|
|
Council Agenda - City of BurbankTuesday, February 21, 2006Agenda Item - 12 |
|
|
Council Agenda - City of BurbankTuesday, February 21, 2006Agenda Item - 12 |
|
|
|||||||||||||
|
|
|||||||||||||
|
PURPOSE
City Council requested information on potential options for the funding of Quiet Zones in Burbank, including the use of Redevelopment Agency funds. This report outlines the probable costs and possible funding sources for a Quiet Zone in Burbank. The costs include development, design, construction, and operation of the Quiet Zone. BACKGROUND
Effective June 24, 2005, the Federal Railroad Administration (FRA) modified Title 49 of the Code of Federal Regulations, Parts 222 to 229 which established Final Rules for the use of locomotive horns at railroad grade crossings. These rules require that a locomotive horn be sounded while a train is approaching and entering a public highway-rail crossing, but the rules also allow exceptions to the requirement to sound a horn where there is not a significant risk of loss of life or personal injury. Rail rapid transit systems are exempt from the horn volume requirements in Part 229. Communities that qualify for an exception may create a �Quiet Zone� within which locomotive horns would not be routinely sounded.
Standard horn sounding requirements include a sequence of two longs, one short and one long horn blast, starting at least 15 seconds, but no more than 20 seconds prior to the highway crossing and no more than � mile in advance of the crossing. Trains within Burbank routinely have travel speeds between 40 MPH and 80 MPH; thus, the �-mile maximum distance translates to between 25 seconds and 12 seconds. The horn sound level must be at least 96 dB (A) but no louder than 110 dB (A) when measured 100 feet in advance of the train at a height of 15 feet above the rail.
Requirements for a Quiet Zone � A Quiet Zone is a section of rail track where a locomotive horn is not routinely sounded. Quiet Zones can be established where the Quiet Zone Risk Index (a measure of the likelihood of a vehicle � train collision) is less than the national average for a collision, called the National Significant Risk Threshold (NSRT). The FRA established criteria for the Quiet Zone Risk Index (QZRI) and the NSRT, and a methodology for calculating safety measures required for establishment of a Quiet Zone. Additionally, Quiet Zones must be reevaluated at least every five years to insure the QZRI remains below the NSRT. A flowchart showing the steps for the creation of a Quiet Zone are illustrated in Attachment 1.
A Quiet Zone must be at least � mile in length, but generally all crossings in a two to three mile track section should be evaluated. All public crossings in the Quiet Zone must at a minimum be equipped with flashing lights, railroad protection gates, and signs warning of the absence of locomotive horns. In addition to these minimum requirements, other safety devices, called Supplementary Safety Measures (SSMs) or Alternative Safety Measures (ASMs) are generally needed to supply an adequate safety buffer.
SSMs are engineering improvements to prevent vehicles from crossing the tracks when a train approaches, and they include one or more of the following:
ASMs may be used in conjunction with some SSMs to improve observance of the deployed gates. These engineering and non-engineering measures include:
Burbank Quiet Zones - Two rail lines traverse Burbank that are used by the Southern California Regional Rail Authority (Metrolink) and Union Pacific. The Valley Subdivision extends from the Taylor Yard near downtown Los Angeles to Lancaster, and this track parallels San Fernando Boulevard in Burbank. The Ventura Subdivision branches from the Valley Subdivision at Burbank Junction. It extends along the coast to Northern California, and it parallels Vanowen Street in Burbank. The Valley Subdivision carries about 30 trains per day and the Ventura Subdivision carries about 50 trains per day in Burbank.
Three at-grade highway rail crossings exist in Burbank, one crossing on the Valley Subdivision at Buena Vista Street near San Fernando Boulevard and two crossings are located on the Ventura Subdivision at Buena Vista Street near Vanowen Street and at Empire Avenue near Vanowen Street. Outside of Burbank, the nearest at-grade crossings are located at Sonora Street and Grandview Avenue in Glendale, and Vineland Avenue, Arvilla Street, and Sunland Boulevard in Los Angeles. These crossings are shown in Attachment 2.
Burbank trackage has four pedestrian � rail crossings in addition to the highway � rail crossings identified above. The Bob Hope Metrolink Station has two pedestrian crossings and the Downtown Station has two crossings. The FRA Final Rule mentions pedestrian crossings, but is silent on requirements for their protection. Section 222.27 of the Final Rule states that public authorities are required to address pedestrian safety when establishing new Quiet Zones, but that a diagnostic team review is required to establish the appropriate crossing protection. Staff expects that some protection devices will be necessary at the four pedestrian crossings.
The general requirements for a Quiet Zone and the specific application of Quiet Zones in Burbank are discussed in our November 17, 2005 memorandum on Quiet Zones and Wayside Horns. The facilities and equipment needed for a Quiet Zone can be quite costly; and the approval process can require more than a year to complete, including project design, plan review, and approval by the governing agencies. As discussed below, we have on-going studies or improvements scheduled for each of the at-grade crossings in Burbank. We are also in discussions with the railroad operators (UP and SCRRA) and staff of the California Public Utilities Commission (CPUC) about our planned improvements to several of the grade crossings. These meetings may result in more detailed information about the applicability of quiet zones to our track system.
Current Status - Each of the three at-grade highway � rail crossings in Burbank is equipped with the minimum safety systems necessary to build a Quiet Zone. Each crossing has flashing warning lights and crossing protection gates, and each crossing has constant warning time train detection. The pedestrian crossings are equipped with flashing lights, signs, and system malfunction warning systems. Each of the highway � rail crossings is programmed for improvements or studies in the near future. The programmed improvements are as follows:
Buena Vista Street at San Fernando Boulevard � New equipment is programmed for this crossing as a part of a project to improve the Winona Street connector between Buena Vista Street and San Fernando Boulevard (North). The changes include blank out turn prohibition signs and pre-signals in the southbound direction. The intersection upgrades will not be sufficient to install a Quiet Zone, but they will significantly improve driver recognition and compliance of the crossing.
Caltrans plans to begin reconstruction of Interstate 5 in 2007. The grade separation of the rail tracks at Buena Vista Street will be an early phase of that project. Although Caltrans has not prepared a specific schedule for the project, the tracks should be grade separated by 2009. The grade separation will automatically result in a Quiet Zone on this section of track.
Buena Vista Street at Vanowen Street � Upgrades to this rail crossing include additional rail crossing protection gates, median, relocated traffic signals, and blank out turn prohibition signs. Hazard Elimination Safety (HES) grant funds of about $400,000 are programmed for additional crossing protection, and other local funds of $75,000 are available for additional improvements at this location. These funds are almost sufficient to develop a Quiet Zone on this track segment.
We have begun the design phase of the project with assistance and involving consultation of staff from UP, SCRRA and CPUC on the conceptual design. We plan to submit the completed crossing design to the CPUC for approval in about six months. We will concurrently submit an application to the CPUC and the Federal Railroad Administration for a Quiet Zone on the Ventura Subdivision between Vanowen Street in Burbank and Grandview Avenue in Glendale. The review and approval process for the Quiet Zone could take 15 to 20 months.
Empire Avenue at Vanowen Street - This crossing is a low traffic volume crossing with a standard flashing warning lights and rail crossing gate system adjacent to a signalized intersection of Vanowen Street and Empire Avenue. The crossing is on the boundary of Burbank and Los Angeles, although the adjacent traffic signal is within and maintained by the City of Los Angeles. The City of Los Angeles is interested in upgrading the crossing and traffic signal, but they have no funding for modifications of the crossing. The multi-jurisdictional nature of this crossing will complicate the design of the crossing and likely extend the time required to make the crossing Quiet Zone eligible. The FRA Quiet Zone calculation procedure indicates that this crossing is already below the national risk threshold for highway � rail crossings; however, some improvements are likely to be required through the diagnostic review process.
Burbank recently received a grant of $800,000 to evaluate the feasibility of a grade separation at this crossing. The funds are currently available and staff plans to solicit proposals for the evaluation as soon as possible. The evaluation of a grade separation may identify potential options for the grade crossing as well as options for a grade separation.
Pedestrian Crossings � The four pedestrian crossings are currently equipped with flashing signals, signs, and failsafe notification systems. Although the FRA rules do not address pedestrian crossings, some additional protection devices are expected to be required through the diagnostic team review process. This analysis assumes that some form of gates that close with an approaching train will be required. These gates have been included in the cost analysis.
Potential Funding Sources - Staff has identified four possible funding sources that may be used for grade crossing improvements. They include:
Hazard Elimination Safety (HES) Funds � Burbank received an HES grant in 2005 to upgrade the two rail crossings on Buena Vista Street. Historically, the available funding in this program has been limited; however, the latest federal appropriations bill greatly expanded the fund allocated to the program. Appropriations are made each fiscal year for new projects. Staff will continue to apply for these funds for additional safety improvements.
Federal-Aid At-Grade Highway-Rail Crossing Program � This funding source, called the Section 130 Program, provides federal funds specifically for safety improvements at highway-rail grade crossings. The program specifically excludes the funding of Quiet Zone improvements, but it will fund safety enhancements that can be incorporated into a Quiet Zone application.
Special Federal Appropriations � Our congressional representatives annually seek projects that can be funded through special appropriations. Highway-rail safety improvements are a high priority, which can result in special funding for appropriate programs. Staff has requested $1.1 million in special appropriations for the coming year.
Redevelopment Agency Funds � The highway � rail grade crossings are all within either the Golden State Freeway Redevelopment area or the South San Fernando Redevelopment area. Redevelopment funds can be used for infrastructure improvements that enhance the vitality of the redevelopment area. Redevelopment funds can be used for Quiet Zone funding.
ANALYSIS
The estimated costs of Quiet Zones on each track in Burbank are based on expected improvements and costs provided by SCRRA and design consultants. Identified improvements to each crossing are as follows:
Buena Vista Street at San Fernando Blvd. � This at-grade crossing will become grade separated in the near future. Programmed improvements are minimal. They include blank-out turn prohibition signs, pre-signals in the southbound direction, median improvements, and pavement markings. The improvements for this location are included in current projects. Estimated cost of the improvements is $35,000.
Buena Vista Street near Vanowen Street � Improvements planned for this location include additional crossing protection gates for a quad gate system, new railroad crossing control system, a railroad cantilever signal system, medians, vehicle detection and widening of the Vanowen Street left turn lane. SCRRA estimated costs are $420,000, and other costs are $65,000, for a total project cost of $485,000.
Empire Avenue at Vanowen Street � The FRA safety calculation indicates that this crossing is currently below the national safety risk threshold NSRT); however, it is likely that some improvements will be required by CPUC or the railroad through the diagnostic team meeting. Minimum improvements include an upgrade of the traffic signal, median improvements blank-out turn prohibition signs, pavement widening, and sidewalk. Estimated costs for these improvements are $200,000. Since this location is partially within the City of Los Angeles, they must approve all modifications to the crossing.
Pedestrian Crossings � The pedestrian crossings are not included in the FRA Quiet Zone evaluation, but it is likely that some improvements will be required to mitigate the sounding of the train horn. Although a diagnostic meeting with all involved parties will determine the specific modifications to these crossings, staff expects some type of pedestrian crossing protection similar to that used on the Gold Line in Pasadena to be required. The pedestrian crossing protection includes gates and signage, at an estimated cost of $130,000 per location, or a total cost of $520,000.
The above estimated costs are considered on the high side for the potential costs of the improvements required for a Quiet Zone. Actual costs, determined through a diagnostic team meeting, may be substantially lower.
FISCAL IMPACT
The total maximum cost of the proposed improvements is $1.24 million. Approximately half of this cost is currently available in the HES grant and current projects. An additional $680,000 is needed to complete improvements to apply for a Quiet Zone.
RECOMMENDATION
Staff requests City Council direction on the establishment of Quiet Zones in Burbank.
Attachments: Chart 3 � Creating a New Quiet Zone Using SSM�s At Grade Rail Crossings Near Burbank
|
|||||||||||||
