January 6, 2026 Page 1 of 4
Economic Development
DATE: January 6, 2026
TO: Mayor Martinez and Members of the City Council
FROM:
Nannette J. Beacham, Director, Economic Development
Department
Jordon Nesbitt, Administrative Assistant Arts & Culture SUBJECT:
Contracts with Hungry Ghost Productions and Debra
Koppman for Public Art Mural and Mosaic Tile Project
FINANCIAL IMPACT: The total project cost is $250,000, funded entirely by Arts & Culture private developer public art funds associated with the Allen Brothers Steak and Seafood Facility project (Account String: 13564165-400201-36041). The total
appropriation for the project is $250,000; the mosaic
tabletops are budgeted at $40,000 within that total. There is no impact to the General Fund.
PREVIOUS COUNCIL
ACTION:
July 2, 2024
STATEMENT OF THE
ISSUE:
In 2024, the City issued an Request for Proposals for the art installation at Allen Brothers Steak and Seafood
Facility (211 West Cutting Boulevard) to create mural and mosaic tabletops as part of its public art program. One of the initial artist approved by City Council on July 2, 2025, later withdrew after being unable to secure a C-54
license (California specialty license required for ceramic and mosaic tile installation) and meet City insurance
requirements. The City then selected project runner-up
Debra Koppman, who holds the required C-54 license.
City staff seeks City Council approval of two developer- funded contracts: $210,000 with Hungry Ghost
Productions (artist David Burke) for a large-scale mural and $40,000 with Debra Koppman for the mosaic
tabletops.
AGENDA
REPORT
January 6, 2026 Page 2 of 4
RECOMMENDED ACTION:
APPROVE two contracts with (1) Hungry Ghost
Productions for the design, fabrication, and installation of a mural in an amount not to exceed $210,000; and (2)
Debra Koppman for the design, fabrication, and
installation of mosaic tabletops in an amount not to
exceed $40,000 for work associated with the Allen
Brothers Steak and Seafood Facility Public Art Project, funded by private developer arts contributions, for terms beginning January 1, 2026, through December 31, 2026
– Economic Development Department/Arts & Culture
(Nannette J. Beacham 510-621-1306/Jordon Nesbitt 510-
620-6787).
BACKGROUND
Per the City’s Public Art Program Ordinance (RMC §6.50.030), private development must either install public art equal to one percent (1%) of building valuation or pay an in-lieu fee.
The Allen Brothers development satisfied this requirement via an in-lieu contribution and delegated on-site public art project management to City Arts & Culture staff.
The City issued an Request for Proposals (RFP) on December 22, 2023 for a 250-linear- foot mural and eight mosaic tabletops (located in a staff seating/patio area) with a proposal deadline in February 2024 (Attachment 1). A five-member selection panel including representatives from Prologis, Allen Brothers, an East Bay arts administrator, and two commissioners from the Richmond Arts and Culture Commission (RACC) reviewed 15 applications and advanced semi-finalists for presentation. (Attachment 2).
The total public art budget was set at $250,000, funded entirely by private developer public art funds. On July 2, 2024, City Council appropriated $250,000 in Arts & Culture private developer funds and approved two artist contracts: Hungry Ghost Productions – $210,000 mural and Wilma Wyss – $40,000 mosaic tabletops (Attachment 3).
Prior to contract execution, artists were required to meet City contracting standards, including State contractor licensing, City vendor registration, and full Type 1 insurance compliance (General Liability, required endorsement language, and Contractors Pollution Liability for murals). While mural projects have historically required a C-33 Painting and Decorating contractor license, California Senate Bill 456 eliminates this requirement for muralists effective January 1, 2026, reflecting a statewide shift in how mural work is classified and regulated.
This regulatory change supports City Council’s prior approval of David Burke (Hungry Ghost Productions) for the Allen Brothers mural. Mr. Burke is an experienced Bay Area muralist with more than two decades of professional practice and a demonstrated record of delivering large-scale civic artworks in compliance with municipal standards. His studio oversees the full scope of mural production—design, fabrication, and installation—using January 6, 2026 Page 3 of 4
durable materials and safety-conscious practices. His work is known for site-specific design that reflects local history and community identity, ensuring both artistic quality and responsible project execution.
PROJECT DETAILS
1. Mural Contract — Hungry Ghost Productions ($210,000) The proposed contract with Hungry Ghost Productions (artist: David Burke) covers the design, fabrication, and installation of a site-specific mural that reflects Richmond’s industrial shoreline, cultural diversity, and historic ties to commerce and transportation.
The RACC recommended this artist following review and public panel scoring.
The mural component aligns with City public art goals to: activate the facility’s public- facing frontage and strengthen the West Cutting Blvd. corridor within the Arts & Culture Strategic Plan.
2. Mosaic Tabletop Contract —Debra Koppman ($40,000)
The mosaic tabletop component was originally awarded to artist Wilma Wyss, with artist Debra Koppman ranked as the runner-up. During contracting, the following occurred:
Date Action
Feb 24, 2025
Staff issued final notice to Ms. Wyss summarizing all missing insurance items, CLSB contractors requirements and directions to share them with her broker or whom ever manages her insurance needs, as they have continued to submit noncompliant material.
March 10, 2025 Ms. Wyss informed staff she will withdraw from the project (Attachment 4).
To maintain schedule and procurement integrity, staff contacted runner-up artist Debra Koppman, who immediately submitted a valid C-54 license, a requirement for permanent mosaic tile installation, which involves setting, bonding, and grouting tile materials, and all required insurance endorsements, fully compliant with City contracting thresholds.
Koppman is an accomplished Bay Area artist and licensed C-33 and C-54 Mural and mosaic specialist with extensive experience in public art design, fabrication, and installation. Her work blends contemporary artistic expression with durable, site- responsive craftsmanship, and her mosaic practice is recognized for its vibrant color, intricate patterning, and strong storytelling elements.
Koppman has completed multiple public and private commissions across the region and is fully versed in municipal contracting, safety standards, and long-term maintenance considerations. Her practice emphasizes community relevance and high-quality, enduring artwork tailored to each project site.
Debra Koppman will design, fabricate, and install eight mosaic tabletops, coordinated with the mural team for stylistic alignment. Her concept integrates themes of: Ohlone heritage, January 6, 2026 Page 4 of 4
Commercial fishing & shipyards, Japanese-American nursery history, Richmond water/nature, and local culture.
3. Project Schedule & Term
Both contracts are structured for the term: January 1, 2026 – June 30, 2026 This allows sufficient time for final design review, fabrication, coordination with developer’s operational schedule, on-site installation, and RACC acceptance.
Approval of these contracts will allow the City, developer, and Richmond Arts and Culture Commission to deliver a cohesive, high-quality public art project that complies with Richmond Municipal Code §6.50.030 and reflects community values through site-specific artistic interpretation (Attachments 5 and 6). Upon City Council approval, staff will execute the agreements, verify insurance and business licensing, finalize designs, coordinate fabrication and installation, conduct required inspections, and return to the Richmond Arts and Culture Commission for acceptance of the completed artworks into the City’s Public Art Inventory.
SYNERGYISTICE POLICIES
Supports the City’s Arts and Culture General Plan 2030 GOAL AC1: Celebrate diversity and raise social and cultural awareness of Richmond’s citizens and visitors through a variety of artistic programs and forms of expression. Supports the City’s Arts and Culture General Plan 2030 GOAL AC2: Weave arts and culture into all aspects of community life to build civic pride and identity, improve quality of life for residents and visitors
DOCUMENTS ATTACHED:
Attachment 1 - RFQ/P
Attachment 2 - Allen Brother Mural and Mosaic Tile Scoring Matrix Attachment 3 - July 2, 2024 Council Approval of Allen Brothers Public Art Contracts Attachment 4 - Wilma Wyss Withdraw Statement
Attachment 5 - Drafted Contract for Hungry Ghost Productions Attachment 6 - Drafted Contract for Debbie Koppman