10 Staff Report.Highway 17 BPOC
PREPARED BY: Ying Smith
Transportation and Mobility Manager
Reviewed by: Town Manager, Assistant Town Manager, Town Attorney, Finance Director, and Parks and
Public Works Director
110 E. Main Street Los Gatos, CA 95030 ● (408) 354-6832
www.losgatosca.gov
TOWN OF LOS GATOS
COUNCIL AGENDA REPORT
MEETING DATE: 09/01/2020
ITEM NO: 10
DATE: August 27, 2020
TO: Mayor and Town Council
FROM: Laurel Prevetti, Town Manager
SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing Recommendations (Project
818-0803):
a. Approve the Feasibility Study for the Highway 17 Bicycle and Pedestrian
Overcrossing (Project 818-0803);
b. Proceed with the final design of a separate bridge structure between 16
and 20 feet wide located immediately south of the Blossom Hill Road
Bridge
c. Authorize staff to proceed with analyzing three bridge type options:
concrete, steel truss, and steel arch, and solicit community input in the
final design phase;
d. Authorize the Town Manager to submit a grant application to Caltrans in
the Active Transportation Program, seeking grant funds for project
construction; and
e. Commit up to $1 million in future budget (FY 2023/24) as match funding
for the ATP grant.
RECOMMENDATION:
Highway 17 Bicycle and Pedestrian Overcrossing Recommendations (Project 818-0803):
a. Approve the Feasibility Study for the Highway 17 Bicycle and Pedestrian Overcrossing
(Project 818-0803);
b. Proceed with the final design of a separate bridge structure between 16 and 20 feet wide
located immediately south of the Blossom Hill Road Bridge
c. Authorize staff to proceed with analyzing three bridge type options: concrete, steel truss,
and steel arch, and solicit community input in the final design phase;
d. Authorize the Town Manager to submit a grant application to Caltrans in the Active
Transportation Program, seeking grant funds for project construction; and
e. Commit up to $1 million in future budget (FY 2023/24) as match funding for the ATP grant.
PAGE 2 OF 9
SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
BACKGROUND:
The Town began a Feasibility Study for the Highway 17 Bicycle and Pedestrian Overcrossing
(BPOC) in late 2019. The project is included in the Fiscal Year 2020/21 – 2024/25 Capital
Improvement Program Budget. The Feasibility Analysis examined three alignment alternatives
and identified the pros and cons of each, including environmental impacts, right-of-way
availability, cost, public input, and overall feasibility. The three alternatives include:
Alternative 1: A separate bicycle and pedestrian bridge connecting to Nino Avenue
Alternative 2: A separate bicycle and pedestrian bridge along Blossom Hill Road (BHR)
Alternative 3: Widening the existing BHR bridge for bicyclists and pedestrians
At the March 3, 2020 meeting, the Town Council approved the project purpose and need, and
authorized staff to proceed with design alternatives for a separate bicycle and pedestrian
overcrossing. Establishing the purpose and need at the onset of the project development
phase helps to ensure the project reflects the Council’s and community’s vision and priorities.
The approved project purpose and need are:
Purpose: The project would improve bicycle and pedestrian mobility across Highway 17
in the vicinity of the Blossom Hill Road overcrossing. The project includes a focus on
improving safety for all modes of travel and creating a safe route to schools while
promoting active transportation. Additionally, the project would result in reduced
traffic congestion and greenhouse gas emissions by providing comfortable mobility
alternatives.
Need: With two travel lanes in each direction, carrying upwards of 63,000 vehicles per
day, Highway 17 creates both a physical and psychological barrier for both pedestrians
and bicyclists as it divides the Town in two. Blossom Hill Road is one of only a few
roadways that provide east-west connectivity across the highway.
In April, staff submitted a grant application to the Santa Clara Valley Transportation Authority
(VTA) for the Measure B Bicycle and Pedestrian Competitive Grant Program. In June, the VTA
Board approved the Measure B program, including the $2.75 million award to fund the final
design phase of this project.
DISCUSSION:
This is one of the Connect Los Gatos projects and has received strong support from the
community. The project team, made of Town staff and BKF Engineers and its sub-consultants,
evaluated the key design elements and prepared recommendations for consideration. The
Draft Highway 17 Bicycle and Pedestrian Overcrossing Feasibility Study includes details of the
evaluation and technical reports. The project team also conducted extensive community
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
engagement, which is documented in the Community Engagement Activities Report. Due to
their length, both documents are posted on the project website:
https://www.losgatosca.gov/2556/Hwy-17-Bicycle-Pedestrian-Overcrossing. This staff report
provides the highlights of the findings and recommendations:
Evaluation Criteria and Preferred Alignment Alternative
The project team has evaluated the three alignment alternatives using a set of criteria to guide
the evaluation:
• Community Feedback
• Caltrans Coordination
• Travel Demand and Patterns
• User Experience
• Potential Environmental Impacts: utilities, Right of Way constraints, geotechnical
considerations, trees, and visual impacts
• Cost: construction and maintenance
Alternative 3, widening the existing bridge, would present the most engineering and cost
challenges and was removed from further consideration, as presented to the Town Council at
the March 3, 2020 meeting.
Alternative 1, a new bridge connecting at Nino Ave, includes several variations, one of which
could provide a direct connection to the Los Gatos Creek Trail. There are benefits of providing a
new connection to Nino Avenue, however, during the early engagement process from both the
February community meeting and a community survey, residents on Nino Avenue expressed
that the access would be an intrusion to the neighborhood.
After further evaluation, the project team concluded that Alternative 2, a separate bridge
structure just south of Blossom Hill Road Bridge, is the preferred alignment. The recommended
alternative presents several benefits: consistency with the existing desired travel line, shortest
distance between key origins and destinations, no interference with the existing bridge,
enhanced user experience, and neighborhood acceptance. The cost of this alternative is
potentially lower than Alternative 1 because it would have a shorter bridge span.
User Experience and Cross Section
The bicycle and pedestrian counts collected at the project location show a very high level of
existing usage. In addition, the location serves bicyclists and pedestrians of all ages and
abilities, including large numbers of youth and elderly. These factors add strengths to this
project and are important considerations in deciding the width of the structure.
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
Many of the existing BPOCs in the Bay Area constructed in the last two decades are between 10
and 12 feet wide. Although they are considered sufficient to accommodate moderate bicycle
and pedestrian volumes, those at busy locations, such as those along the Steven’s Creek Trail,
experience reported user conflicts. Several BPOCs that are under design, including the US
101/Shoreline Boulevard BPOC (Mountain View) and I-880/Pacific Commons BPOC (Fremont),
are being designed with cross sections between 18 and 20 feet wide.
The project team is recommending a cross section between 16 and 20 feet wide, with the final
width determined during final design. This width would allow for two-way bike traffic and
proper separation of bicyclists and pedestrians.
Staff also recommends adjusting the alignment on the existing bridge. The westbound bike
lane west of the bridge can be enhanced with protected barriers, essentially extending the Class
IV bike lane to the Vasona Park entrance and providing a comfortable bike lane for more
experienced cyclists who may not want to cross BHR twice to divert to the new bridge.
Right of Way and Utilities Constraints
Generally speaking, there is sufficient public right of way to accommodate a new bicycle and
pedestrian bridge structure south of the existing Blossom Hill Road bridge. It is possible that
the existing bridge is replaced in the future, therefore it will be important to design the new
bridge with as much separation as possible from the existing structure. Doing so will be
important as Caltrans will require the Town to demonstrate the new bridge will not preclude
future widening of this structure and that adequate clearance exists for the current and future
maintenance of each.
A maintenance agreement between Caltrans and the Town will be required during final design
since the main span crossing is located within Caltrans right of way. Caltrans will require the
Town to maintain this crossing or include language in the agreement outlining reimbursement
for Caltrans to maintain the crossing.
The preferred alternative attempts to avoid the relocation of existing utilities within the limits
of the project. Detailed utility studies and coordination with utility owners will also be required
to determine if existing utility structures within public right of way will need to be adjusted to
grade and/or relocated to accommodate the proposed improvements.
Bridge Structure Types and Architecture
Given the project’s location and utilization, the project team has identified three bridge
structure types: concrete, steel truss, and steel arch that would be most appropriate for the
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
location. Each structure type has strength in architectural style and its own advantages and
disadvantages in terms of structural support, anchoring to Highway 17, construction impact,
and visual appearance. Table 1 shows a comparison of the costs for all three structural types.
Staff recommends keeping all three types in consideration and waiting on the decision on
bridge type until the final design phase, allowing for additional evaluation and extensive
community engagement.
Table 1 - Estimated Cost per Bridge Structure Type
Concrete Box-Girder
(2-Span)
Steel Arch-Shaped Truss
(Single Span)
Steel Tied Arch
(Single Span)
Construction Cost $21,168,000 $24,060,000 $24,932,000
Total Cost $25,103,700 $27,995,700 $28,867,700
Preliminary Evaluation of Environmental Impacts
The proposed bridge profile is roughly six feet higher than existing Blossom Hill Road towards
the east end of bridge. It is anticipated that a number of trees to the southeast of the existing
bridge will be removed, with a wider bridge having a somewhat greater impact to existing
trees. The project team also evaluated potential utility, visual, and right of way impacts.
Further evaluation and analysis would be required during final design to complete the California
Environmental Protection Act (CEQA) analysis for the project. If federal funding is used in the
construction phase, environmental review in accordance with the National Environmental
Policy Act (NEPA) would be required.
Project Cost, Funding and Schedule
For budgeting purpose, the highest cost structure type, steel arch, was used in this estimate.
The construction cost is estimated to be $24,932,000 and the total cost with all project phases
combined would be $28,867,700. Table 2 shows the project costs by phase and funding
sources. The Town has been very strategic in investing in the early stage of the project
development using the Town’s General Fund Reserve and its share of the Transportation
Development Act Article 3 (TDA 3) funds for the current phase. The progress has positioned the
project to be competitive in grant programs, including the Santa Clara County 2016 Measure B
program. The project was awarded $2.75 million in Measure B funds for the final design phase,
which will require $946,200 from the Town’s contribution as local match. The local match is
included in the proposed Fiscal Year 2021/22 Capital Improvement Program Budget.
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
Table 2 – Project Funding
Phase Grant Town Total
Feasibility Study $ 87,500 $ 147,000 $ 234,500
Final Design $ 2,755,000 $ 946,200 $ 3,701,200
Construction $ 21,168,000 $ 1,000,000 $ 24,932,000
Total $ 26,774,500 $ 2,093,200 $ 28,867,700
Notes to Table 2:
Feasibility Study and Final Design costs are in 2020 dollars. Construction costs are in
2024/25 dollars (midpoint of construction). All costs rounded to nearest $100.
Total project costs include all phases.
Construction costs are based on the most expensive structure type, steel arch.
The Town’s contributions in the Final Design and Construction phases are pending Town
Council’s budget decisions.
The Town has yet to secure funding for the project construction. The first opportunity to
compete for grant funding is the upcoming Active Transportation Program (ATP). Staff is
requesting the Town Council’s authorization to submit the ATP application to Caltrans and to
commit up to $1 million in a future budget (FY2023/24) as a non-ATP match should the ATP
application is awarded.
The project schedule is shown in Table 3. The final design work will begin in early 2021 and is
expected to be completed in 2023. Construction may start as early as 2024 and be completed
by the end of 2025, if construction funding is available.
Table 3 – Project Schedule
Milestone Schedule
Feasibility Study Began September 2019
Outreach Round 1 – Initial Screening February 2020
Town Council confirmed two alternatives March 3, 2020
Community Meeting via Zoom August 25, 2020
Outreach Round 2 August 2020
Town Council considers preferred alternative September 1, 2020
ATP Application for Construction Dollars September 15, 2020
Final design Early 2021 - August 2023
Advertise Construction November 2023
Award Contract January 2024
Construction (pending funding availability) February 2024 – December 2025
PAGE 7 OF 9
SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
Community Engagement
Community engagement for this project follows the framework identified in the Connect Los
Gatos Community Engagement Plan, adopted by Town Council in March 2020. The Town began
the outreach effort starting in the fall of 2019. The latest project information, a project video,
and staff recommendations are provided on the project website. A virtual community meeting
was held on August 25, 2020. Approximately 40 people attended the meeting, including
residents near the project area, parents of school-aged children, Safe Route to School
representatives, and Complete Streets and Transportation Commissioners. Attendees were
supportive of the bridge. Some attendees from the Ohlone Court neighborhood expressed
concerns over the visibility from their yards of the pathway along Blossom Hill Road leading to
the bridge. Staff believes the pathway would be at a low elevation that would not be evident.
The consultant team is being asked to prepare elevation drawings in the next phase of design
so that the residents can better visualize the project area. Additional highlights of the
comments received during all phases of outreach include the following:
Project Cost, Purpose and Need
Many people recognized the needs of improving access and safety at this location for
bicyclists and pedestrians of all ages. Parents with school-age children expressed their
support for a safer facility. Some people believed this would not be a good investment
because the need was not significant, or the cost would be high.
Neighborhood Impacts
Residents living within the project area shared their concerns about the increased foot
traffic in the neighborhood associated with the alternatives connecting to Nino Avenue.
Many were opposed to option(s) impacting Ohlone Court and/or Nino Court and Avenue
due to privacy and noise pollution concerns. They were open to either the Blossom Hill
Road widening and the Blossom Hill Road BPOC alternatives.
Caltrans Coordination
Some people preferred to see the existing Blossom Hill Road bridge widened or rebuilt.
Travel Demand and Patterns
Many commented that they or their families would bike and walk more often for various
trips if the facility was improved. In general people agreed that Alternatives 2 and 3
matched up with the existing travel patterns. People also showed preference to a direct
connection to the Los Gatos Creek Trail.
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
DISCUSSION (continued):
User Experience
The Complete Streets and Transportation Commission expressed support for a separate
BPOC that is sufficient to accommodate two-way bicycle traffic with separation between
bicyclists and pedestrians. Many commenters emphasized safety as their first concern.
Potential Environmental Impacts
Staff received several questions on the potential tree removal and visual impacts from
the neighborhood.
CONCLUSION:
Approval of the staff recommendations would enable this project to continue through the
design phases and would facilitate staff pursuing additional grant funding.
COORDINATION:
The former Bicycle and Pedestrian Advisory Commission and the Complete Streets and
Transportation Commission have been actively engaged since the beginning of this project,
including conducting a field meeting, leading a Silicon Valley Bicycle Coalition - Town
infrastructure bike ride, conducting bicycle and pedestrian counts, and providing input at public
and Commission meetings. At its August 13, 2020 meeting, the CST Commission recommended
approving the staff recommendations.
FISCAL IMPACT:
There is no immediate fiscal impact associated with the recommendations and the project is
funded through the final design phase. Staff has asked for an initial commitment of matching
funds for the ATP grant. Upon the Town Council’s authorization, staff will submit the ATP grant
application for construction funds before the September 15 deadline. If the ATP grant is
awarded, staff will return to the Town Council to accept the grant and make a budget
recommendation for the non-ATP match fund.
As part of this grant application, the Town Council would commit to identifying a future budget
source of funding either through the use of Town funds or other grant funding resources. Staff
will continue to pursue additional grant funding opportunities in addition to the ATP program.
One potential source for the match fund is the VTA’s Vehicle Emissions Reductions Based at
Schools grant program, which can provide up to $1 million in federal dollars. The next funding
cycle is anticipated in 2021.
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SUBJECT: Highway 17 Bicycle and Pedestrian Overcrossing
DATE: August 27, 2020
ENVIRONMENTAL ASSESSMENT:
This is a project as defined under CEQA and an environmental analysis will be prepared in the
Final Design phase and after preliminary engineering is completed.