rail Crossing Alternatives In preparation for extending the SMART rail service to Larkspur Landing, San Rafael identified and studied seven alternatives to accommodate a rail service crossing at Andersen Drive. The analysis of these alternatives was presented in the City of San Rafael-Andersen Drive-Report
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 3 on Analysis of Alternatives to Accommodate Rail Service, Final Report, prepared by the City of San Rafael Department of Public Works (January 2015). This report is posted on the City s SMART webpage and can be accessed via the following link: http://docs.cityofsanrafael.org/citymgr/smart/appendix%20a%20alternatives%20analysis%2 0for%20Andersen%20Drive%20Crossing.pdf The seven crossing alternatives are: 1. Grade Separated Crossing (Alternative 1) 2. At-Grade Crossing with Chicane (Alternative 2) 3. Closure of Andersen Drive (Alternative 3) 4. One-Way Southbound Bypass via Woodland Avenue (Alternative 4) 5. Two-Way Bypass via Woodland Avenue (Alternative 5) 6. At-Grade Crossing with Additional Storage Capacity (Alternative 6) 7. Two-Way Bypass via Woodland Avenue with Andersen Connecter (Alternative 7) In 2015, a seventh alternative (Alternative 7) was prepared in response to a specific public request. Alternative 7 involves re-routing Andersen Drive, just northward of the SMART rail crossing. This alternative includes connecting Andersen Drive to Woodland Avenue and having an at-grade crossing more perpendicular to the rail. Project Description Alternative 6 At-Grade Crossing Each crossing alternative was evaluated according to five criteria: traffic impacts; cost; feasibility; safety; and timing (schedule for readiness). The analysis concluded that the City should pursue Alternative 6, At- Grade Crossing with Additional Storage Capacity. The assessment found that Alternative 6 would provide a safe, relatively low cost crossing while also providing minimal impact to the surrounding roadway network. Initial estimates indicate that this alternative also fits within the City s existing budget, is feasible, and can be constructed within the existing timeline for rail service operations. Alternative 6 involves the construction of an at-grade crossing of Andersen Drive and SMART's tracks in a configuration that retains the existing 11 degree roadway and track geometry, as depicted in the figure above. SMART has communicated with the City that their commuter rail service will be restricted to 15 MPH through the Andersen Drive crossing, which is enforced by the railroad's Positive Train Control system. On May 18, 2015, the City Council adopted Resolution number 13930 authorizing the City Manager to enter into an agreement with AECOM to prepare environmental documentation for the Andersen Drive at Grade crossing. On September 21, 2015 the City Council adopted a resolution authorizing the City Manager to execute an agreement with Kimley-Horn and Associates, Inc. for the Andersen Drive Rail
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 4 Crossing Improvements project. Since that time, our consultant has been working diligently on the design and coordinating this effort with SMART. On February 1, 2016, the City Council of the City of San Rafael adopted Resolution Nos. 14065 and 14066 for the Andersen Drive/SMART At-Grade Crossing Initial Study/Mitigated Negative Declaration and approved the project s Mitigation Monitoring and Reporting Program. On May 16, 2016, the City Council adopted a resolution authorizing the City Manager to execute a consultant agreement to assist with the development of the design as well as to initiate preliminary review proceedings with CPUC regarding this project. CPUC staff, who reviewed the preliminary plan and later reviewed the 100% plan set, did not have an objection to moving the design to the next step which is to make an official submittal to the CPUC. The plan for the At-Grade crossing includes active grade crossing warning devices, which are quiet zone ready. The project also includes a separated pedestrian and bicycle path, which channels pedestrians and cyclists to cross perpendicular to the rail. Grade crossing warning devices connected to the rail system as well as the south bound 101 on ramps at Francisco Blvd. are included to manage vehicular traffic. In addition, advance preemption in the form of a pre-signal, will stop traffic from entering the crossing area and prevent further queuing in the crossing. For the majority of the time, there will be no impacts to vehicles, bicycles or pedestrians. The development of the 100% design level plans, specifications, and estimates has been completed. In addition, CPUC staff has performed an initial review of these documents. The next step in the process includes submitting an application to the California Public Utilities Commission (CPUC) for final approval of this At-Grade Crossing. Kimley-Horn and Associates has also performed an additional review of the crossing and examined whether the installation of a grade separated structure is possible. Staff anticipates submitting this study with our application to the CPUC. ANALYSIS: Relationship to the San Rafael General Plan 2020 The SMART rail line service is addressed in several elements of San Rafael General Plan 2020. When that document was adopted by the City in 2004, SMART had been formed, prior to the passage of Measure Q. As proposed, the project would be consistent with key General Plan policies and programs specific to SMART and Andersen Drive. A hard copy of the completed Initial Study/Mitigated Negative Declaration has been posted on the City s website and SMART webpage, which can be accessed for review via the following link: http://www.cityofsanrafael.org/pubworks-proj-smart/. The CPUC process to approve this crossing will take a minimum of 6 months and could last more than a year. The City s consultant has worked diligently with CPUC staff to review and explain the project. Pending this evening s approval, our consultant team will continue to pursue CPUC approval of this crossing. PUBLIC OUTREACH AND NOTICING: As noted above, the CEQA Notice of Intent to adopt a Mitigated Negative Declaration was properly noticed and adopted on February 1, 2016.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 5 Since that time, the Department of Public Works staff and our consultants have been working closely with SMART staff to develop construction level plans for the project. In addition, the Department of Public Works staff has presented this plan to the City of San Rafael Bicycle Pedestrian Advisory Committee (BPAC) and has recently made a presentation to the City of San Rafael Planning Commission regarding the Larkspur Extension. Additional outreach will be pursued as the project moves closer to construction. The construction of this rail crossing will require closing Andersen Drive for a period of several months. Closure notifications will be forwarded to the community, transit agencies, CalTrans and the general public. FISCAL IMPACT: The following summarizes current project #11276 funding: Funding Source Funding Source Amount Successor Agency Bonds (2002 Bonds) $1,459,395 Successor Agency Bonds (2009 Bonds) $594,608 Successor Agency Bonds (1999 Bonds) $30,746 Additional Allocation Traffic Mitigation Funds (Fund #246) $3,107,228 Total Funding $4,891,977 Public Works and the consultant team associated with this project are developing a 100% construction ready plan, specification and estimate for the project. While actual construction costs may vary depending upon a variety of factors, we estimate the cost of construction of the At-Grade rail crossing to be $4,000,000. This estimate includes a 15% contingency for construction. Expenses Category-Eden Expense Code Amount Note(s) Environmental Document $109,289 AECOM - Actual Design-01 $507,688 Kimley-Horn Associates - Actual Design-01 $75,000 Nader Mansourian - Actual Construction $4,000,000 Estimated (*) Construction Management $500,000 Estimated (*) Total Expenditure $5,191,977 Estimated (*) The numbers stated are estimates and no appropriation is requested at this time. Funding appropriation will be requested when the construction contract is awarded or when a Memo of Understanding with SMART to construct this crossing is executed. We anticipate utilizing SMART s contractor to construct the improvements. This will allow for more coordinated construction operations since SMART needs to install similar equipment and perform similar track work and crossing improvements at other locations throughout the Larkspur extension. An additional agreement will need to be developed with SMART for this purpose.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 6 OPTIONS: The City Council has the following options: 1. Adopt the resolution as proposed; 2. Modify the current resolution per the council recommendations; 3. Reject the At-Grade Crossing with Additional Storage Capacity (Alternative 6) and instruct staff to pursue the closure of Andersen Drive rail crossing in compliance with CPUC Decision 97-07-055. This option is not recommended. RECOMMENDED ACTION: Adopt the attached resolution approving the plans and specification and authorizing the City Manager to submit an application to the California Public Utilities Commission for a new At- Grade Rail Crossing at Andersen Drive. ATTACHMENTS: Resolution
RESOLUTION NO. A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN RAFAEL APPROVING THE PLANS AND SPECIFICATIONS FOR A NEW AT-GRADE CROSSING AT ANDERSEN DRIVE, AND AUTHORIZING THE CITY MANAGER TO SUBMIT AN APPLICATION TO THE CALIFORNIA PUBLIC UTILITIES COMMISSION FOR APPROVAL OF SUCH AT-GRADE CROSSING. WHEREAS, on July 16, 1997, the California Public Utilities Commission filed Decision 97-07-055 which allowed the construction of Andersen Drive across the North West Pacific Rail Tracks with five conditions; and WHEREAS, on May 18, 2015 the City Council of the City of San Rafael adopted Resolution No. 13930 approving and authorizing the City Manager to enter an agreement with AECOMM to prepare the environmental documentation for the Andersen drive At-Grade Crossing; and WHEREAS, on September 21, 2015 the City Council of the City of San Rafael adopted Resolution No. 14015 approving and authorizing the City Manager to execute an agreement with Kimley-Horn and Associates, Inc. for the design of the Andersen Drive At-Grade Crossing; and WHEREAS, on February 1, 2016 the City Council of the City of San Rafael adopted Resolution Nos. 14065 and 14066 for that Andersen drive/smart AT-Grade Crossing Initial Study/Mitigated Negative Declaration and approved that project s mitigation monitoring and reporting program; and WHEREAS, on December 9, 2016 the Plans, Specifications and Estimate for the following project ANDERSEN DRIVE REHABILITATION PROJECT NO. 11256
for an At-Grade Crossing at Andersen Drive, Alternative No. 6, were reviewed and approved by the City Engineer; and WHEREAS, the next step in the process is to submit an application to the California Public Utilities Commission for its approval of the aforementioned At-Grade Crossing; NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL RESOLVES as follows: 1. The Plans, Specifications, and Estimate are approved for the Andersen Drive At-Grade Crossing, Alternative No. 6, on file with the City Clerk; and 2. The City Manager is authorized to submit an application to the CPUC for the Andersen Drive At-Grade Crossing, for Alternative No. 6; and 3. The City Manager is hereby authorized to take any and all such actions and make changes as may be necessary to accomplish the purpose of this Resolution. I, ESTHER BEIRNE, City Clerk of the City of San Rafael, hereby certify that the foregoing resolution was duly and regularly introduced and adopted at a regular meeting of the Council of said City held on the 19 th day of December, 2016, by the following vote, to wit: AYES: NOES: COUNCIL MEMBERS: COUNCIL MEMBERS: ABSENT: COUNCIL MEMBERS: ESTHER BEIRNE, City Clerk