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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 11/18/2014 - RESOLUTION 2014-106 AUTHORIZING THE CITY MANAGER TAgenda Item 18 Item # 18 Page 1 AGENDA ITEM SUMMARY November 18, 2014 City Council STAFF Dan Weinheimer, Policy & Project Manager Joe Olson, City Traffic Engineer Mark Jackson, PDT Deputy Director SUBJECT Resolution 2014-106 Authorizing the City Manager to Submit a Train Horn Noise Waiver Petition to the Federal Railroad Administration. EXECUTIVE SUMMARY The purpose of this item is to seek City Council permission to submit a request to the Federal Railroad Administration (FRA) for a waiver to the federal train horn noise rule for downtown Fort Collins. The waiver would include several proposed City actions in order to have trains stop blowing horns, except in emergency situations, when traveling from Laurel Street to College Avenue along Mason Street. If Council approves, a waiver will be drafted pursuant to FRA regulations and provided to the FRA Rail Safety Board for action. STAFF RECOMMENDATION Staff recommends adoption of the Resolution. BACKGROUND / DISCUSSION Train horn noise has been a problem in Fort Collins for more than a decade. There are anywhere from 8 to 15 trains utilizing the tracks on Mason Street each day and they travel through the corridor at any time of day. Railroads are not required by federal law to provide a schedule for its freight service nor are they required to provide the City advance notice of trains. Trains travel through the community at all hours of the day and night. Trains have always been operated under the purview of the federal government. In 2005, the Federal Railroad Administration (FRA) completed a nearly ten-year process of creating a standard train horn noise rule. This rule, Title 49 Code of Federal Regulations Part 222 (49 CFR Part 222), standardized the decibel level, horn pattern and timing for sounding the horn relative to an intersection. The rule is intended to prevent vehicular accidents and therefore focuses entirely on street-rail intersections. The rule requires locomotives to sound their horn in a four-blast pattern of two longs, a short and a long at least 15 seconds before occupying an intersection. Their horn must sound at between 96 and 110 decibels. Communities are provided one tool in the rule to limit the noise - they can implement a “quiet zone.” A quiet zone is a section of a rail line at least one-half mile in length that contains one or more consecutive intersections at which locomotive horns are not routinely sounded when trains are approaching the crossings. According to the rule, communities are required to install safety infrastructure to mitigate for the lack of the train horn. Waiver and waiver items Since 2012, staff has talked with FRA officials several times and been advised that the best option for silencing train horns in the downtown corridor would be applying for a waiver to some of the infrastructure requirements Agenda Item 18 Item # 18 Page 2 in the train horn rule. A waiver acknowledges the “unique” design of Mason Street and the difficulty implementing the infrastructure requirements of the rule. The proposed waiver corridor follows the railroad track from College Avenue to Laurel Street along Mason Street and includes eleven railroad crossings/street intersections including: STREET GATES/ LIGHTS INTERSECTION CONTROL College Gates & Lights n/a Cherry Gates & Lights n/a Maple Flashing Lights 2-way STOP LaPorte Flashing Lights Traffic Signal Mountain Flashing Lights Traffic Signal Oak Flashing Lights Traffic Signal Olive Flashing Lights Traffic Signal Magnolia None 2-way STOP Mulberry Flashing Lights Traffic Signal Myrtle None 2-way STOP Laurel Flashing Lights Traffic Signal Elements of City Waiver Petition The request would ask that the federal requirement for gates be waived at the seven intersections currently equipped only with flashing lights. Fort Collins’ waiver petition would include the following items:  Signalize Maple Street/Mason Street intersection  Two east-west crossing closures for motorists (allowance would be made for bicyclists and pedestrians to continue to cross these intersections) - Myrtle Street/Mason Street - Magnolia Street/Mason Street  Potential closure at Old Main - a Colorado State University (CSU) decision  Ensure notice of operational left turn and right turn prohibitions to train crews  Trespass enforcement program - Ordinance # 45, 2011 adopted an enforcement process  Use “no train horn” signage before corridor in accordance with Manual on Uniform Traffic Control Devices (MUTCD)  Conduct a citywide media campaign - Operation Lifesaver, local Emergency Management Services/ public safety - to prepare community  Consider smart transportation devices - CPUC, BNSF, City discuss/agree Closure Impact Closing intersections to east-west traffic at Magnolia and Myrtle will impact traffic circulation to local businesses and homes. Staff feels that the impact will be minimal for most people. The greatest impact would be to drivers attempting to cross Mason Street at either Magnolia Street or Myrtle Street but these are currently low-volume streets and these drivers would still be able to make right turns either on or off Mason Street at those intersections. The closures could be a positive to alternative modes of transportation - allowing bicycle and pedestrian crossing to continue east-west through the corridor without as much vehicular traffic. Signalizing Maple Street could make this intersection easier for MAX buses leaving the Downtown Transit Center. Agenda Item 18 Item # 18 Page 3 Safety impact Safety at all intersections is the shared goal of the City of Fort Collins and the FRA. The City would not pursue a waiver or quiet zone if this would create a dangerous driving condition. Staff used traffic signal log data to measure the speed of trains along Mason. The average speed of trains in downtown Fort Collins was found to be 18 mph. The low train speed lowers the crash risk index on Mason below the Nationwide Significant Risk Threshold used by the FRA to qualify locations for quiet zone consideration. For perspective, staff calculated the crash risk on average at Mason Street crossings, using FRA methodology, taking into account train speed, and compared that to the crash risk with gates. The table below shows those estimates and also shows average crash risk for a typical signalized intersection in Fort Collins. As can be seen, adding gates has minimal safety benefit. Also, the risk at the crossings on Mason is significantly less than the risk at a typical signalized intersection in Fort Collins. Location Risk Index* Injury Crashes Fatal Crashes Nationwide Significant Risk Threshold (NSRT) 14,347 Mason Grade Crossing without Gates (waiver request) 7,476 1 injury crash every 89 years 1 fatal crash every 556 years Mason Street Grade Crossings QZRI with Gates at 7 Crossings 7,037 1 injury crash every 95 years 1 fatal crash every 588 years Average Signalized Intersection in Fort Collins 191,935 3.2 injury crashes per year 1 fatal crash every 67 years * The Risk Index is the estimated annual cost in dollars of accidents at a given location. FINANCIAL / ECONOMIC IMPACTS Submitting a waiver petition does not immediately result in financial or economic impact to Fort Collins. Staff made an effort to engage residents and the business community ahead of the waiver petition in order to explain the elements of the proposal, possible economic impacts and estimated costs associated with proposed actions. Should the waiver petition be approved by the Federal Railroad Administration, the community and City Council would have an opportunity to provide specific feedback as to whether to proceed with implementation of the approved waiver. ENVIRONMENTAL IMPACTS There are no environmental impacts associated with submitting a waiver petition. BOARD / COMMISSION RECOMMENDATION Staff presented the waiver proposal to the Transportation Board on September 17. PUBLIC OUTREACH Engagement activities included outreach to the public, various boards and commissions, and discussions with downtown community partners such as the Fort Collins Downtown Development Authority and Fort Collins Area Chamber of Commerce. Resident Input Staff has collected contacts received through Access Fort Collins, letters, calls or emails where community members have expressed frustration with the volume, frequency and timing of the train horn noise. Generally, the comments received have sought to have the City take action to address train horn noise or to support actions reported in various news sources. Response to social media postings on City accounts also indicates a Agenda Item 18 Item # 18 Page 4 trend of support; however, an expectation that safety will be maintained at crossings if train horn sound is reduced has also been expressed. Formal outreach events include: • Community Issues Forum (October 10, 2013): Facilitated by the Center for Public Deliberation, this forum provided residents an opportunity to discuss and contribute ideas and opinions on a variety of topics including train horn noise in downtown. • Open House (October 8, 2014): Residents were invited to attend an Open House on October 8 to discuss the waiver petition. At this meeting, staff heard positive feedback from attendees about the purpose and elements of the proposed waiver petition. Business Community The staff team contacted individual businesses and business organizations representing the area within the rail corridor to seek their feedback on the elements of the proposed waiver. Discussions included the Fort Collins Area Chamber of Commerce, Downtown Development Authority and approximately eight individual meetings. Feedback on the purpose and elements of the proposed waiver petition was generally, though not universally, positive. Staff met in person with representatives of Avogadro’s Number (605 Mason Street), Headturner’s Salon (604 Mason Street), Larimer County Democratic Party (606 Mason Street), U.S. Bank (400 Howes Street), Wells Fargo (401 College Avenue), property owners of 604-606 Mason Street, Urban Lotus Salon and Vixen Nail Bar (421-423 Mason Street), Restaurant 415 (415 Mason Street), and the owner of a proposed development at 401 Mason Street). At each meeting staff presented the purpose and rationale for the project and shared three renderings for possible closures to Magnolia Street or Myrtle Street for consideration. ATTACHMENTS 1. Magnolia & Mason Bollards Rendering (PDF) 2. Magnolia & Mason Bridge Rails Rendering (PDF) 3. Magnolia & Mason Fence Rendering (PDF) 4. Myrtle & Mason Bollards Rendering (PDF) 5. Myrtle & Mason Bridge Rails Rendering (PDF) 6. Myrtle & Mason Fence Rendering (PDF) 7. Railroad Quiet Zone Study Area Map (PDF) 8. Transportation Board minutes, September 17, 2014 (PDF) 9. Powerpoint presentation (PDF) ATTACHMENT 1 ATTACHMENT 2 ATTACHMENT 3 ATTACHMENT 4 ATTACHMENT 5 ATTACHMENT 6 Transportation Board September 17, 2014 ATTACHMENT 8 1 Mason Street Quiet Zone Waiver Request ATTACHMENT 9 2 Federal Train Horn Rule Quiet Zone - Requirements Minimum Requirements: • At a minimum gates, flashing lights and constant warning time track circuitry are required at all crossings Other Requirements: • Risk Index below the Nationwide Significant Risk Threshold 3 Mason Street Quiet Zone Waiver Request • Mason Street Corridor Quiet Zone Risk Index is below the Nationwide Significant Risk Index • Request would be for a waiver to the Train Horn Rule minimum requirement for gates at seven of eleven crossings. 4 Existing Conditions • In 2012 the City spent $1.5 million to upgrade most of the crossings on Mason to include CWT track circuitry, redundant flashing lights and traffic signal upgrades • Also spent $2.5 million to install curbing mid-block between crossings 5 Waiver Request STREET RR CIRCUITRY* GATES/ LIGHTS INTERSECTION CONTROL College CWT Gates & Lights n/a Cherry CWT Gates & Lights n/a Maple CWT Lights Only 2-way STOP Laporte CWT Lights Only Signal Mountain CWT Lights Only Signal Oak CWT Lights Only Signal Olive CWT Lights Only Signal Magnolia None None 2-way STOP Mulberry CWT Lights Only Signal Myrtle None None 2-way STOP Laurel CWT Lights Only Signal *CWT = Constant Warning Time Circuitry 6 Closure Concept 7 Location Risk Index* Injury Crashes Fatal Crashes Nationwide Significant Risk Threshold 14,347 Mason Grade Crossing Quiet Zone Risk Index 7,476 1 injury crash every 89 years 1 fatal crash every 556 Mason Grade Crossing QZRI with Minimum Requirements Met 7,037 1 injury crash every 95 years 1 fatal crash every 588 Average Signalized Intersection in FC 191,935 3.2 injury crashes per year 1 fatal crash every 67 years Risk Indices and Equivalent Crash Risk 8 Questions for Council • Should the City move forward with a waiver request to the Federal Railroad Administration? – Waiver request would include a proposal to close the Myrtle Street and Magnolia Street crossings to motor vehicles. - 1 - RESOLUTION 2014-106 OF THE COUNCIL OF THE CITY OF FORT COLLINS AUTHORIZING THE CITY MANAGER TO SUBMIT A TRAIN HORN NOISE WAIVER PETITION TO THE FEDERAL RAILROAD ADMINISTRATION WHEREAS, train horn noise along the Mason Street Corridor from Laurel Street northward to College Avenue has been a problem for many years because there are anywhere from eight to fifteen trains utilizing those tracks each day and under the Federal Railroad Administration rules, a locomotive must sound its horn in a four blast pattern at least fifteen seconds before occupying an intersection at sound levels ranging between 96 and 110 decibels; and WHEREAS, after significant public outreach, and upon consultation with Transportation Board, City staff has presented to the City Council a request for permission to file an application with the Federal Railroad Administration for a waiver from the federal requirement for the installation of gates at the seven intersections along the route from Laurel Street to North College Avenue that are currently equipped only with flashing lights; and WHEREAS, as a part of the application, and as an inducement to Federal Railroad Administration, staff has recommended that the City offer to install traffic signals at the intersection of Mason Street and Maple Street and to close the crossing of the intersections at Mason Street and Magnolia and Myrtle Streets; and WHEREAS, the City Council has determined that it is in the best interests of the City that the City Manager submit to the Federal Railroad Administration the proposed request for a waiver in order for a quiet zone to be established along Mason Street from Laurel Street to North College Avenue. NOW, THEREFORE, BE IT RESOLVED BY THE COUNCIL OF THE CITY OF FORT COLLINS that the City Manager is hereby authorized to submit a Train Horn Noise Waiver Petition to the Federal Railroad Administration, Rail Safety Board, to establish a quiet zone along Mason Street from Laurel Street to North College Avenue, which request shall propose the installation of a full traffic control signal at the intersection of Maple Street and Mason Street and the closure of the intersections at Mason Street and Magnolia and Myrtle Streets. - 2 - Passed and adopted at a regular meeting of the Council of the City of Fort Collins this 18th day of November, A.D. 2014. _________________________________ Mayor ATTEST: _____________________________ City Clerk