DISCUSSION
City of San Bernardino
Request for Council Action
Date: October 7, 2026
To: Honorable Mayor and City Council Members
From: Lynn Merrill, Director of Public Works
Department: Public Works
Subject: Award of Construction Agreement of the San Bernardino Library Norman Feldheym Branch Improvements Project
to Tovey/Shultz Construction, Inc. in the amount of
$8,323,998.45 and approval of a Task Order for Construction Management and Inspection Services with TKE Engineering, Inc. intheAmountof $270,761.(Ward 1)
Recommendation:
It is recommended that the Mayor and City Council of the City of San Bernardino, California:
1. Approve the award of a Construction Contract with Tovey/Shultz Construction, Inc., in the amount of $8,323,998.45 for the San Bernardino Library Norman Feldheym Branch Library Improvements Project; and
2. Approve a Task Order with TKE Engineering, Inc. for Construction Management and Inspection Services for the Project in an amount not to exceed $270,761; and
3. Authorize a Project contingency budget in the amount of $644,606.96 for unforeseen costs necessary to complete the Project, bringing the total Project budget to $10,224,196.41; and
4. Authorize the Director of Finance Management Services to amend the FY 2026/27 Capital Improvement Plan budget with an additional $469,754.70 from the Public Improvement Fund, $500,000 from the Public Use Facilities Fund, $75,000 from the Library Facilities Fund, $516,246.55 of Library Facilities Funding from the Feldheym Library Improvement Project (8940), and $2,253,825.16 of Measure S Funding from the selected Alternative for the Project; and
5. Authorize the City Manager or designee to execute all documents with Tovey/Shultz Construction, Inc. and TKE Engineering, Inc. necessary to implement the Project; and
6. Authorize the City Manager or designee to expend the contingency fund, if necessary, to complete the Project; and
7. Take one of the following actions:
Alternative A
Approve Resolution No. 2026-168 Authorize the reallocation of Measure S funding from multiple City Projects up to an amount not to exceed $2,253,825.16 to provide sufficient funding to complete the Feldheym Library Branch Improvements Project. or alternatively
Alternative B
Approve Resolution No. 2026-169 Authorize $2,253,825.16 from the City’s Measure S Fund Balance to provide sufficient funding to complete the Feldheym Library Branch Improvements Project.
City Manager's Comments
The City Council has three alternatives based on the fact that the construction bid exceeds the initial budget for this project and would require $2,253,825 in additional Measure S Funds. The City Council could either take from the General Fund Fund Balance or by asking Public Works to bring back options to reduce other Measure S projects or a combination of the two approaches.
Another alternative would be to reject all bids and rebid the project. To do that would require substantially reducing the scope of the project and would require the use of State Funds to be extended.
Executive Summary
The proposed Construction Contract with Tovey/Shultz Construction, Inc. will commence the construction phase of the Norman F. Feldheym Public Library Improvement Project (“Project”). The Project includes critical structural repairs, replacement of the HVAC system and windows, electrical and lighting upgrades, security system upgrades, repairs to interior walls and improvements to physical accessibility throughout the facility.
These renovations will address decades of deferred maintenance and modernize the library's infrastructure, which has remained largely unchanged since the building was constructed in 1985. Upon completion, the improvements will enhance the building's safety, energy efficiency, accessibility, and overall functionality for library patrons and staff. The project is funded through Public Improvement Fund, Public Use Facilities Fund, and Library Facilities Fund.
Background
The Norman F. Feldheym Public Library, located at 555 West 6th Street, is a critical resource for the community, especially for residents facing economic and linguistic barriers. Since its construction in 1985, the facility has developed several structural and operational deficiencies. The library suffers from leaking windows, outdated electrical wiring, a deteriorating foundation, and an inefficient HVAC system that fails to regulate temperatures effectively. Additionally, inadequate lighting contributes to excessive heat and high energy costs. The Project will address these issues through essential maintenance, energy efficiency upgrades, and modernization efforts to improve both digital and physical accessibility.
City staff, in collaboration with architectural and engineering experts, conducted a comprehensive assessment of the building’s condition. This evaluation confirmed the need for extensive renovations, including HVAC improvements, electrical and lighting upgrades, window replacements, and enhancements to security systems.
The Project will also address applicable accessibility requirements and improve access to the facility for library patrons and staff.
On December 6, 2023, the Mayor and City Council accepted a grant from the California State Library Building Forward Library Facilities Improvement Program in the amount of $6,409,370.00 to help fund the Project. The grant funds may be used for eligible Project costs associated with the renovation and modernization of the library.
On January 17, 2024, the Mayor and City Council approved a task order with Transtech Engineering for program management services for the Norman F.
Feldhym Library Revitalization project, as part of the existing Professional Services Agreement for On-Call Engineering Services and authorize the Finance Director to issue a purchase order in the amount of $197,600 for the Feldheym Library Project.
On February 19, 2025, Bell Design Group (BDG) was awarded a Design Services Agreement to provide conceptual design, construction design, and construction support services in the amount of $319,000.
On December 3, 2025, the Mayor and City Council of the approved Amendment No.1 to the Design Services Agreement with Bell Design Group in the amount of $78,700 for the Norman F. Feldheym Public Library Improvement Project, increasing the not to exceed amount to $397,700.
Discussion
The completion of the design phase marks a significant milestone for the Norman F Feldheym Public Library Facilities Improvement Project and allows the City to proceed with the construction phase. The proposed construction constract with Tovey/Shultz Construction, Inc. will implement the approved plans and specifications developed during the design process, including critical structural repairs, HVAC and window replacements, electrical and lighting upgrades, security system upgrades, repairs to interior water damage, foundation repairs, and accessibility improvements.
The Project was publicly advertised for competitive bidding through PlanetBids on June 11, 2026, and bids were opened on July 16, 2026. A total of nine (9) sealed bids were received.
List of Bidders
# Name of bidder City Total base bid
1 Tovey/Shultz Construction,
Inc. Lake Elsinore, CA $ 8,120,974.10
2 Blackstone Builders Inc.
(Nonresponsive) Riverside, CA $ 8,551,882.00
3 NKS Mechanical Contracting,
Inc. Anaheim, CA $ 8,875,321.75
4 First Trade LLC – YMC Irvine, CA $ 8,778,000.00
5 Elegant Construction, Inc.
(Nonresponsive) Irvine, CA $8,989,000.00
6 Spec Construction Co. Inc.
(Nonresponsive) Ontario, CA $ 9,265,000.00
7 Far West Contractors Corp.
(Nonresponsive) Placentia, CA $9,340,000.00
8 Caliba Inc.
(Nonresponsive) Anaheim, CA $9,388,181.00
9 Jergensen Construction, Inc. Oak Hills, CA $ 11,588,000.00 After review, staff determined that Tovey/Shultz Construction, Inc., of Lake Elsinore, California, submitted the lowest responsive and responsible bid in the amount of $8,120,974.10. Staff verified the firm’s compliance with the applicable bid requirements, including its contractor’s license and Department of Industrial Relations registration. Staff therefore determined that Tovey/Shultz Construction, Inc. is the lowest responsive and responsible bidder and recommends awarding the Construction Contract to the firm.
In addition to the base bid amount, an additive allowance of $203,024.35 is recommended to address concealed conditions with the walls where work is to be performed for windows, doors, and related project items.
The total construction contract consists of a base bid in the amount of $8,120,974.10 and additional bid item totaling $203,024.35, for a total construction contract amount of $8,323,998.45.
In addition to the construction contract, approval of a task order with TKE Engineering, Inc. (TKE) is recommended to provide construction management and inspection services (CMCI) for an amount not to exceed $270,761. TKE was selected as the most qualified bidder using an informal request for proposals from the City’s approved oncall consultants list.
List of Consultants
# Consultant Name City
1 TKE Engineering, Inc. Riverside, CA
2 Z&K Consultants, Inc. Riverside CA
3 Willdan Engineering, Inc. Industry, CA
4 CSG Consultants, Inc. (Declined to submit proposal) Irvine, CA In addition to the construction contract and CMCI services costs, $644,606.96 is recommended for unforeseen costs to complete the Project. The total project cost is summarized in the table below.
Approved Design and Administrative Costs
Professional Services Agreement with Transtech $197,600 Design Services Agreement with Bell Design Group $397,700 City/Administrative Staff Costs (based on grant agreement) $389,530 Design and Administrative Cost Subtotal $984,830.00
Proposed Construction Cost
Construction Contract with Tovey/Shultz Construction, Inc. $8,323,998.45 CMCI services with TKE Engineering, Inc. $270,761
Contingency Budget $644,606.96
Construction Cost Subtotal $9,239,366.41
Total Project Cost $10,224,196.41
Funding for this Project is through the California State Library Building Forward Library Facilities Improvement Program Grant in the amount of $6,409,370.00. A summary of the Project budget is provided below.
Project Budget
Building Forward Library Facilities Grant $6,409,370.00 Total Project Cost ($10,224,196.41)
Project Shortfall ($3,814,826.41)
With a total Project cost of $10,224,196.41, the Project budget has an existing shortfall of approximately $3,814,826.41.
Staff recommend allocating funding from multiple sources to provide sufficient funding for the project. The amounts listed below are available special funding amounts that are applicable to the Project for a total of $1,561,001.25.
Special Fund Allocations
Public Improvement Fund $469,754.70
Library Facilities Fund $75,000.00
Public Use Facilities Fund $500,000.00
Feldheym Improvements Project – (8940) (Library Facilities Fund) $516,246.55 Total Special Fund Allocation $1,561,001.25
Accounting for the recommended special funding allocation of $1,561,001.25 leaves a shortfall amount of $2,253,825.16.
Remaining Funding Need
Project Shortfall ($3,814,826.41)
Special Fund Allocation $1,561,001.25
Remaining Funding Needed ($2,253,825.16)
For the remaining shortfall of $2,253,825.16, staff recommend selecting from one of the proposed alternatives to provide Measure S funding for the Project.
Alternative A
Approving Alternative A would reallocate Measure S funding from multiple existing projects up to $2,253,825.16.
The projects included in this recommendation are as follows:
Project Reason
Amount
Reallocated
Newmark Ballfield
Lighting Project (8890)
Anticipated surplus funding due to
project nearing completion $300,000.00
Speicher Multi-Purpose
Field Lighting (8891)
Anticipated surplus funding due to
project nearing completion $200,000.00
Rudy Hernandez
Community Center
Fencing (8865)
Improved maintenance in the
surrounding area led to reduced security
needs.
$250,000.00
Hill & Acacia Storm
Drain (9070) Anticipated surplus funding. $500,000.00
Norton Gym Pickleball
Courts (8947)
Project on hold pending stakeholder
discussions regarding property sale $1,003,825.16
Total Measure S Funding Allocation $2,253,825.16
The recommended projects list based on approximate fund balances and may be adjusted depending on the amount of funding available. Additionally, a list of projects with available Measure S allocations has also been provided in Attachment 6 for review.
Alternative B
Approving Alternative B would an additional $2,253,825.16 from the City’s Measure S Fund Balance.
The proposed Project budget, including either Alternative A or Alternative B, would be as follows:
Proposed Project Budget
Building Forward Library Facilities Grant $6,409,370.00 Special Fund Allocation $1,561,001.25
Alternative A or Alternative B (Measure S) $2,253,825.16 Total Project Budget $10,224,196.41
2021-2025 Strategic Targets and Goals
This Project is consistent with the City's Key Strategic Targets and Goals, including Goal No. 2a: Focused, Aligned Leadership and Unified Community - Build a culture that attracts, retains, and motivates the highest qualified talent, and Goal No. 3c:
Improved Quality of Life - Evaluate and enhance the quality of public services.
Awarding the construction contract will advance these goals by delivering critical facility improvements that enhance the accessibility, functionality, and long-term sustainability of the Norman F. Feldheym Public Library, ensuring it continues to serve the evolving needs of San Bernardino residents.
Fiscal Impact
The total proposed Project budget of $10,224,196.41 consists of the following:
• $6,409,370.00 of previously approved grant funding from the California State Library Building Forward Library Facilities Improvement Program • The items listed below are recommended to address the project shortfall of $3,814,826.41:
o Special Fund Allocations totaling $1,561,001.25 from the following Funds:
▪ $469,754.70 from the Public Improvement Fund
▪ $75,000 from the Library Facilities Fund
▪ $500,000 from the Public Use Facilities Fund
o CIP Project Fund Transfer of $516,246.55 (Library Facilities Funds) from the Feldheym Improvements Project (8940)
o $2,253,825.16 of Measure S funding from the selected Alternative.
Conclusion
It is recommended that the Mayor and City Council of the City of San Bernardino, California:
1. Approve the award of a Construction Contract with Tovey/Shultz Construction, Inc., in the amount of $8,323,998.45 for the San Bernardino Library Norman Feldheym Branch Library Improvements Project; and
2. Approve a Task Order with TKE Engineering, Inc. for Construction Management and Inspection Services for the Project in an amount not to exceed $270,761; and
3. Authorize a Project contingency budget in the amount of $644,606.96 for unforeseen costs necessary to complete the Project, bringing the total Project budget to $10,224,196.41; and
4. Authorize the Director of Finance Management Services to amend the FY 2026/27 Capital Improvement Plan budget with an additional $469,754.70 from the Public Improvement Fund, $500,000 from the Public Use Facilities Fund, $75,000 from the Library Facilities Fund, $516,246.55 of Library Facilities Funding from the Feldheym Library Improvement Project (8940), and $2,253,825.16 of Measure S Funding from the selected Alternative for the Project; and
5. Authorize the City Manager or designee to execute all documents with Tovey/Shultz Construction, Inc. and TKE Engineering, Inc. necessary to implement the Project; and
6. Authorize the City Manager or designee to expend the contingency fund, if necessary, to complete the Project; and
7. Take one of the following actions:
Alternative A
Approve Resolution No. 2026-168 Authorize the reallocation of Measure S funding from multiple City Projects up to an amount not to exceed $2,253,825.16 to provide sufficient funding to complete the Feldheym Library Branch Improvements Project. or alternatively
Alternative B
Approve Resolution No. 2026-169 Authorize $2,253,825.16 from the City’s Measure S Fund Balance to provide sufficient funding to complete the Feldheym Library Branch Improvements Project.
.
Attachments
Attachment 1 Contract for Construction with Tovey/Shultz Construction, Inc.
Attachment 2 Bid Proposal - Tovey/Shultz Construction, Inc.
Attachment 3 Bid Tabulation
Attachment 4 Resolution 2026-168 approving Alternative A Attachment 5 Resolution 2026-169 approving Alternative B Attachment 6 List of Measure S Funded Projects in FY 2026/27 Attachment 7 Location Map
Ward:
Ward 1
Synopsis of Previous Council Actions:
December 6, 2023 Acceptance of the California State Library Building Forward Library Facilities Improvement Program Grant Award for the Norman F. Feldheym Central Library Revitalization Project January 17, 2024 The Mayor and City Council of the City of San Bernardino, California approved task order Transtech004 to Transtech Engineering for program management services for the Norman F. Feldhym Library Revitalization project, as part of the existing Professional Services Agreement for On-Call Engineering Services, and authorize the Finance Director to issue a purchase order in the amount of $197,600 for the Feldhym Library Project.
February 19, 2025 Award a Design Services Agreement to Bell Design Group for the Norman F. Feldheym Public Library Improvement Project in the amount of $319,000 (Ward 1)
December 3, 2025 The Mayor and City Council of the City of San Bernardino, California approved Amendment No.1 to the Design Services Agreement with Bell Design Group in the amount of $78,700 for the Norman F. Feldheym Public Library Improvement
Project, increasing the not to exceed amount to $397,700.
CC: Eric Levitt, City Manager