HomeMy WebLinkAboutAgenda Report - April 2, 1997 (58)u <�a
CITY OF LODI COUNCIL • •
�:lFOR
AGENDA TITLE: Lodi/Southern Pacific Railroad Underpass
MEETING DATE: April 2, 1997
PREPARED BY: Public Works Director
RECOMMENDED ACTION: That the City Council direct staff on how to respond to the San Joaquin
County Council of Government's (COG'S) policy regarding the Measure K
Railroad Crossing Safety Program.
BACKGROUND INFORMATION: One year ago, COG adopted a policy (Exhibit A) that calls for project
sponsors of six Measure K funded rail crossing safety projects to
take one of two positions: confirm the projects by adopting a
financing plan or propose alternative projects. Failure to take action
would likely result in projects being dropped from the Measure K program. While the policy called for a
December 1, 1997 response deadline, it has been extended to spring 1997 to give project sponsors
additional time to respond. The City of Lodi is a project sponsor for an underpass at Lodi Avenue and
the Southern Pacific Railroad (SPRR) tracks.
Measure K Background
The Measure K program was approved by the voters in November 1990. It funded a variety of
transportation projects from a new half cent sales tax. One of the program categories was $30 million
for railroad crossing safety improvements. These improvements consisted of grade separations which
would eliminate the at -grade conflict between vehicles and trains by building an overpass or underpass.
Although not actually part of the Measure, a list of candidate projects was approved by COG. The list
included fourteen locations, one of which was the SPRR/Lodi Avenue crossing, the only location north
of the Stockton area.
However, the funding "pot" for these projects was insufficient to cover all these projects and COG
developed a funding plan and ranking scheme to provide nearly $4 million to each of the top eight
ranked projects. The ranking scheme included vehicle and train volumes and speeds and delay
factors. The Lodi project ranked in the top eight projects. Two of the projects (on Hammer Lane in
Stockton) are now under construction. The status of the remaining six projects and the other unfunded
projects is shown in Exhibit B. (Note that one location was added after the list was originally ranked.)
Lodi staff worked with Biggs Cardosa Associates, Inc., who were already working on another Measure K
project that involved a rail crossing, to prepare background information on the project. The graphics,
preliminary cost estimate and construction plans presented later in this report are the result of that work.
Environmental review, public hearings and many project details and approvals will need to be
accomplished if the project is to go forward.
APPROVED:
H. Dixon Flynn -- City Man ger
CSPUNDRP.DOC l 03/26/97 so
Lodi/Southern Pacific Railroad Underpass
April 2, 1997
Page 2
Given the long lead time to develop a grade separation project, the COG and other project sponsors
need to take positive steps to proceed on whichever projects are to be completed.
Lodi Avenue/SPRR Issues
Positive factors in pursuing the Lodi Avenue/SPRR underpass include the following:
Public safety - While train/vehicle accidents have been rare in Lodi, they have occurred and
Lodi Avenue was the site of a fatal accident in the 1970's.
Emergency vehicle access - The closest alternate crossings with grade separations are
Turner Road and Kettleman Lane, each one mile away from Lodi Avenue. The adjacent at -
grade crossings are close enough that they are usually blocked by rail traffic at the same time
as the Lodi Avenue crossing. A grade separation will improve emergency vehicle access in
each direction.
Public convenience - The same alternate crossing choices for emergency vehicles also apply to
the general public. Vehicle delays will increase as train frequency increases due to new
passenger service and the SP/UP merger.
Negative factors in pursuing the Lodi Avenue/SPRR underpass include the following:
Street closures and impact to adjacent businesses - As shown in the map in Exhibit C and the
accompanying two pages of text, School and Stockton streets would remain open and
unaffected. Five to seven businesses would have to be acquired. Some excess property could
be resold for reuse after the project. Sacramento and Main streets and the north -south alley
west of Sacramento Street would be closed to Lodi Avenue. These closures may have some
adverse affect on other businesses in the area.
Construction disruption - Lodi Avenue at the SP tracks would have to be closed for six months
during construction. A possible construction and detour sequence (via Walnut Street) is shown
in Exhibit D (two pages). As mentioned, other alternatives, probably more costly, could be
designed to minimize Lodi Avenue construction closure.
Other issues include:
Pedestrian access - While vehicle access to Lodi Avenue at Sacramento and Main streets would
be closed, pedestrian access across the tracks could be maintained. This would be done by
building a two-level underpass in which the sidewalk is elevated well above the roadway. It
would connect to Sacramento and Main streets. With the exception of the ability to cross
Lodi Avenue at these locations, pedestrian access along Lodi Avenue would be the same as
now and much safer at the tracks.
Cost - The total project cost is in the $8 to $9 million range. This estimate is lower than the
earlier Measure K estimate of $11.3 million. Major variables include the business and right-of-
way costs, the value of "resold" land and the need to relocate the CCT tracks. The $4 million
Measure K allocation is obviously insufficient. Up to $5 million might be available from the State
grade separation program; however, more preparatory engineering and environmental work
would need to be done to prepare an application. This program is very competitive and funding
may not be available for many years.
Impact on the Central City Revitalization - Potential adverse impact to businesses on the
southeast quadrant of the Downtown include loss of Lodi Avenue frontage and
Sacramento Street access. These are somewhat balanced by the improvement to Lodi Avenue,
improved access to the east side and the architectural design of the underpass structure.
CSPUNDRP.DOC 3/26197
Lodi/Southern Pacific Railroad Underpass
April 2, 1997
Page 3
Alternatives
As provided in the COG policy, alternate projects are possible, including:
A grade separation at another location - Likely alternate locations are Lockeford Street and
Harney Lane. (A new crossing, such as Century Boulevard, would not be eligible for State or
Measure K funds.) Lockeford Street would have nearly all the same issues as Lodi Avenue and
similar costs. It would do less well in competition for funding but is reasonably close enough to
Lodi Avenue to provide most of the benefits. Harney Lane would be less expensive; the total
cost would be in the $5 to $6 million range. Given its location in the growth area of the City,
Street Development Impact Mitigation Fee funding might be a possibility.
At -grade improvements - This could include widening to allow vehicles that must stop at the
tracks to pull over and not block traffic, a median to prevent vehicles from cutting around the
crossing gates, improved crossing surface and improved gates. Obviously this would be much
less expensive and an argument might be made that such improvements could be done at a
number of Downtown crossings to be "equivalent" to the grade separation project.
Any alternatives will need to be approved by the COG Board after review by COG's Citizen,
Management/Finance and Technical advisory committees.
Public Meeting
A public meeting is scheduled for Thursday, March 27, at 7 p.m. in the Library's Community Room
to present the above information and obtain public comments. The results of that meeting will be
presented at the Council meeting.
FUNDING: None needed at this time.
i
i
Ja k L. Ronsko
Pu is Works Director
Prepared by Richard C. Prima, Jr., City Engineer
JLR/RCP/Im
Attachments
cc: Lodi Downtown Business Association
Chamber of Commerce
East Side Improvement Committee
CSPUNDRP.DOC 3/26/97
EXHIBIT A
MEASURE K RAILROAD CROSSING SAFETY PROGRAM
REALLOCATION POLICIES
The following policies apply to:
March Lane\UPRR (Stockton) Lathrop Road\SPRR (Lathrop)
March Lane\SPRR (Stockton) Center St.\SPRR (Manteca)
Lodi Ave.\SPRR (Lodi) Lathrop Road\UPRR (Lathrop)
The Hammer Lane\UPRR and Hammer Lane\SPRR projects are fully funded
and will begin construction this year.
I. Sponsors shall submit Project Support Documentation or a
Project Alternative by December 1, 1996.
A. Project Support Documentation shall consist of:
1. Financing Action Plan. A plan explaining how the sponsor
intends to finance the local match displayed in the 1996
Strategic Plan and the actions needed to eliminate
funding shortfalls.
2. A city council resolution reiterating local support for
the existing project and approval of the strategies in
the Financing Action Plan.
B. Project Alternative. A sponsor may provide an alternative
to their project for COG Board consideration, including:
1. A proposal to reallocate project funds to another grade
separation project within the same jurisdiction with
Project Support Documentation; or
2. A proposal to "exchange" Railroad Crossing Safety funds
with another jurisdiction for funds from another category
(for example, congestion relief); or
3. A Financing Action Plan and City Council Resolution for
a downscoped project funded with the same Measure K
contribution on a percent basis. (For example, Measure
K will fund 350 of Lodi's grade crossing project; Lodi
could downscope their project to an at -grade safety
project, with a 35% Measure K contribution).
II. Reallocation Fund. A "Reallocation Fund" will be created,
including money from:
A. Funds from unsupported projects.
B. Funds that will not be used for downscoped projects.
C. Funds remaining after the completion of a project.
D. Funds left over from trades.
E. Funds not needed do to receipt of grants, etc.
III. Reallocation Fund Priorities. Will be determined after
project sponsors have responded to the new policy requirements.
changes in project priorities will take into consideration the
merger of the Southern Pacific Railroad and Union Pacific Railroad
and other relevant issues.
0
EXHIBIT B
March 1997
Tech., Cit.
STAFF REPORT
SUBJECT: Measure K Railroad Crossing Safety Project
Update
RECOMMENDATION: For Discussion/Action
DISCUSSION:
COG staff would like to discuss how we can help deliver projects in
the Measure K Railroad Crossing Safety Program that have fallen
behind their delivery schedules due to have funding shortfalls or
lost community support and what should be done with the allocation
to projects that are undeliverable.
Background. The Measure K Strategic Plan provides an allocation to
eight Railroad Crossing Safety Projects (overpasses or
underpasses). None of the projects have been delivered to date,
but two projects, the Hammer Lane UPRR and SPRR undercrossings in
Stockton, will be constructed this summer. There are 7 unfunded
"shelf" projects in the Strategic Plan (they are listed on the
attached page).
Policies. To help sort out deliverable from undeliverable
projects, the COG Board adopted policies in March 1996 requiring
the sponsors of the six remaining funded projects to prepare as
financing action plan and demonstrate community support for their
project or propose an alternative project. The projects were
called out because they hadn't made sufficient progress towards
meeting their Strategic Plan delivery schedules. Many of the
projects appeared stalled due to concerns over large funding
shortfalls or'an erosion of community support. The due date for
compliance was set by the Board at December 1, 1996.
Del iverable\Undeliverable Projects. The projects listed below have
met the Board requirements:
Lathrop Lathrop Road\Southern Pacific Railroad
(Construct. 5 lane overpass, $6.7 million)
Lathrop Lathrop Road\Union Pacific Railroad
(Construct 4 lane overpass, $7.1 million)
Stockton March Lane\Union Pacific Railroad
(Six lane underpass, expandable to eight, $11.4 million)
Stockton March Lane\Southern Pacific Railroad
(Six or eight lane underpass, $11.4 million)
Two project sponsors have not yet met the policy requirements.
Lodi Lodi Avenue\Southern Pacific Railroad Crossing (Construct 4 lane underpass, $11.4
million)
The,City of Lodi wiJl,be,:conducting-a public meeting at the end of
March to determine .comWAPity., support.:,..; Based on the outcome of the
meeting, the item will be brought before the Lodi City Council for
discussion or action 'Their ,6taff',,has requested an extra month to
comply with the`polibi d '
Maifteea' Ce' fiW Strew'S6 theth'Pid& .Rairoad, .
(construct 4 kine oveipasi,'$5.6 million)
Staff' at' 'the City of-' Manteca has indicated they-'cafifiot"'deliver 'the
project due to a funding.short fall,listed in the. St=rategic,Plan,,at;
$1.7 million. Last_,year, the project was removed from the'City''s
Capital Improvement Program. The project has a $3.974 million
Measure--K-:allocation.
How Should We Proceed? What can we do to help: -:improve the delivery
of <.: these projects -and how -should we. proceed -:.with- regards- .:to -.:the.
allocation . for an'.'` undeliverable project d) •?`` Should we, for
instance:
o Seek out for funding?
o - -. - Increase the funding allocation -to funded projects?:. •
o-' Reallocate funds to'' an unfunded project(s)? ..
0"I . -I Do
. something else?
COG Staff would like to hear your thoughts- on'`this subject.
FISCAL; IMPACT None at this time. May eventilally result iri COG
Board "reallocation ,of Mea$ut6 Z ,Rai'iroad Crossing' ,_Safetjr funds
.... -1 i_..... ..a,
Prepared by: Steve .venAenburcih (me,,JmeaW\rixzng•\policies.sta)
UNFUNDED "SHELF" PROJECTS
MEASURE K RAILROAD CROSSING SAFETY PROGRAM
Strategic
Plan
Primo
#9
#10
#11
#12
#13
#14
Unranked
Tracy Blvd.\SPRR ($19 mil.) Tracy
Lower Sac.\UPRR ($15.9 mil) County
Jack Tone Rd.\SPRR ($21.2)* Ripon
*(Combined wllnterchange Project)
Airport Way\SPRR ($5.3 million) Manteca
French Camp Rd. \UPRR ($6.4 mil.) County
Eleventh St. \SPRR ($12.7 mil)
West Lane\SPRR ($8.5 mil)
Tracy
County
IN
EXHIBIT D
Lodi Avenue UP
Value Engineering
CONSTRUCTION STAGING
Biggs Cardosa Associates recommends that Lodi Avenue be closed during construction to keep
down the project cost. Traffic can be detoured from Lodi Avenue to Walnut Avenue by way of
Stockton Street and either School or Church Street. The at -grade crossing of the SPTCo. at
Walnut Avenue, which has been closed, can be reopened during construction.
The construction would probably proceed along the following steps:
The required right-of-way will be purchased.
2. A temporary at -grade crossing of SPTCo. will be constructed at Walnut Avenue.
3. Lodi Avenue traffic will be detoured to Walnut Avenue.
4. Lodi Avenue will be closed between School Street and Stockton Street, with the
exception of local access to the Pizza Hut restaurant, the businesses at the southeast
corner of School Street and Lodi Avenue (#22, #24 and 426 Lodi Avenue), the Long John
Silver restaurant (the vehicular entrance will need to be modified sometime during
construction), and the Robinson's Feed company (access through the Goodyear store
parcel and/or Main Street).
The SPTCo. secondary line will be closed. The SPTCo. main line will be rerouted.
6. Assuming that the two CCTC spur line will need to remain operational after the
construction, they will be rerouted to their final configuration. A short-term closure of
these tracks may be required.
7. The Underpass structure will be constructed, essentially at grade.
8. The SPTCo. main line will be routed back to its original location, on the structure. The
SPTCo. secondary line will be reconstructed on the structure.
9. The rail detour (shoofly) will be removed.
10. The roadway on Lodi Avenue will be excavated to its final configuration. The retaining
walls will be constructed.
11. Lodi Avenue will be reconstructed. A pump station will be constructed to drain the
depressed roadway section.
Lodi Avenue UP
Value Engineering
12. Lodi Avenue traffic will be moved back to Lodi Avenue. The at -grade crossing at
Walnut Avenue will be closed again. The possibility of keeping an at -grade pedestrian
crossing of the railroad tracks at Walnut Avenue should be investigated.
13. The roadway work will be finalized, including the construction of the four cul-de-sacs.
14. The excess properties will be repackaged and sold.
In the above scenario, Lodi Avenue will probably have to be closed for about 6 months between
School and Stockton Streets. However, we feel that the proposed detour by way of Walnut
Avenue would provide an acceptable route during construction and not significantly impact Lodi
Avenue thru traffic. Other construction staging sequences may be feasible, and a full PSR would
be able to identify various construction sequences and their impacts, for example:
Lodi Avenue could be detoured around the construction area to a temporary roadway
built on the newly acquired parcels.
The abutments and the center bent could be constructed at existing grade, without the
need to reroute Lodi Avenue. Then, Lodi Avenue could be closed for two to three
months during which precast or steel girders could be quickly erected on the abutments
and bent to complete the structure. The roadway section could then be excavated.
Finally, traffic would be allowed back on Lodi Avenue.
Lodi Avenue UP
Value Engineering
RIGHT-OF-WAY REQUIREMENTS
Figure 6 on the next page shows the current parcels and their usage for the area that will be
affected by construction. Appendix B contains photographs of the area. The location from
which the pictures were taken is also shown on Figure 6.
Figure 7 shows the proposed right-of-way acquisition requirements. A description on a parcel -
by -parcel basis is detailed below:
The businesses at the southeast corner of School Street and Lodi Avenue (Rydel Vacuum,
Book Garden and The Comic Grapevine), will not be significantly affected.
The Pizza Hut restaurant at the northeast corner of School Street and Lodi Avenue will
not be significantly affected.
The Long John Silver restaurant will be somewhat affected, but it is not anticipated that
the business will have to be acquired. The vehicular entrance to the restaurant will have
to be reconstructed to match the proposed grade for Lodi Avenue and to provide for
drive-thru exit. The current drive-thru exit will have to be closed. The traffic patterns
within the parking lot will have to be reworked.
The tune-up shop next to Pizza Hut, on the north side of Lodi Avenue, will have to be
acquired. The parcel could then be repackaged to have vehicular access only from the
Sacramento Street cul-de-sac and resold. Pedestrian access from Lodi Avenue will be
preserved.
Danigers Furniture, which is located at #4 and #8 Lodi Avenue, will have to be acquired.
The parcels could then be repackaged and resold as a single parcel with vehicular access
from Sacramento Street only. Pedestrian access from Lodi Avenue will be preserved.
The used car lot on the north side of Lodi Avenue, between Sacramento Street and the
SPTCo. right-of-way will have to be acquired, repackaged to have vehicular access from
Sacramento Street only, and resold. Pedestrian access from Lodi Avenue will be
preserved. A portion of the parcel will be lost to the cul-de-sac and to the 2:1 slope from
the depressed Lodi Avenue sidewalk.
The structure at #2 Lodi Avenue will have to be condemned. This lot already belongs to the
City of Lodi. It may be repackaged and sold as a parcel with vehicular access from
Sacramento Street. Pedestrian access from Lodi Avenue will be preserved. A portion of the
parcel will be lost to the cul-de-sac and to the 2:1 slope from the depressed Lodi Avenue
sidewalk.
�ti
Lodi Avenue UP
Value Engineering
The carpet store on the north side of Lodi Avenue, between Main Street and the SPTCo.
right-of-way, will have to be acquired. The parcel could then be repackaged to have
vehicular access from Main Street only and resold. Pedestrian access from Lodi Avenue
will be preserved. A portion of the parcel will be lost to the cul-de-sac and to the 2:1 slope
from the depressed Lodi Avenue sidewalk.
The car wash on the south side of Lodi Avenue will be affected, but it was assumed that the
business will not have to be acquired. The vehicular entrance will have to be moved to Main
Street. A portion of the parcel next to Lodi Avenue will have to be acquired to
accommodate the 2:1 slope to the sidewalk. If the CCTC line is to remain operational, it
will have to be moved, requiring a more extensive easement.
• The empty lot on the south side, at # 102 Lodi Avenue, will have to be purchased,
repackaged and resold as a parcel with vehicular access from Main Street, and with
pedestrian access from Lodi Avenue. An easement will be required for the proposed
location of the CCTC spur line.
• The tavern on the south side of Lodi Avenue (#104) will have to be purchased. The parcel
could then be repackaged to be part of the parcel at #102 Lodi Avenue and resold.
• If the CCTC line is to remain operational, the front 30 feet of the parking lot and the used
car lot at the southwest corner of Lodi Avenue and Stockton Street (#112 and #122 Lodi
Avenue) will have to be acquired to provide for the new location of the CCTC spur lines.
• We propose to purchase the Goodyear store at the northwest corner of Lodi Avenue and
Stockton Street (#125 Lodi Avenue), subdivide it into two parcels and sell the parcel furthest
from the corner. See below for the other parcel.
• The largest business to be affected by this construction is the Robinson's Feed company, at
#101 Lodi Avenue. Instead of acquiring it, it may be more cost effective to purchase the
Goodyear store (see above), and give half the parcel to the Robinson's Feed company as
indemnification for the loss of vehicular access from Lodi Avenue to their present parcel.
The Robinson's Feed company could then use this parcel to gain access to both Stockton
Street and Lodi Avenue.
The truck scale on Main Street, next to the Robinson's Feed company, will have to be
relocated.
�P:
CITY COUNCIL H. DIXON FLYNN
CITY OF L O D I
PHILLIP A. PENNING, Mayor City Manager
JACK A. SIECLOCK JENNIFER M. PERRIN
Mayor Pro Tempore City Clerk
KEITH LAND CITY HALL, 221 WEST PINE STREET
P.O. BOX 3006 RANDALL A. HAYS
STEPHEN J. MANN City Attorney
DAVID P. WARNER LODI, CALIFORNIA 95241-1910
(209) 333-6706
FAX (209) 333-6710
March 27, 1997
Mr. Mike Lapenta, President Mr. Les Dabritz, Executive Director
Lodi Downtown Business Association Chamber of Commerce
12 North School Street P. O. Box 386
Lodi, CA 95240 Lodi, CA 95241
Mr. Harry Marzolf, Chairperson
Eastside Improvement Committee
P. O. Box 2444
Lodi, CA 95241
SUBJECT: Lodi/Southern Pacific Railroad Underpass
Enclosed is a copy of background information on an item on the City Council
agenda of Wednesday, April 2, 1997, at 7 p.m. The meeting will be held in the
City Council Chamber, Carnegie Forum, 305 West Pine Street.
This item is on the regular calendar for Council discussion. You are welcome to attend.
If you wish to write to the City Council, please address your letter to City Council,
City of Lodi, P. O. Box 3006, Lodi, California, 95241-1910. Be sure to allow time for
the mail. Or, you may hand -deliver the letter to the City Clerk at 221 West Pine Street.
If you wish to address the Council at the Council meeting, be sure to fill out a speaker's
card (available at the Carnegie Forum immediately prior to the start of the meeting) and
give it to the City Clerk. If you have any questions about communicating with the
Council, please contact Jennifer Perrin, City Clerk, at (209) 333-6702.
If you have any questions about the item itself, please call Richard Prima at
(209) 333-6706.
64a% �j,4 Jack L. Ronsko
Public Works Director
AR/Im
Enclosure
cc: City Clerk
NCSPUNDR.DOC