City Council
Staff Report
From: City Manager
Report Type: CONSENT CALENDAR
Lead Department: Public Works
Meeting Date: October 20, 2025
Report #:2507-4932
TITLE
Approval of Construction Contract C26195058 with JJR Construction, Inc. in an Amount Not to- Exceed $1,281,689 and Authorization for the City Manager or Their Designee to Negotiate and Execute Change Orders for Related Additional but Unforeseen Work that May Develop During the Project Up to a Not-to-Exceed Amount of $128,169 for the Fiscal Year 2026 Sidewalk, Curb & Gutter Project, Capital Improvement Program Projects PO-89003 and PO-12001; CEQA Status – Exempt under Section 15301(c)
RECOMMENDATION
Staff recommends that the City Council:
1. Approve and authorize the City Manager or their designee to execute Construction Contract No. C26195058 with JJR Construction, Inc., in an amount not to exceed $1,281,689 for the Fiscal Year 2026 Sidewalk, Curb & Gutter Project (Sidewalk Repairs (PO-89003) and Curb and Gutter Repairs (PO-12001) Capital Improvement Projects); and
2. Authorize the City Manager or their designee to negotiate and execute one or more change orders to the contract with JJR Construction, Inc. for related, additional but unforeseen work that may develop during the project, the total value of which shall not exceed $128,169.
BACKGROUND
The Public Works Engineering Services Division manages construction contracts for concrete sidewalk, driveway, curb ramp, curb and gutter repairs and maintenance at various locations throughout the City annually. The City completed its 30-year district by district repair program in 2017. That same year, the City contracted with Nichols Consulting Engineers (NCE) to evaluate the program and assess potential improvements.1 The study was completed in Spring 2019 and included surveying 20% of the City’s sidewalk network and nearly 60% of the curb 1 City Council, November 06, 2017, Agenda Item#11, SR #8611; https://portal.laserfiche.com/Portal/DocView.aspx?id=50836&repo=r-704298fc&searchid=b9596039-0379-41cc- 89d6-963b67f82655
ramps. This data was used to determine trends for future repairs and determine funding needs to maintain the 30-year sidewalk district program.
The City deferred its annual sidewalk maintenance program due to reduced funding in Fiscal Years 2021 and 2022. Funding was restored in Fiscal Year 2023 and the City resumed its sidewalk maintenance program in Fiscal Year 2024 and is continuing the district-by-district repair cycle. There was no project in Fiscal Year 2025 as funding was returned through the budget process to address higher priorities. This fiscal year‘s project is based on the data provided by the NCE study, which renumbered the sidewalk districts in order of priority based on the quantity of repairs required. Based on this ranking, repairs for this fiscal year will primarily be focused on sidewalks in districts 1 and 2 from Palo Alto Avenue to Embarcadero Road and from Alma Street to Middlefield Road. Additionally, 311 curb and gutter repair requests are included for restoration which are found in various locations around the City.
ANALYSIS
Staff recommends approval of Contract No. C261950583 as part of the program to maintain and improve the condition of Palo Alto’s sidewalk network. Each year this project addresses one or two of the 23 sidewalk districts. The City will be continuing the rehabilitation cycle with sidewalk districts 1 and 2. The work to be performed under this concrete involves sidewalk, driveway, curb ramp, curb gutter, and asphalt pavement repairs. Repair locations are shown in Attachment A.
The scope of work includes the replacement of approximately 21,530 square feet of concrete sidewalk, 1,266 linear feet of curbs and gutters, and 4,615 square feet of driveways.
Additionally, 46 curb ramps will be installed that will conform to the Americans with Disabilities Act (ADA).
Solicitation Process
On July 25, 2025, a notice inviting formal bids for the FY 2026 Sidewalk, Curb & Gutter Project was posted on OpenGov, the City’s eProcurement platform. The bidding period was 21 calendar days. The City received 10 bids, 9 of which were deemed responsive as one vendor was disqualified for failing to submit a bid bond. The 9 responsive bids from qualified contractors are listed on the attached Bid Analysis in Attachment B.
Table #1: Summary of Invitations for Bid
Project Bid Name/Number FY 2026 Sidewalk, Curb & Gutter Project (IFB 195058) Proposed Length of Project 210 calendar days
# of Bid Packages Downloaded by Contractors 41
3 JJR Construction, Inc. FY 2026 Sidewalk, Curb & Gutter Project, Contract #C26195058; https://www.paloalto.gov/files/assets/public/v/1/public-works/engineering-services/cip-contracts/c26195058_jjr- construction_cc_final-draft.pdf
Table #1: Summary of Invitations for Bid
# of Bid Packages Downloaded by Builder’s Exchanges 1
Total Days to Respond to Bid 22 calendar days
Mandatory Pre-Bid Meeting? No
Number of Bids Received 9
Bid Price Range $1,186,515 to $2,505,183
Public Link to Solicitation https://procurement.opengov.com/portal/palo-alto- ca/projects/186661
The apparent low bidder was selected based upon the base bid. The bids ranged from $1,186,515 to $2,505,183 and from 15% below to 79% above the engineer’s estimate of $1,396,591. Staff reviewed the submitted bids and recommends the acceptance of the base bid submitted by JJR Construction, Inc. in the amount of $1,186,515, and that JJR Construction, Inc. be declared the lowest responsible bidder. Staff also recommends awarding add alternates #1 and #2 in the amounts of $42,300 and $52,875, respectively, to maximize sidewalk improvements at scheduled locations and address any unforeseen locations that may need to be included in the project. The total base bid plus the add alternates totals $1,281,689. The construction contingency amount of $128,169, which equals approximately 10% of the contract value, is requested for related, additional, but unforeseen work which may develop during the project, implemented via City-approved Change Order.
Staff reviewed information and similar projects performed by the lowest bidder, JJR Construction, Inc. and found them to be the lowest responsive and responsible bidder. Staff also checked with the Contractor’s State License Board and confirmed the contractor has an active license on file. In addition, JJR Construction, Inc. successfully completed last year’s FY 2024 Sidewalk Repair ADA Improvement Project-REBID for the City, demonstrating their ability to perform this type of work.
FISCAL/RESOURCE IMPACT
Funding for this contract is available in the Fiscal Year 2026 Adjusted Capital Improvement Program Sidewalk Repairs project (PO-89003), and Curb and Gutter Repairs project (PO-12001).
The funding allocation is as follows:
Table #2: Funding Allocation
Funding Source Contract Contingency Total Encumbrance
PO-89003 $1,057,319 $105,732 $1,163,051
PO-12001 $224,370 $22,437 $246,807
Total $1,281,689 $128,169 $1,409,858
STAKEHOLDER ENGAGEMENT
Notices of sidewalk and driveway closures will be distributed to impacted parties 72 hours to 120 hours prior to the start of work. “No Parking” signs will also be posted 72 hours in advance of all work. The construction schedule will be posted on the City website and will be updated as necessary.
ENVIRONMENTAL REVIEW
This project is categorically exempt from the California Environmental Quality Act (CEQA) under section 15301(c) of the CEQA Guidelines as the project scope involves the repair, maintenance, and/or minor alteration of existing facilities. No further environmental review is necessary.
ATTACHMENTS
Attachment A: Project Location Maps
Attachment B: Bid Analysis
APPROVED BY:
Brad Eggleston, Director Public Works/City Engineer