Subject:        STATUS REPORT – ALUM ROCK PARK IMPROVEMENTS

 

COUNCIL DISTRICT:   Citywide

SNI AREA:  N/A

 

The purpose of this memo is to provide a status report on the improvements to Alum Rock Park related to the closure of Alum Rock Avenue and the opening of Penitencia Creek Road within Alum Rock Park. 

 

RECOMMENDATION

 

Accept the staff recommendations as follows:

 

Direct staff to develop a Capital Improvement Program (CIP) project to restore the banks of the Penitencia Creek channel and landscape and refer it to the FY 2002-2003 CIP process.

 

BACKGROUND

 

On May 1, 2001, the City Council approved the memo entitled Alum Rock Park Access and Crothers Road.  This memo approved the recommendations from the staff report entitled Alum Rock Park Status Report, dated April 27, 2001.  The following are the recommendations of that report, with a brief summary of staff’s actions:

 

a)      Approve the proposed capital improvements to the Penitencia Creek Park Entrance and Trail within Alum Rock Park as part of the 2002-2006 Capital Improvement Program for Parks & Community Facilities.

 

b)      Continue to work with the affected neighborhood to calm traffic on Penitencia Creek Road.

 

c)      Continue to prohibit public vehicular traffic on Alum Rock Avenue between Crothers Road and Penitencia Creek Road.  Authorize the use of the road for service vehicles, emergency vehicles, pedestrian and equestrian and bicycle traffic only.

 

d)      Continue to prohibit public vehicular traffic on Crothers Road between Alum Rock Avenue and Miradero Road.

·        Completed

 

Furthermore, the memo entitled Alum Rock Park Access and Crothers Road directed staff to:

 

1.      Implement traffic and parking control and pedestrian safety measures on Penitencia Creek Road and Alum Rock Avenue.  These should be implemented as soon as possible, and the Administration is directed to work with county and state agencies as necessary to move ahead quickly. 

 

2.      Implement measures to ensure pedestrians use the Creek Trail and stay off of Penitencia Creek Road.  These measures should at least include improved signage at the entrance of Alum Rock Park, at Quail Hollow/Eagle Rock Parking Lot, at the intersection of Alum Rock Avenue and Penitencia Creek Road, and at both entrances of the Rusticlands Picnic Area.  Other appropriate measures should be considered as necessary to achieve this goal. 

 

3.      Work with the community to develop and implement a plan to decrease the impact of fire along Crothers Road.

 

4.      Work with the County of Santa Clara to determine feasibility, cost, and value of repairing Crothers Road for only emergency access, and report back to Council within the next 120 days.

 

5.      Research and identify all possible sources of funding to fully reopen Alum Rock Avenue and Crothers Road for long-term and safe public use and report back to Council within the next 120 days.  This effort should be coordinated with County staff as appropriate.  A recommendation to Council regarding further feasibility studies should be brought forward with information regarding likely outside funding sources within the next 120 days.

 

ANALYSIS

 

Research and Identify All Possible Sources of Funding to Fully Reopen Alum Rock Avenue and Crothers Road for Long-Term and Safe Public Use, And Recommend Further Feasibility Studies

 

Norfleet Consultants was hired to provide geologic technical data for this report.  Norfleet Consultants stated that although the hillside may be partially stabilized, the cost to do so would be fiscally and environmentally excessive.  The active landslide complex is approximately 375 feet wide and some parts of the slide may be as much as 75 feet deep.  The slide has been active on an intermittent basis for thousands of years and, absent a massive stabilization effort, will continue to move in very wet years in the future.  The slide reactivated in 1998 as a result of the combination of extremely heavy rainfall during a six-week period in January and February and ongoing erosion of the toe of the slide by Penitencia Creek.  The slide also moved to a lesser degree in 1983 and 1987 when rainfall patterns and amounts were similar, but the rain was spread out over a wider time period.  Absent a massive stabilization project that would cause significant environmental damage to the park and Penitencia Creek--and for which regulatory permits may be impossible to obtain--the slide will continue to move intermittently for the foreseeable future.

 

Crothers Road and Alum Rock Avenue Repairs

 

As previously discussed with the Council, long term solution(s) to fully reopen Alum Rock Avenue and Crothers Road include the following options:

 

1.      Constructing an A-Frame concrete pier structure with Tie-Backs into the hillside under Alum Rock Avenue.  As currently envisioned, the piers would extend down to 110 feet.  A concrete beam would tie the piers together at the top and serve as the base for Alum Rock Avenue.  The estimates indicate this repair would cost over $6 million--possibly much more--and would require over three years to construct.  Since parts of the roadway would still continue to move incrementally after completion of the project, ongoing maintenance would be required.  There is no guarantee this alternative would result in a viable long term solution for Alum Rock Avenue. 

 

2.      Constructing a bridge across the slide area on Crothers Road to reconnect the stable portions of Crothers Road.  This proposal requires a structure 600 feet long and 30 feet wide.  The foundation involves deep piers with grade beams and tie-backs similar to the proposal for the Alum Rock Park Entrance Road.  The bridge proposal is estimated at $12 million dollars exclusive of any land acquisition that may be required.  This proposal differs from the A- Frame structure in that it is truly a bridge spanning the slide area in three or more sections.  The hillside would continue to move under the bridge structure, therefore this repair method does not stabilize the hillside.

 

Due to the complexity and scale of the geotechnical investigation necessary to determine exact design parameters for either project, a great deal of uncertainty remains regarding the feasibility and cost of either proposal.  In addition, it is not clear whether the various environmental regulatory agencies will allow either type of project to be constructed in such environmentally sensitive areas given the magnitude of the environmental impacts that will result from construction.  There are no inexpensive options for re-opening either Alum Rock Avenue or Crothers Road for long-term public use. 

 

If the decision is made to move forward regarding re-opening either Alum Rock Avenue or Crothers Road, the next step in the process would be to retain appropriate geological/ geotechnical and environmental consultants to perform extensive studies of the landslide and determine whether the necessary permits could be obtained.  Staff estimates the combined costs of such studies to be approximately $750,000.

 

PRNS has explored possible sources of funding to fully reopen Alum Rock Avenue and Crothers Road for long-term and safe public use without attempting to stabilize the entire landslide.  John Montgomery, the City’s lobbyist in Washington D.C., has researched possible funding sources with members in Congress.  The City’s lobbyist in Sacramento also researched possible state funding to support this need. Both lobbyists have stated that no funds are available to support the stabilization of the hillside, or the repair of the roadways. 

Given the geologic complexity to stabilize the hillside, Norfleet Consultants states that this slide will continue to move indefinitely.  In light of the difficulties, uncertainties, and significant costs inherent in attempting to re-open either Alum Rock Avenue or Crothers Road, staff does not recommend any further study be done for these areas

 

Toe Buttress Repair

 

Staff consulted with Norfleet Consultants to provide preliminary cost estimates for toe support of the Crothers Road landslide at the Penitencia Creek.  The cost to remove the toe of the landslide along the Penitencia Creek and construct a reinforced earthen buttress to provide support for the toe of the landslide is in the range of $900,000 to $1,300,000.

 

This cost estimate only includes grading, geotextile reinforcement, subsurface drainage, rip-rap, mobilization, engineering and construction management.  It is a minimum size estimate only.  Design level investigations may require the buttress to be significantly larger both in size and cost. 

 

The estimate does not include the cost of obtaining permits, cost of rerouting or covering Penitencia Creek, replacement of trees/vegetation, cost of pre/post construction biological/vegetation/archeological/creek surveys, city/park expenses, and the repair or replacement of adjacent park facilities.  These items could significantly increase the time and cost of the repairs.  The project could take as long as five years to complete at a cost exceeding  $3,000,000.

 

A toe buttress may stabilize the lower part of the landslide complex, but will not prevent movement of the upper part of the landslide.  The landslide complex is quite long, and consists of several linked blocks.  Over time, the upper blocks will continue to deform (slide downhill) until they snag up against the toe buttress.  Movement of the upper blocks could be in the range of several feet both horizontally and vertically, and it could take 5 to 20 years for this to occur.

 

This type of repair will not, and is not intended to prevent all movement of the landslide complex.  After the complex has stabilized, it may deform under very wet conditions, but it should not experience large-scale movement in the range of 5 to 10 feet.

 

Due to the complexity of the upper part of the landslide complex, staff does not recommend a repair or stabilization method for the remainder of the landslide.  The landslide complex, with its multiple linked blocks, will continue to move indefinitely.   The environmental and financial costs of any repair method for this area would be excessive.

 

Bioengineered Creek Bank Restoration

 

Norfleet Consultants suggested an alternate method to potentially minimize the effects of the Penitencia Creek on the toe of the Crothers Road landslide.  Norfleet suggested restoring the banks of the Penitencia Creek in the area of the toe to a bioengineered natural setting. This plan would include creating a flood plain area across from the toe.  This type of restoration will not, and is not intended to, prevent all movement of the landslide complex. 

 

Norfleet Consultants were not able to provide a cost estimate for this type of a project.  PW and PRNS are currently designing other restoration repairs to the banks of the Penitencia Creek within Alum Rock Park.  The repair method that Norfleet Consultants suggests is similar to the projects being developed for the Alum Rock Park 1998 Storm Damage Repair Project.  PW and PRNS have developed the Alum Rock Park Riparian Management Plan Draft as part of the Alum Rock Park 1998 Storm Damage Repair Project.  This riparian management plan would provide the basis for the repair method suggested by Norfleet consultants.  Based on the area of the proposed flood plain, the linear distance of the creek area to be restored, obtaining permits, cost of rerouting Penitencia Creek, replacement of trees/vegetation, cost of pre/post construction biological/vegetation/archeological/creek surveys, city/park expenses, and the repair or replacement of adjacent park facilities, the project is estimated to cost between $500,000 and $1,000,000.

 

The recommended source of funds for this proposed project is the City-Wide Construction and Conveyance Tax Fund.  If this solution is recommended, the project can be referred to the Capital Budget process for FY 2002-03. The project would include appropriate geological/geotechnical and environmental consultants to perform extensive studies of the creek area and determine whether the necessary permits could be obtained. The start of this project will be contingent upon obtaining all required permits and associated environmental reviews.

 

Restoring the toe/creek bank will preserve the ecological resources of the riparian habitat along the Penitencia Creek in Alum Rock Park and in time it may decrease the rate of hillside movement.  If the rate of movement is slowed, this may make it feasible to reconsider repairing and reopening Alum Rock Avenue and Crothers Road to some vehicular traffic. The bioengineered repair method is consistent with the Alum Rock Park Riparian Management Plan Draft.  The Alum Rock Park Riparian Management Plan Draft provides a comprehensive set of goals, policies, and management actions that integrate watershed resources and reflects the unique quality of the park’s riparian and aquatic resources.  The Penitencia Creek in Alum Rock Park provides habitat for a number of species that are listed as a species of concern by the State of California, and/or as a candidate for listing as endangered, is listed as threatened, or is a species of special concern by the Federal government.  Restoring the toe/creek bank will improve the habitat of the area, thus the survivability of these species.  This will in turn improve the ecosystem of Alum Rock Park.

 

Restoring the toe/creek bank will also benefit the park and downstream communities by improving the creeks capacity to absorb high creek flows during heavy winter rains. The potential effect will be felt by the downstream neighborhoods by a reduction of flood occurrences.

 

Alum Rock Park Penitencia Creek Parking Lot and Creek Trail - Capital Improvements

 

PRNS  has meet with the PW to initiate the improvements to the Penitencia Creek Trail and the Penitencia Creek parking lot.  These projects are included in the 2001-2006 CIP for Parks & Community Facilities.

 

PW staff stated that the preliminary schedule for the improvements to the Penitencia Creek Parking Lot and Creek Trail will be as follows:

 

Project initiation – September 2001

Preliminary design completion – November 2001

Final design completion – March 2002

Bid process – April 2002

Construction contract awarded – May 2002

Project completed – October 2002

 

Work With the Affected Neighborhood to Calm Traffic on Penitencia Creek Road

 

In addition to meeting with the public at the community meetings hosted by Council members Reed and Campos, DOT has met with affected residents regarding the location of the road bump on the County portion of Penitencia Creek Road. DOT specifically met once with a resident regarding the road bumps, and once regarding stop signs on Penitencia Creek Road. DOT considered the resident’s comments when approving the proposed installation location.  DOT has also responded to a number of phone calls regarding the status of the traffic calming measures and based upon additional resident input has increased the use of NASCOP to include weekend and mid-day deployments.  Higher NASCOP enforcement levels will occur during the warmer months.  It will be scheduled regularly, but on a random basis to ensure effectiveness.

 

Implement Traffic and Parking Control and Pedestrian Safety Measures on Penitencia Creek Road and Alum Rock Avenue

 

PRNS staff has met with representatives from the California Highway Patrol (CHP), Santa Clara County Sheriff’s Office (SCCSO), Santa Clara County Department of Roads and Airports (SCCDRA) and various City departments to ensure their commitment to public safety and to deal with traffic and parking issues on Penitencia Creek Road and Alum Rock Ave.  The CHP and SCCSO have stated they will respond to requests for service from park staff to enforce parking and traffic laws in the unincorporated areas adjacent to Alum Rock Park.

 

The CHP does not track calls for service in a way that is meaningful for this report. Therefore, the CHP could not provide any data on their traffic and parking enforcement.  The CHP did state they have responded to calls for service in the neighborhoods adjacent to Alum Rock Avenue and Penitencia Creek Road.  Park staff has noticed an increase in CHP presence in and around the roadways surrounding Alum Rock Park.

 

The SCCSO does track calls for service for the Alum Rock Park area, and was able to provide staff with data for this report.  The SCCSO stated that they responded to approximately 15 calls for service between January 1, 2001 and September 20, 2001.  Sheriff’s Deputies handled approximately15 other self initiated events during this period.  Sheriff’s Deputies also logged daily patrol checks in the Alum Rock Park area.  Both calls for service and self initiated calls were characterized as vehicles or people who were not known to the residents, noise and litter complaints, and family or juvenile disturbances.  Of all the calls, approximately 13 occurred during daylight hours, approximately 5 resulted in parking citations, and an additional 5 resulted in the vehicles being towed and cited. 

 

Park staff has met with representatives from the SCCDRA to work on parking control signage on the unincorporated roadways.  Traffic engineers from the SCCDRA stated that they would be installing a total 18 no parking signs on Alum Rock Avenue, Cannon Vista Drive, Crothers Road, Chula Vista Drive, Canyon Drive, and the frontage road that runs along Alum Rock Avenue from Crothers Road to Brundage Drive.  They will also be installing a red painted asphalt curb on the frontage road that runs along Alum Rock Avenue from Crothers Road to Brundage Drive.  The SCCDRA expects to have the signs and berm installed by October 12.

 

This additional parking control signage eliminates the confusion of where the motoring public can park in this area.  It also removes hazardous parking that until now blocked access for emergency vehicles.  Additionally, the posted no parking areas will assist the CHP and SCCSO with parking enforcement on the unincorporated roadways around Alum Rock Park. The intended purpose of this parking control signage is to reduce the impact of parking related to Alum Rock Park on the surrounding neighborhood.

 

PRNS has provided extra staff and signage at the Alum Rock Avenue entrance to Alum Rock Park on weekends and holidays to redirect visitors to the new entrance.  Park staff estimates that over 1,000 flyers have been distributed at this location.  Approximately 100 vehicles per weekend day in June have been redirected to the new entrance.  In July and August, the number of vehicles coming to the closed Alum Rock Avenue entrance dropped to approximately 50 vehicles per weekend day.  Staff is noticing that one third of the vehicles driving to the closed Alum Rock Avenue entrance are returning visitors who have already been advised of the road closure.  Park informational flyers to encourage compliance with posted speed limits and to encourage usage of the Creek Trail are also available.

 

Increased police patrols have occurred both inside Alum Rock Park and along Penitencia Creek Road leading to the park at the request of the residents living near the park. The Patrol Division, Horse Mounted Unit, and the Traffic Enforcement Unit have increased their presence in the area. Each patrol in an area is not documented since the officers go into an area for more police presence but do not put themselves out of service so they are available for emergency responses.  Therefore, the time they spend in the area to deter violations is not captured in the computer system. Initially citations and warnings totaled 80 during the last two weeks of May, and the first two weeks of June. These numbers took a dramatic drop during the next four weeks to 36. During these last four weeks the citations totaled 48. Complaints from the residents related to the late night drinking in the area leading to the park have decreased to zero.

 

DOT has installed road bumps and centerlines with raised reflectorized markers within Alum Rock Park.  Additionally, DOT is working with the County to install road bumps on the unincorporated portion of Penitencia Creek Road just outside of Alum Rock Park, as that portion of the road is under County jurisdiction.  At DOT’s request, the County is fast-tracking the encroachment permit process to allow the installation of the road bumps.  DOT expects to complete the permit approval process with the County in the next two weeks and proceed with the installation of the road bump.

 

DOT has also implemented NASCOP enforcement along Penitencia Creek Road, and the NASCOP data indicates that the percentage of drivers exceeding the speed limit by 10 miles per hour or more ranges between four and eight percent, which is between low and average for this type of roadway. 

 

August weekday 24-hour traffic count data shows average and 85th percentile speeds have remained the same on Penitencia Creek Road since before it was opened to the park.  However, there has been a three-mile per hour increase in the 85th percentile speed east of Toyon Avenue.  Most weekday speeding occurs during mid-day and before the morning rush hour. 

 

NASCOP will be used regularly during the middays in a manner similar to that mentioned above.  In an effort to assist motorists in identifying the new entrance route, DOT has installed additional enlarged signs that provide direction to Alum Rock Park from Alum Rock Avenue, White Road and McKee Road.

 

DOT will provide information gathered by the deployment of NASCOP to the Police Department.  This information will assist the Police Department in identifying times and locations so that they can better manage their resources.

 

DOT staff also researched Councilmember Reed’s request to paint speed limits on the pavement of Penitencia Creek Road.  Past experience in San Jose has shown that such markings work for short periods of time before portions of the marking are worn away by tire wear.  Additionally, the reflective coatings flake off.  Both of these failures of the street markings render them ineffective.  However, a longer lasting and more effective solution would be the installation of additional, over-sized speed limit signs.  The additional signs will be installed by the end of October.

 

DOT installed new gates across Crothers Road to replace the removable bollards and is installing parking prohibition signs on the City right-of-way adjacent to the Alum Rock Avenue closure fence.  These new signs will be installed by the end of October.  These measures are in response to public concerns over parking intrusions by park users who choose not to use Penitencia Creek Road.

 

Implement Measures to Ensure Pedestrians Use the Creek Trail and Stay Off of Penitencia Creek Road

 

PRNS staff has installed trail signage inside of Alum Rock Park that directs trail users onto Penitencia Creek Trail and off of Penitencia Creek Road.  The sign locations include the Penitencia Creek Road entrance, Quail Hollow Bridge area, Rusticlands area, and Creek Trail egresses onto Penitencia Creek Road and Alum Rock Avenue.  Additionally, park staff has laid telephone poles lengthwise from the Penitencia Creek Road entrance gate to the Penitencia Creek stairs/trail head.  This was done to provide a distinguishable path to the trailhead and encourage Creek Trail usage.

 

City staff is researching the feasibility of developing Reach I of the Penitencia Creek Trail.  This particular section of trail will connect to Alum Rock Park near the new Penitencia Creek entrance.  Staff has identified possible properties for acquisition.  These acquisitions may be funded through the Santa Clara County Open Space Authority.

 

Work with the Community to Develop and Implement a Plan to Decrease the Impact of Fire along Crothers Road

 

PRNS and the Fire Department are  working with the community to address fire issues within and adjacent to Alum Rock Park.  Park staff has completed the maintenance of the park’s firebreaks along the North rim of the park.  At the request of residents that live along Crothers Road and Peacock Gap Road, park staff has contracted the removal of eucalyptus trees and pine trees that were determined to pose a hazard.  The remaining hazardous trees in this area will be removed by October 12.  Park staff coordinated the control and removal of grasses and brush along the Crothers Road park boundary.   Park Rangers continue to monitor the weather and fire conditions inside the park.

 

The Fire Department has met on several occasions to discuss the Urban Wildland-Interface Pre-fire Plan for the East Foothills area, including Alum Rock Park.  Participating agencies have included PRNS, OES, California Department of Forestry (CDF), San Jose Information Technologies Department, San Jose Police Department, Santa Clara County Sheriff's Department, and others.  Fire Department staff continues to make progress in compiling information and coordinating meetings with participating agencies.

 

The Office of Emergency Services and Councilmember Reed hosted two recent community meetings to provide the public with information regarding fire preparedness.  Those meetings were held on September 17 and 24, 2001.  Staff from the Fire Department, Police Department, San Jose Prepared, PRNS, CDF, and the Valley Transportation Authority all discussed programs and actions they are doing to minimize fire danger to the community, and actions the community can take to be prepared for emergency situations. 

In addition, the Fire Department has:

 

q       Met with DOT to discuss and evaluate road bumps that were installed on Penitencia Creek Road inside of Alum Rock Park, as well as the proposed road bumps to be placed along the road approaching the entrance to Alum Rock Park.

q       Met with the Country Club Heights homeowners association to address their concerns regarding vegetation issues in the area surrounding this residential development.

q       Provided the Alum Rock Park Ranger staff with Knox lock boxes to be placed on Crothers Road and the Penitencia Creek Road entrance to Alum Rock Park for access to keys for entrance by emergency fire apparatus.  Park staff installed the Knox lock boxes.

q       Continued to remain informed of emergency access, traffic flow, water supply and vegetation management issues related to Alum Rock Park and the surrounding interface neighborhood. Also made dispatch adjustments to respond to emergencies within Alum Rock Park.

q       Distributes daily weather reports to all Fire stations citywide to develop awareness for potential hazardous fire conditions. California Department of Forestry (CDF) response status is also broadcast.

q       Contributed to the community meetings held by the Office of Emergency Services and Councilmember Reed.

 

Work with the County of Santa Clara to Determine Feasibility, Cost, and Value of Repairing Crothers Road for Only Emergency Access

 

At the beginning of August, PW and the County met and discussed the construction of a retaining structure for Highland Drive above Crothers Road.  Constructed has commenced, the structure is comprised of three-foot diameter piers over ninety feet deep spaced every six feet.  It has three rows of tie-backs and is over 120 feet long.  Completion of this $1.5 million structure is scheduled for mid-December.  The County is using Crothers Road for construction access.

 

Emergency access to Crothers Road was facilitated by the installation of the new gates by DOT.  Upon completion of the Highland Drive retaining structure by the County, Crothers Road will be available for emergency access only.  DOT has completed minimal grading and addition of base rock material so that lightweight emergency vehicles can have access on this stretch of Crothers Road.  The slide continues to move and expand even during dry weather.  It will be continuously monitored for excessive displacement and closed to emergency access should hazardous conditions develop.

 

COORDINATION

 

Staff from the Departments of Public Works, Transportation, Fire, Police, and Parks, Recreation and Neighborhood Services continues to work together to ensure that the Council’s direction is met.  Staff has also coordinated their efforts with the County of Santa Clara and the State of California.

 

 

MARK LINDER

Director of Parks, Recreation

  and Neighborhood Services