Staff recommends that the City Council adopt the attached resolution authorizing the City Manager to execute a Consulting Services Agreement with Mark Thomas & Company, Inc., for Preliminary Engineering (30% Final Design) of the East West Connector (Quarry Lakes Parkway, Phases 3 and 4) Project, City Project No. 18-04, in the amount of $2,087,600, and appropriating $208,760 from the unassigned fund balance of the SB-1 Fund.  The Agreement is included as Exhibit B of the resolution.  

This agenda item is in alignment with the following:

Goal C, Strategy 3: Facilitate the build out of the greater Station District Area through the construction of Quarry Lakes Parkway, upgrades to the Bay Area Rapid Transit (BART) Station, completion of the pedestrian rail crossing and sale and development of City-owned land. 

Quarry Lakes Parkway project was previously known as the East West Connector roadway, which traversed Fremont and Union City from Mission Boulevard to I-880 and was sponsored by Alameda County Transportation Commission (Alameda CTC). On March 22, 2018, Alameda CTC approved the request from the City of Union City to be the project sponsor of the former East West Connector Project and identified the following tasks for the City to complete:

1. Complete the final design of the current 2011 roadway design plans;
2. Prepare a traffic study update;
3. Determine if an update, amendment or addendum is required for the approved 2009 East West Connector EIR;
4. Coordinate with transit agencies (BART, Alameda County Transit (AC Transit), Dumbarton Express & Union City Transit), adjacent cities, and pedestrian and bicycle advocate groups to ensure the design meets the needs of those interests, in terms of connectivity, safety and related concerns;
5. Execute project (design review) agreements with BART and Union Pacific for the grade separations at BART, Oakland Subdivision and Niles Subdivision;
6. Update the overall project cost estimate in the amount of $2.5 million; and
7. Report back to the Commission upon completion of this work

Union City became the Project Sponsor, responsible for the design, right-of-way certification and construction of the project. To manage the project more easily, it was also broken into segments, or phases as shown in Attachment 1.  Phases 1-4 are in Union City and extend from Mission Boulevard to Old Alameda Creek.  Phase 5 extends from Old Alameda Creek to Paseo Padre, crossing both Union City and Fremont.  The portion of the project known as Decoto Complete Streets is solely within Fremont and is managed by Fremont.  Union City and Fremont are now working together to implement each portion of the project that is in their respective city.

As the first step in meeting the tasks outlined by Alameda CTC, in August 2018, the City Council adopted Resolution No. 5374-18, which authorized the City Manager to execute the East West Connector Project Funding Agreement (PFA) No. A18-0046 in the amount of $2.5 million with Alameda CTC.  The $2.5 million would be used to update the cost estimate and complete the other tasks.  

Once Union City assumed the project, the City Council adopted Resolution No. 5444-19, which authorized renaming the I-880 to Mission Boulevard/East West Connector Project to the Quarry Lakes Parkway (QLP) Project.  This was done to reflect the roadways updated purpose as a local, multimodal corridor.

Union City continued to work on the tasks requested by Alameda CTC at the March 2018 meeting, and on November 19, 2020, City staff, in partnership with Alameda CTC staff, presented a detailed progress report to Alameda CTC.  Staff conveyed how each of the tasks had been completed, except for the finalizing the East West Connector plans.  The outdated 2011 East West Connector plans that the City was to complete did not meet current design standards for bicyclists and pedestrians. Nor did the plans meet the most recent design and engineering criteria for roadway design, seismic structures, railroad design and other project elements.  Extensive redesign and engineering analysis would be needed to bring the plans up to date.  

As a result of the presentation in November 2020, and based on Alameda CTC staff recommendations, the Alameda CTC adopted a resolution to allow the East West Connector/Quarry Lakes Parkway Project to move forward with the following funding parameters:  

1. Commit the remaining balance of 1986 Measure B funding for the East West Connector (I-880 to Mission Blvd) Project to the Quarry Lakes Parkway Project ($69.0 million) sponsored by Union City and acknowledging that the commitment fulfills the 1986 Measure B funds from the 1986 Transportation Expenditure Plan; 
2. Allocate $4.2 million of 1986 Measure B funds to design phases of Phase 1 (7^th Street Connection) and Phase 2 (Gateway Connection); 
3. Allocate $17.8 million of 1986 Measure B funds to design Phase 3 (11^th Street Connection) and Phase 4 (Grade Separations & Alvarado-Niles Connection) with the condition that full funding for all phases of the segment will be identified in the funding agreement; and 
4. Authorize the Executive Director to execute appropriate funding agreements with Union City for the design phases of Phases 1, 2, 3 and 4 of the Quarry Lakes Parkway Project up to the amount allocated in the design phases for each segment.

With these criteria from Alameda CTC, the City has continued to move the project ahead.  On October 12, 2021, City Council adopted Resolution No. 5841-21, accepting the $4.2 million grant from Alameda CTC’s PFA No. A22-0053 and authorizing the use of those funds for Final Design of Phases 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04. This is the second Project Funding Agreement.  The first Project Funding Agreement awarded $2.5 million for 2018 East West Connector, as described above.

On January 11, 2022, City Council adopted Resolution No. 5878-22, authorizing the City Manager to execute a Consultant Services Agreement, C5833, with Mark Thomas & Company, Inc. (Mark Thomas) for the Preliminary Engineering (30% Final Design) of Phases 1 and 2 for the Quarry Lakes Parkway (East West Connector), City Project No. 18-04, in the amount of $1,200,000, funded from the $4.2 million Alameda CTC grant.

Staff is now seeking Council authorization to use $1,878,840 from the existing 2018 East West Connector Project Funding Agreement No. A18-0046 for East West Connector (Quarry Lakes Parkway), City Project No. 18-04, and a 10% local match of $208,760 from the SB-1 Road Maintenance and Rehabilitation Account for a total cost of $2,087,600 to fund preliminary engineering and project cost updates for Phases 3 and 4 of QLP.

The 2011 East West Connector project identified a comprehensive storm drainage solution to address storm water capacity concerns in the Line M channel that runs from the hillside area to the Alameda Flood Control Channel.  To solve the capacity concerns, the East West Connector project incorporated a gravity flowing bypass pipe from Line M near the corporation yard on 7th Street to Old Alameda Creek near Arroyo Park.  Several large detention basins were also proposed for stormwater treatment within the East West Connector right-of-way. 

Since the City has assumed the project, the storm drain system has been reevaluated to reduce costs, improve creek restoration, and conserve land; however, the Line M bypass is still required. To prepare an updated cost estimate for Phases 1-4 as requested by Alameda CTC, and to secure project permits from the regulatory agencies for wetland mitigation, stream alteration permits and storm water treatment, additional engineering and design is required for Phases 3 and 4.  Additionally, the portions of the Line M bypass, the outfall structure into the Old Alameda Creek, and the entire roadway storm water treatment basins must be constructed in Phase 2, located adjacent to Arroyo Park and one of the first phases of the QLP project.  Therefore, design of Phases 3 and 4 must be understood to ensure that:

• Updated project cost estimates can be prepared;
• The City has adequate information to proceed with permit applications to the regulatory agencies for the entire QLP project, and
• Portions of the Line M bypass, outfall structure, and stormwater systems can be constructed as part of Phase 2.

Outreach to Regulatory Agencies and Bicycle Pedestrian Advisory Committee

The revised drainage design was presented on September 8, 2022, at an US Army Corp of Engineers inter-agency meeting for initial consultation. The project presentation is included as Attachment 2.   The regulatory agencies attending the meeting provide initial concurrence and support and directed the project team to report back with the draft federal and state permit applications for their review, discussion and consultation when the Phase 1-4 project plans are updated. The revised design was also presented to the Bicycle and Pedestrian Advisory Committee (BPAC), who also supported the new concept, see Attachment 3.

Scope of Services

With the support of Alameda CTC, Union City staff are seeking to use the remaining funds from the 2018 East West Connector PFA No. A18-0046 for preliminary engineering and project cost updates for Phases 3 and 4.  Alameda CTC recommended that once the preliminary engineering plans for Quarry Lakes Parkway, Phases 1-4, have been updated that Union City report back to the Alameda CTC in late spring 2023 on the overall status of the project with the revised cost estimates and potential phasing, along with a proposed full funding plan.

Mark Thomas & Company, in coordination with City staff and other agencies’ representatives, have developed a Scope of Services for the Preliminary Engineering (30% Design) for the East West Connector (Quarry Lakes Parkway, Phases 3 and 4), City Project No. 18-04. This engineering effort will allow Mark Thomas to provide a detailed, extensive review of the outdated 2011 East West Connector Project Plans (65%), with a focus on overall drainage system within Quarry Lakes Parkway, Phases 3 and 4.  This will include the proposed large, gravity flowing Line M bypass pipeline drainage structure system, the proposed pump station, the retaining wall structures, the Newark Aquifer concrete slab protection and the major BART and Union Pacific railroad underpass structures from Alvarado-Niles Road to 7th Street. The engineering work will include evaluating CAD drawing files, engineering and structural calculations and technical reports (geotechnical, hazardous waste, biological, etc.) to prepare the updated 30% Final Design Plans to current design standards and technical reports using the most current engineering criteria and policies and to update Quarry Lakes Parkway, Phases 3 and 4 project cost estimates.  

The cost proposal for Preliminary Engineering (30% Final Design) of East West Connector (Quarry Lakes Parkway, Phases 3 and 4) Project is $2,087,600.

There will be no fiscal impact to the General Fund to prepare Preliminary Engineering of East West Connector (Quarry Lakes Parkway), Phases 3 and 4.

The remaining project funds are estimated to be about $2.0 million from the $2.5 million Alameda CTC-East West Connector PFA No. A18-0046 grant funds.   For the proposed BART underpass structure, Union City will enter into a Preliminary Engineering Review Agreement with BART estimated at $100,000 for their oversight costs, leaving approximately $1.9 million available for the Preliminary Engineering (30% Final Design) Phase.  

On June 14, 2022, the City Council adopted Resolution No. 5951-22 adopting a List of Projects for Fiscal Year 2022-2023 funded by SB-1: The Road Repair and Accountability Act of 2017, estimated at $1,658,973, and the List of Projects includes the Quarry Lakes Parkway Project, City Project No. 18-04.  Staff is recommending that a portion of SB-1 funds be used for preliminary engineering of Phases 3 and 4.

The Consulting Services Agreement with Mark Thomas & Company, Inc. for Preliminary Engineering (30% Final Design) of East West Connector (Quarry Lakes Parkway, Phase 3 and 4), in the amount $2,087,600, will be funded with $1,878,840 from the East West Connector Project Funding Agreement No. A18-0046 in the Capital Projects Fund (Account Number 4100-3199-91804-54110) for East West Connector (Quarry Lakes Parkway), City Project No. 18-04, and a 10% local match of $208,760 from the SB-1 Road Maintenance and Rehabilitation Account (RMRA) Fund (Account Number 2515-3199-91804-54110) for the East West Connector (Quarry Lakes Parkway, Phases 3 and 4) Project, City Project No. 18-04. The state funds will allow Mark Thomas the option and flexibility to utilize Alameda CTC’s Local Business Enterprise (LBE) Program requirement.

Staff recommends that the City Council adopt the attached resolution authorizing the City Manager to execute a Consulting Services Agreement with Mark Thomas & Company, Inc., for Preliminary Engineering (30% Final Design) of East West Connector (Quarry Lakes Parkway, Phases 3 and 4) Project, City Project No. 18-04, in the amount of $2,087,600, and appropriating $208,760 from the unassigned fund balance of the SB-1 Fund to account number 2515-3199-91804-54110.