2.Staff Report Jt PRC-BPC 15.12.15 final
DEPARTMENT OF PUBLIC WORKS
DEPARTMENT OF RECREATION AND COMMUNITY SERVICES
CITY HALL
10300 TORRE AVENUE • CUPERTINO, CA 95014-3255
TELEPHONE: (408) 777-3354 / (408) 777-3110
PARKS AND RECREATION COMMISSION AND
BICYCLE PEDESTRIAN COMMISSION STAFF REPORT
Special Meeting: December 15, 2015
Subject
Review the Joint Cities Coordinated Stevens Creek Trail Feasibility Study and the
recommendations forwarded by the Joint Cities Working Team.
Recommended Action
Review the Joint Cities Coordinated Stevens Creek Trail Feasibility Study and the Joint Cities
Working Team recommendations, and provide input as desired for forwarding to the City
Council.
Background
The Stevens Creek Trail is a partially complete pedestrian and bicycle route along the Stevens
Creek Corridor. In 1961, Santa Clara County trail planners originally proposed an
interconnected system of trails that would connect parks and open space along Stevens Creek.
Today approximately five miles of the trail are in place in Mountain View from San Francisco
Bay to Dale Avenue/Heatherstone Way. Cupertino has completed another mile of Stevens
Creek Trail from Stevens Creek Boulevard to McClellan Road, through Blackberry Farm Park
and McClellan Ranch Preserve. The gap between these segments has been the focus of the
recent Joint Cities Coordinated Stevens Creek Trail Feasibility Study (Feasibility Study).
In 2009 a cooperative group of policy representatives from Cupertino, Sunnyvale, Los Altos,
Mountain View and Santa Clara Valley Water District formed a Joint Cities Working Team
(JCWT). The goal of the group was to develop a mutually agreeable concept for completion of
the Stevens Creek Trail, and to thereafter seek resources to construct the remaining trail in a
cooperative and unified manner. As part of this effort, the four cities agreed to provide funding
for a Feasibility Study to identify feasible alignments that would close the gap between
Cupertino and Mountain View. Funds for the study were also provided by the Friends of
Stevens Creek Trail and by a Project Readiness Initiative grant from the Santa Clara Valley
Transportation Authority (VTA).
To complete the Feasibility Study, the four cities contracted with Jana Sokale Environmental
Planning (with Sunnyvale as the lead agency) in 2012. Subsequently the JCWT sought out three
volunteers from each city to act as a Citizens Working Group (CWG). The CWG was tasked
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 2 of 10
with reviewing the technical findings of the Feasibility Study and serving in an advisory role to
the JCWT. The scope of the Feasibility Study was to identify alternatives for completion of a
public bicycle and pedestrian connection and to gather community input throughout the
process. The Feasibility Study assessed a wide variety of possible routes and evaluated a range
of possible improvements including fully separated off-street bicycle/pedestrian trails, on-street
bike lanes, and neighborhood greenways on lower volume residential streets. The Feasibility
Study report presents numerous routes that are considered feasible, and documents routes that
were evaluated but considered infeasible. The analysis is presented in the Joint Cities
Coordinated Stevens Creek Trail Feasibility Study (Attachment A). Although the Feasibility
Study itself does not make any recommendations on preferred routes, it provided a framework
for the JCWT on feasible alignments. The JCWT was tasked with making preferred alignment
recommendations upon conclusion of the public input in summer 2015.
With the goal of connecting completed portions of the Stevens Creek Trail in Cupertino and
Mountain View, both working groups and city staff developed study parameters to help guide
the consultant in developing the Feasibility Study. The study parameters included:
Investigate public lands and rights-of-way
Protect environmentally sensitive habitats
Seek routes that accommodate beginner bicyclists
Develop direct routes that close the gap
Connect to parks, schools, shopping and on-street pedestrian and bicycle systems
The Feasibility Study area focuses on public lands that are bounded by the following:
South – Stevens Creek Boulevard
West – Grant Road and Rancho San Antonio County Park
North – Dale Avenue/Heatherstone trail overcrossing in Mountain View
East – Mary Avenue
Within this bounded area potential routes were researched that may provide an experience that
ranges from a fully separated facility in an open space area, to a local road that serves as a
connector to a trailhead.
Four study segments were defined within the boundaries. The study segments are:
1. Dale Avenue/Heatherstone Way to Fremont Avenue
2. Fremont Avenue to Homestead Road
3. Homestead Road to Stevens Creek Boulevard
4. Trail connections to Rancho San Antonio County Park via Stevens Creek Boulevard
From November 2012 to February 2013, three public meetings were held to provide an
overview of the purpose of the Feasibility Study and to obtain feedback regarding potential
routes through Cupertino, Los Altos, Sunnyvale and Mountain View. The Feasibility Study
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 3 of 10
team also investigated potential crossing locations in late 2013 in the areas of Foothill
Expressway at Highway 280, a new Highway 280 pedestrian bridge west of State Route 85, and
Stevens Creek Boulevard at State Route 85. In 2014, the Feasibility Study team met to recap the
findings of the additional site investigations and to complete potential trail routes for the study.
The group reconvened in March 2015 and defined a process to wrap up the Feasibility Study
and develop a recommendations report to be presented to each of the four cities for approval.
Discussion
The Feasibility Study team defined a process to collect public input regarding a draft of the
Feasibility Study and to develop recommendations for a preferred alignment for the Stevens
Creek Trail (Attachment B). On March 27, 2015 the draft Feasibility Study was issued for public
comment. By the end of the comment period, 945 comments were received. (Comments are
available as Appendix C to the Feasibility Study on the City of Sunnyvale website,
http://sunnyvale.ca.gov/Departments/PublicWorks/StevensCreekTrailJointCitiesFeasibilityStud
y.aspx). In addition to written comments, there were seven opportunities after the study was
released for the public to provide input on the Feasibility Study and potential trail alignments.
Three public meetings were held in May and June 2015 and four Citizen Working Group and
Joint Cities Working Team meetings were held between June and August 2015. Technical
comments related to the Feasibility Study were reviewed and incorporated as appropriate.
CWG Recommendations
On June 17, 2015, the CWG discussed public comments received, including written and oral
comments from the three public meetings in May and early June. At this meeting, the CWG
developed general alignment themes which helped guide its alignment recommendations. The
CWG alignment themes include:
Extend the Stevens Creek Trial as a bike/pedestrian path as far south as possible to keep
the trail separated from vehicular traffic to the greatest extent possible in order to create
a family-friendly and recreational route that enhances the bicycle and pedestrian
networks of the four cities
Enhance the habitat along the creek corridor with development of the trail
For existing bike routes that are in the area but not part of the recommended alignment,
modest safety improvements should be considered
Based upon the alignment themes, the CWG recommended preferred alignments for each study
segment. The map below was used to assist the CWG and present their recommendations to
the JCWT. The CWG’s preferred alignments are:
Study Segment 1
o Extend the Stevens Creek Trail through the 22 acres of open space along Stevens
Creek/State Route 85
Study Segment 2
o Extend the Stevens Creek Trail as a separated off-street bike/pedestrian path
along the sound wall on Bernardo Avenue
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 4 of 10
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 5 of 10
o If the Bernardo path is not feasible, the second choice is to incorporate modest
enhancements to Bernardo, Belleville and Fallen Leaf for bicycle safety
Study Segment 3
o Add a new grade-separated crossing at Interstate 280 to provide access to the
Stevens Creek Trail on a direct route along low-volume, low-speed streets
Study Segment 4
o Extend a bike/pedestrian path along Stevens Creek Boulevard west from
Stonebridge Street to undeveloped open space land behind the Gate of Heaven
Cemetery to provide access to Rancho San Antonio County Park
The CWG recommendations are provided in Attachment C, which includes greater detail
regarding their recommendations and a discussion of each study segment. The CWG’s
recommendations were forwarded to the JCWT.
Joint Cities Working Team (JCWT) Recommendations
The JCWT met on July 24, August 5 and August 21, 2015 to discuss the Draft Feasibility Study,
public feedback, written and oral comments, and the CWG recommendations. The JCWT
developed its recommendations as a regional body and considered the alignments through all
the cities (Attachment D). Below is a brief summary of JCWT alignment recommendations.
Additional discussion of the individual segments follows.
JCWT Alignment Recommendations Summary
Study Segment 1 – Dale Avenue/Heatherstone Way to Fremont Avenue
o The preferred route for Stevens Creek Trail in this segment is an off-street trail
through an existing 22-acre open space along Stevens Creek/Highway 85
Study Segment 2 - Fremont Avenue to Homestead Road
o The preferred alignment is an off-street bike/pedestrian pathway on Bernardo
Avenue including a bike/pedestrian overpass of Fremont Avenue at Bernardo
Avenue
o Conduct a detailed study to determine parking and traffic impacts on Bernardo
Avenue to determine alignment feasibility (by City of Sunnyvale).
o Consider modest on-street bike/pedestrian enhancements on Belleville Way and
Fallen Leaf Lane consistent with each city’s adopted pedestrian/bike plans. These
improvements should be considered regardless of whether or not a path at
Bernardo Avenue is feasible, and such improvements will not include specific
signage relating to the Stevens Creek Trail
Study Segment 3 - Homestead Road to Stevens Creek Blvd.
o No off-street facility was recommended in this segment.
o Support widening the existing Homestead Road crossing at State Route 85 or
building a separate parallel bike/pedestrian bridge to provide a connection to the
existing off-street bike/pedestrian pathway on Homestead Road.
o Undertake further studies to identify a feasible route if circumstances regarding
land availability change in the area.
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 6 of 10
o Reach out proactively to agencies such as Caltrans, VTA and Union Pacific
Railroad to express that bike and pedestrian access though the I-280 interchanges
vicinity is a community priority, and express interest in land availability for
pedestrian/bike improvements and discourage any modifications that may limit
future such improvements should those agencies make modifications to their
facilities or changes to their land use.
o Support improvements to Foothill Boulevard/Expressway. Although this
segment would not be part of Stevens Creek Trail, bike/pedestrian improvements
should be considered if there are improvements to the I-280/Foothill interchange,
or as part of other city or county projects in the vicinity.
Study Segment 4 – Trail Connections to Rancho San Antonio County Park via Stevens
Creek Blvd.
o The preferred route to Rancho San Antonio from Cupertino’s Stevens Creek Trail
and creek corridor is a spur alignment that uses Stevens Creek Boulevard on-
street bike lanes, and then continues westward along the north side of Stevens
Creek Boulevard starting near Stonebridge.
Study Segment Descriptions
Study Segment 1 – Dale Avenue/Heatherstone Way to Fremont Avenue
This segment extends from the Permanente Creek bypass channel overpass at St. Giles Lane in
Mountain View eastward to Mary Avenue in Sunnyvale and encompasses Mountain View High
School and Cherry Chase Elementary School. The study identifies an off-street bike/pedestrian
path through 22 acres of existing open space along Stevens Creek between Mountain View and
Sunnyvale.
This is the only segment within the Feasibility Study boundaries where a trail along the creek
was found to be feasible based on the availability of land and the space required for trail
construction. However, implementation of a trail through this section is challenging due to
limited creek bank area. Several bridges would be needed to cross the creek, and lengthy
structures needed to span narrow areas between the sound wall along Highway 85 and areas of
very limited creek bank. A lengthy environmental review and permitting process will be
needed prior to any construction in this area.
Study Segment 2 – Fremont Avenue to Homestead Road
This study segment extends from Louise Lane in Los Altos to Mary Avenue in Sunnyvale, and
includes West Valley Elementary School and Cupertino Middle School. The JCWT
recommended alignment is an off-street bike/pedestrian path along the Bernardo Avenue
sound wall between Fremont Avenue and Homestead Road, including a bike/pedestrian
overpass at Fremont Avenue. The alternatives for implementing this path include either the
conversion of Bernardo Avenue to a one-way street or significant reduction in parking. While
the preliminary investigation done as part of the study determined that this option is feasible,
further studies must be conducted to fully evaluate the impacts of the roadway change. The
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 7 of 10
JCWT recommended that a detailed traffic and parking study be conducted for this segment,
with the findings being considered by the City of Sunnyvale prior to any further trail master
planning work in this segment. If based upon the findings of the comprehensive traffic and
parking study the off-street bike/pedestrian path were found infeasible or if this option were
not supported by the City of Sunnyvale, the JCWT recommended modest bike and pedestrian
safety improvements and/or wayfinding on Belleville Way, Bernardo Avenue, and Bedford
Avenue.
Numerous concerns from area residents were expressed during public outreach process
regarding this alignment. Potential changes to the roadway in this segment generated concerns
about traffic diversion in the neighborhood, loss of parking, and degradation of already difficult
traffic conditions around Cupertino Middle School during pick-up and drop-off times. The
current Feasibility Study was limited to evaluating roadway widths and physical constraints
necessary for trail construction and did not evaluate the potential traffic impacts from
narrowing the roadway. Conversely, the Feasibility Study did not attempt to quantify potential
benefits of a separated off-street bike/pedestrian trail that could provide safer access to school
for areas students.
Study Segment 3 – Homestead Road to Stevens Creek Blvd.
This segment extends from Grant Road/Foothill Boulevard in Los Altos and Cupertino to Mary
Avenue, and includes the area contiguous to Homestead High School and near Stevens Creek
Elementary School. In this segment, the Feasibility Study concluded that no feasible routes exist
that could accommodate an off-street facility and connect through to the existing trail that ends
at Stevens Creek Boulevard at the Stocklmeir Ranch site. Although several on-street routes
were considered feasible, the JCWT did not select one of these alternatives as a preferred route
through this area. Feasible routes identified in the study had major drawbacks which included:
The route required on-street bike lanes on heavily travelled streets such as Stevens
Creek Boulevard or Foothill Boulevard, which was considered incompatible with the
goal of a system that was suitable for bike riders of all skill levels
The route required a new crossing of Interstate 280 and relied on the use of quiet
residential streets to make connections, which was opposed by local residents
A new crossing of Interstate 280 could be changed by the planned reconfiguration of the
Interstate 280/State Route 85 interchange
Neighbor concerns regarding potential trail routes in this study segment were expressed
throughout the process. For example, in April 2013 a petition signed by 78 residents of the
Mann/Madera/Phar Lap area was delivered to City of Cupertino, requesting that trail
alignments avoid their neighborhood and noting concerns about graffiti and crime. Residents of
Homestead Villas submitted a petition signed by over 140 neighbors asking the City Council to
not route the Stevens Creek Trail through the Homestead Villas subdivision due to a variety of
concerns, instead recommending a Foothill Boulevard or Mary Avenue route. Citizens For
Responsible Trails also supported use of Mary Avenue or Foothill for a trail alignment, rather
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 8 of 10
than a new highway crossing and neighborhood streets alignment. Alternatively, some of the
public comments have been actively supportive of a trail route on neighborhood streets with a
new Highway 280 crossing, as was the CWG recommendation. However, the JCWT did not
recommend any of the alternatives identified in the Study.
Instead, the JCWT articulated a long-term vision that trail routes continue to be evaluated as
conditions change in the area or land availability changes. For example, new trail routes could
become available if reconstruction of the I-280/State Route 85 interchange or Foothill Boulevard
interchange occurs, or if Union Pacific Railroad right-of way becomes available for trail
purposes.
Improvements to Homestead Road at the Highway 85 crossing would consist of widening the
existing bridge or constructing a new bike/pedestrian bridge to create a separated
bike/pedestrian path on the north side of Homestead Road. Highway 85 on-/off-ramps would
also be realigned to promote bike/pedestrian safety. Improvements in this area could be
extended along Homestead Road to connect to an existing off-street bike/pedestrian trail in Los
Altos. These improvements would be designed to improve safety for students walking and
cycling to nearby Cupertino Middle School and Homestead High School.
The JCWT expressed support for improvements to Foothill Boulevard/Foothill Expressway
including the Interstate 280 interchange area. This segment was not recommended as a
preferred alignment for Stevens Creek Trail due to its traffic conditions. However, bicycle and
pedestrian improvements are recommended as part of any city or county project in that vicinity
or if improvements to the Interstate 280/Foothill interchange are undertaken.
Study Segment 4 – Trail Connections to Rancho San Antonio County Park via Stevens Creek Blvd.
This segment is in Cupertino and connects east-west along Stevens Creek Boulevard to Rancho
San Antonio County Park. This connection would not be considered part of the Stevens Creek
Trail, but could provide an important connection from the existing trail through McClellan
Ranch Preserve and Blackberry Farm to an extensive trail network in Rancho San Antonio
County Park. The proposed alignment uses existing Stevens Creek Boulevard on-street bike
lanes, and then continues westward along the north side of Stevens Creek Boulevard starting
near Stonebridge Street. A new bridge over the railroad tracks provides access into County-
owned open space, Rancho San Antonio County Park and the associated trail system.
Now that JCWT has made their recommendations on preferred alignments to close the gap
between Cupertino and Mountain View, they ask each of the four cities to support their
mutually agreed-upon concept for the regional Stevens Creek Trail. The Feasibility Study is
complete and is under review by the cities of Sunnyvale and Mountain View. The City of Los
Altos has taken action to support the findings of the Stevens Creek Trail alignment identified by
the JCWT and to support the other three cities in their trail planning efforts on November 24,
2015, via resolution of the City Council (Attachment E).
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 9 of 10
Cupertino is limited to the decision-making process within its own jurisdiction. However, the
JCWT asked the cities to support each other in a collaborative effort to continue implementation
of the Stevens Creek Trail. Such collaboration would include coordination and sponsorship in
seeking grant funding, coordination during planning and the environmental review process,
and coordination of the construction of any improvements.
The JCWT agreed that each of the four cities would present the study and the JCWT
recommendations to their respective commissions and councils in accordance with their
corresponding schedules and procedures. Once the four councils have made their
recommendations, the JCWT will reconvene to discuss the outcome and next steps.
Summary
The work of the entire Feasibility Study team was based on regional cooperation for regional
benefit. Commissioners may therefore wish to indicate support for the overall JCWT findings
and recommendations, and endorse providing support to the Cities of Mountain View, Los
Altos and Sunnyvale in their Stevens Creek Trail planning efforts.
The following more specific further actions may be considered consistent with this regional
effort and the conclusions of the JCWT:
Support pursuing a spur trail on Stevens Creek Boulevard to Rancho San Antonio as
described in Segment 4
Support our regional partners as they pursue funding for closing the trail gap between
Cupertino and Mountain View
Support the City of Mountain View in the Stevens Creek Trail master planning for
Segment 1
Support improvements for the Los Altos portion of Segment 2, consistent with approval
of such by the Los Altos City Council on Nov. 24
Support the City of Sunnyvale for a Bernardo Avenue parking and traffic study, at such
a time as Sunnyvale may pursue a Bernardo Avenue bike/pedestrian trail
Support the following policies identified in the JCWT recommendation summary:
o Trail projects should try to improve habitat values in and around Stevens Creek
o Existing public lands near Stevens Creek should be maintained as public land to
preserve habitat and future trail opportunities
o Continue collaborating with regional partners for extension of the Stevens Creek
Trail
Fiscal Impact
None. Identification of a preferred regional trail alignment does not commit the City to provide
funding for additional planning or implementation.
____________________________________
Prepared by: Gail Seeds, Park Improvement Manager
Reviewed by: David Stillman, Senior Civil Engineer
Carol A. Atwood, Director of Recreation & Community Services
Joint Cities Coordinated Stevens Creek Trail Feasibility Study
December 15, 2015
Page 10 of 10
Attachments:
A – Joint Cities Coordinated Stevens Creek Trail Feasibility Study, September 2015
B – Stevens Creek Trail Process Map
C – Citizens Working Group Recommendations
D – Joint Cities Working Team Recommendations
E – City of Los Altos, Resolution No. 2015-39