____________________________________________________________________________________
FOR CITY CLERK ONLY
Council Meeting:
Disposition:
Agenda Item No: 5.a
Meeting Date: October 19, 2026
SAN RAFAEL CITY COUNCIL AGENDA REPORT
Department: Public Works
Prepared by: April Miller, Public Works Director
Grey Melgard, Senior Civil Engineer
City Manager Approval: __________
TOPIC: SECOND STREET AND FOURTH STREET INTERSECTION IMPROVEMENTS
PROJECT
SUBJECT: RESOLUTION APPROVING THE PLANS AND SPECIFICATIONS FOR THE SECOND ST. AND FOURTH ST. INTERSECTION IMPROVEMENTS PROJECT, CITY PROJECT NO. C441140910; AWARDING AND AUTHORIZING THE CITY MANAGER TO EXECUTE THE CONSTRUCTION AGREEMENT WITH GHILOTTI BROS., INC. IN THE AMOUNT OF $2,297,267; AND AUTHORIZING THE CITY MANAGER TO AMEND THE CONTRACT AMOUNT USING CONTINGENCY FUNDS OF $577,733 FOR A TOTAL NOT-TO-EXCEED AMOUNT OF $2,875,000; CEQA DETERMINATION EXEMPT PURSUANT TO CEQA GUIDELINE 15301
RESOLUTION AUTHORIZING THE CITY MANAGER TO EXECUTE A
PROFESSIONAL SERVICES AGREEMENT WITH CONSOR NORTH AMERICA, INC.,
TO PROVIDE CONSTRUCTION MANAGEMENT, INSPECTION, AND MATERIAL TESTING SERVICES FOR THE SECOND ST. AND FOURTH ST. INTERSECTION IMPROVEMENTS PROJECT (THE “PROJECT”) IN THE AMOUNT NOT TO EXCEED $573,908
RECOMMENDATION:
Staff recommends that the City Council adopt the above-referenced resolutions to move forward with construction of the Second St. and Fourth St. Intersection Improvements Project, City Project No.
C441140910, Federal Project No. CML-5043(048) (the “Project”).
BACKGROUND:
Fourth Street, also known as the “Miracle Mile,” connects San Rafael to San Anselmo and all points west in Marin County. Through central San Rafael, Fourth Street is a retail shopping street, but west of the downtown core, Fourth Street becomes a six-lane separated arterial street serving all of the commuters from West Marin who use the route to access Highway 101, as well as tourist traffic that traverses the stretch to reach West Marin, Point Reyes National Seashore, and other coastal destinations. The route serves nearly 20,000 vehicles per day, and smooth traffic flow is essential to ensuring people can get to and from their destinations easily.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 2
The corridor was built in the mid-20th century and has surpassed its useful life. The traffic signals are outdated, pedestrian facilities do not meet the current ADA standards, and the facility is in need of major improvements to handle the daily multi-modal traffic. The intersection of Fourth Street and Second Street is the City’s gateway from West Marin and serves local and regional transit buses for commuters and other users from and to West Marin County.
The existing intersection contains five separate traffic signal legs, each of which requires time for vehicles and pedestrians to transit through it. The main routes are also at a skewed angle, which creates confusion for bicycles, pedestrians, and motorists through the intersection. The Project will reconfigure the intersection, shorten the crossing distances, and minimize the number of crossings for pedestrians and bicycles. The five current legs would be reduced to three, shortening the wait times and improving throughput for all users, including public transit operations. The Project will also complete the Class IV bikeway connection that was constructed as part of the Third Street Improvement Project in 2024. This bikeway connection will extend from Shaver Street to West End Avenue and will connect to the Greenfield Avenue Class III bikeway. This connection is listed as a top priority in both the City’s Bike and Pedestrian Master Plan as well as the City’s Draft Citywide Bicycle and Pedestrian Plan 2026 Update. The Project also includes upgrades to infrastructure to meet current standards, including ADA accessibility.
The Project was awarded $3,051,000 for the construction phase in federal funding from the One Bay Area Grant Cycle 3 (OBAG 3) by the Metropolitan Transportation Commission (MTC) in January 2022.
OBAG 3 funds must be allocated by January 2027 to comply with MTC’s timely-use policy.
On April 21, 2025, the City Council authorized the City Manager to execute a second amendment to the existing professional services agreement with CSW/Struber-Stroeh Engineering Group for additional design services associated with the Project, increasing the total not-to-exceed amount under the agreement to $294,482. Additionally, at that same meeting, staff brought the updated design drawings to City Council to receive comments on the proposed modifications to the Project. These modifications included the removal of the left-turn lane from westbound 2nd Street toward Marquard Avenue, the relocation of the north-south pedestrian crossing from the west edge of the intersection to the east edge of the intersection, and the delineation of a new signalized “business access only” lane on the northern edge of the intersection.
On July 29, 2026, the City received the Authorization to Proceed (referred to as an “E-76”) with the construction phase of the Project from the California Department of Transportation (Caltrans), authorizing the requested $3,051,000 in federal OBAG 3 funds and allowing the City to proceed with advertising the Project.
ANALYSIS:
Construction Contract
On August 13, 2026, the Project was advertised in accordance with San Rafael’s Municipal Code Chapter
11.50. The plans and specifications, deemed reasonable by the City Engineer, are available at the Department of Public Works.
At the bid opening on September 10, 2026, the following bids were received and read aloud:
Name of Bidder Bid Total
Ghilotti Bros., Inc. $2,297,267.15
Bauman Landscape and Construction, Inc. $2,356,654.00
Ghilotti Construction Company, Inc. $2,913,847.10
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 3
Team Ghilotti, Inc. $3,478,478.00
The construction bids were reviewed by Public Works staff, and the low bid of $2,297,267.15 from Ghilotti Bros., Inc. (“Ghilotti Bros.”) was found to be both responsive and responsible.
City staff recommends awarding the construction agreement to Ghilotti Bros. in the amount of $2,297,267 and recommends that the City Council authorize a construction contingency of $577,733, approximately 25%, for a total of $2,875,000. Staff do not anticipate significant scope changes for the Project; however, the contingency will provide some financial assurance for unforeseen conditions.
The Public Works Director or designee will be authorized to issue any change order to the contract within the total contract plus contingency amount. The Construction Agreement (Attachment 2) is in a form approved by the City Attorney.
Construction Management PSA
The City released a Request for Qualifications (RFQ) for the Project on August 27, 2026, and received one proposal. After reviewing the proposal, staff determined that Consor North America, Inc. (Consor) was a qualified firm and its cost proposal was complete and within industry standards. Consor is familiar with the City of San Rafael, its residents, and geographic landscape. Additionally, Consor is familiar with federal grant requirements, has relevant experience and success in similar projects, and has an experienced project team.
The recommended Professional Services Agreement (PSA) with Consor will provide construction management, inspection, and material testing services for the Project in the amount not to exceed $573,908.34. The PSA (Attachment 4) is in a form approved by the City Attorney.
COMMUNITY OUTREACH:
The Project has been presented at various community and public meetings since 2020 as summarized below:
• Wednesday, August 5, 2020 City's Bicycle and Pedestrian Advisory Committee • Tuesday, June 21, 2022 City Council Meeting
• Wednesday, October 5, 2022 City's Bicycle and Pedestrian Advisory Committee • Monday, October 17, 2022 City Council Meeting
• Wednesday, December 7, 2022 City's Bicycle and Pedestrian Advisory Committee • Thursday, January 26, 2023 Virtual Community Event
• Monday, May 6, 2024 City Council Meeting
• Wednesday, August 7, 2024 City's Bicycle and Pedestrian Advisory Committee • Wednesday, February 5, 2025 City's Bicycle and Pedestrian Advisory Committee • Tuesday, February 25, 2025 Informal Community Site Visit • Thursday, February 27, 2025 Community Event
• Monday, April 21, 2025 City Council Meeting
There are additional City and Public Utility projects anticipated to be under construction during the course of Project construction activities near or within the project limits. The construction contract with Ghilotti Bros and the PSA with Consor include specific tasks related to construction coordination efforts and cooperation with ongoing work in the area.
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 4
The PSA with Consor also includes specific talks related to community outreach for the Project’s construction. These activities include weekly status updates, up-to-date project timelines, expectations for detours, traffic delays, or lane closures, and maps of work areas. These items will be suitable for the City’s website or social media publication to keep the public informed on general Project advancement.
These items will be provided in English and Spanish and will be made available for public access during the preceding week for which the content is generated. Information will also be sent to residents who sign up for email updates on the Project’s website.
ENVIRONMENTAL DETERMINATION:
A categorical exclusion under the National Environmental Policy Act (NEPA) for the Project was approved by the California Department of Transportation (Caltrans) on October 9, 2024, and revalidated on August 14, 2025, in accordance with the procedures set forth in the Local Assistance Procedures Manual (LAPM) from Caltrans.
Staff reviewed the scope of work necessary for the Project and determined that it qualifies for a categorical exemption under the California Environmental Quality Act (CEQA) Guidelines, Section 15301 for Existing Facilities. The key consideration to obtain a categorical exemption is that the Project involves negligible or no expansion of use. Qualifying examples that are in line with the scope of the Project include, but are not limited to, alterations of existing streets, sidewalks, gutters, bicycle and pedestrian trails, and similar facilities.
On September 18, 2026, the City filed a notice of exemption under the CEQA with the County of Marin and the State Clearinghouse for the Project for categorical exemption based on existing facilities CEQA Guidelines § 15301. The notice of exemption is included as Attachment 5.
FISCAL IMPACT:
The recommendations in this staff report will authorize the construction contract with Ghilotti Bros., Inc., in an amount not to exceed $2,875,000, and a PSA with Consor to provide construction management, inspection, and material testing services for the Project in the amount not to exceed $573,908. These recommendations result in a total cost of $3,448,908 for the Project.
The City Council approved appropriations for the Project construction in the amount of $3,817,000 from the Gas Tax Fund (Fund 206) in the Fiscal Year (FY) 2025-26 Budget. The City Council approved the FY 2025-26 Budget and carryover of available unencumbered FY 2025-26 appropriations on June 2, 2025, and September 8, 2026, respectively. Therefore, no additional appropriations are required for this construction contract or PSA.
The Project has received federal grant funds in the amount of $3,051,000 from the OBAG 3 program in support of construction activities. The Project has complied with all Caltrans requirements and is authorized to seek reimbursement for costs associated with the construction contract and PSA. The local share of $397,908 will be supported by available funds in Fund 206.
OPTIONS:
The City Council has the following options to consider relating to this item:
1. Adopt the resolutions as presented.
2. Do not adopt the resolutions and provide further direction to staff.
RECOMMENDED ACTION:
SAN RAFAEL CITY COUNCIL AGENDA REPORT / Page: 5
Staff recommends that the City Council adopt the above-referenced resolutions to move forward with construction of the Second St. and Fourth St. Intersection Improvements Project, City Project No.
C441140910, Federal Project No. CML-5043(048) (the “Project”).
ATTACHMENTS:
1. Resolution – Construction Contract with Ghilotti Bros., Inc.
2. Formal Construction Contract with Ghilotti Bros., Inc.
3. Resolution – Professional Services Agreement with Consor North America, Inc.
4. Professional Services Agreement with Consor North America, Inc.
5. Notice of Exemption
RESOLUTION NO.
RESOLUTION APPROVING THE PLANS AND SPECIFICATIONS FOR THE SECOND ST. AND FOURTH ST. INTERSECTION IMPROVEMENTS PROJECT, CITY PROJECT NO. C441140910;
AWARDING AND AUTHORIZING THE CITY MANAGER TO EXECUTE THE CONSTRUCTION AGREEMENT WITH GHILOTTI BROS., INC. IN THE AMOUNT OF $2,297,267; AND AUTHORIZING
THE CITY MANAGER TO AMEND THE CONTRACT AMOUNT USING CONTINGENCY FUNDS OF $577,733 FOR A TOTAL NOT-TO-EXCEED AMOUNT OF $2,875,000; CEQA DETERMINATION EXEMPT PURSUANT TO CEQA GUIDELINE 15301
WHEREAS, on the 10th day of September 2026, pursuant to due and legal notice published in the manner provided by law, inviting sealed bids or proposals for the work hereinafter mentioned, as more fully appears from the Affidavit of Publication thereof on file in the office of the City Clerk of the City of San Rafael, California, the City Clerk of said City did publicly open, examine, and declare all sealed bids or proposals for doing the following work in said City, to wit:
“Second St and Fourth St Intersection Improvements Project” City Project No. C441140910
Federal Project No. CML-5043(048)
(hereinafter referred to as the “Project”) in accordance with the plans and specifications, therefore, on file in the office of the Department of Public Works; and
WHEREAS, the bid of $2,297,267.15 from Ghilotti Bros., Inc. at the unit prices stated in its bid was and is the lowest bid for said work and said bidder is the lowest responsive and responsible bidder; and
WHEREAS, staff has recommended approximately 25% of the bid price for a contingency in the amount of $577,732.85, resulting in a total not-to-exceed contract amount of $2,875,000; and WHEREAS, a categorical exclusion for the Project was received by the California Department of Transportation (Caltrans) on October 9, 2024, and revalidated on August 14, 2025; and WHEREAS, a notice of exemption was filed with the County of Marin and the State Clearinghouse on September 18, 2026, for the Project for categorical exemption pursuant to CEQA Guideline 15301; and
WHEREAS, the right-of-way for the Project was certified as conforming to 23 CFR 635.309(b) and (c)(1) and 49 CFR Part 24 on October 1, 2025; and
WHEREAS, funding in the amount of $3,817,000 has previously been approved for this Project through the fiscal year (FY) 2025-26 budget from the Gas Tax Fund (Fund 206); and WHEREAS, City Council authorized amendments to the FY 2026-27 budget to reflect carry-over of available unencumbered FY 2025-26 appropriations including approximately $3,817,000 in the Gas Tax Fund (Fund 206) for the Project; and
WHEREAS, the authorized carry-over of unencumbered FY 2025-26 appropriations in the Gas Tax Fund (Fund 206) is sufficient to cover the cost of the Construction Agreement.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL RESOLVES as follows:
1. The foregoing recitals are true and correct.
2. The City Council finds that the Project is exempt from review under the California Environmental Quality Act (CEQA), pursuant to CEQA Guideline 15301 for existing facilities.
3. The plans and specifications for the Project, which are on file in the Department of Public Works, are hereby approved.
4. The bid of Ghilotti Bros., Inc. is hereby accepted at the unit prices stated in its bid.
5. The City Manager is authorized and directed to execute the contract for the Project, in a form approved by the City Attorney, with Ghilotti Bros., Inc., for the bid amount stated in its bid, and is authorized to execute any amendment(s) up to the construction contingency amount of $577,733 (approximately 25% of the contract value) for a total not-to-exceed contract amount of $2,875,000.
6. The Director of Public Works or designee is hereby authorized to take any and all such actions and make changes as may be necessary to accomplish the purpose of this resolution, including but not limited to issuing change orders, provided it is within the contract amount.
I, LINDSAY LARA, Clerk of the City of San Rafael, hereby certify that the foregoing resolution was duly and regularly introduced and adopted at a regular meeting of the City Council of the City of San Rafael, held on Monday, the 19th day of October 2026, by the following vote, to wit:
AYES: Councilmembers:
NOES: Councilmembers:
ABSENT: Councilmembers:
Lindsay Lara, City Clerk
RESOLUTION NO.
RESOLUTION AUTHORIZING THE CITY MANAGER TO EXECUTE A PROFESSIONAL SERVICES AGREEMENT WITH CONSOR NORTH AMERICA, INC., TO PROVIDE
CONSTRUCTION MANAGEMENT, INSPECTION, AND MATERIAL TESTING SERVICES FOR THE SECOND ST. AND FOURTH ST. INTERSECTION IMPROVEMENTS PROJECT (THE “PROJECT”) IN THE AMOUNT NOT TO EXCEED $573,908
WHEREAS, on August 27, 2026, the City of San Rafael (“City”) advertised and solicited a Request for Qualifications in accordance with the City’s Municipal Code, for the project entitled:
“Second St and Fourth St Intersection Improvements Project” City Project No. C441140910
Federal Project No. CML-5043(048)
(hereinafter referred to as the “Project”) in accordance with the plans and specifications, therefore, on file in the office of the Department of Public Works; and WHEREAS, the Department of Public Works received one proposal; and WHEREAS, staff reviewed the proposal and identified Consor North America, Inc., as a qualified firm; and
WHEREAS, the cost proposal from Consor North America, Inc. was found to be complete and within industry standards; and
WHEREAS, funding appropriations in the amount of $3,817,000 have previously been approved for this Project through the fiscal year (FY) 2025-26 budget from the Gas Tax Fund (Fund 206); and
WHEREAS, City Council authorized amendments to the FY 2026-27 budget to reflect carry-over of available unencumbered FY 2025-26 appropriations including approximately $3,817,000 in the Gas Tax Fund (Fund 206) for the Project; and WHEREAS, the authorized carry-over of unencumbered FY 2025-26 appropriations in the Gas Tax Fund (Fund 206) is sufficient to cover the cost of the Professional Services Agreement.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL RESOLVES as follows:
1. The foregoing recitals are true and correct.
2. The City Manager is hereby authorized to execute a Professional Services Agreement with Consor North America, Inc. to provide construction management, inspection, and material testing services for the Project in the amount not to exceed $573,908, in a form approved by the City Attorney.
3. The Director of Public Works or designee is hereby authorized to take any and all such actions and make changes as may be necessary to accomplish the purpose of this resolution.
I, LINDSAY LARA, Clerk of the City of San Rafael, hereby certify that the foregoing Resolution was duly and regularly introduced and adopted at a regular meeting of the City Council of the City of San Rafael, held on Monday, the 19th day of October 2026, by the following vote, to wit:
AYES: Councilmembers:
NOES: Councilmembers:
ABSENT: Councilmembers:
Lindsay Lara, City Clerk
Notice of Exemption Appendix E
To: Office of Planning and Research
P.O. Box 3044, Room 113
Sacramento, CA 95812-3044
From: (Public Agency): _c_it_y_o_f _s _an_R_af_a_el _____ _ 111 Morphew St
San Rafael, CA 94901
County Clerk
County of: _M_a_rin ______ _ (Address)
3501 Chtic C9i'1let O,. #234
San Rafael, CA 94303 ~O[L~@
Project Title: San Rafael 2nd and 4th Street Intersection Improvements SEP l B lOl§ Project Applicant: _c_it_y_o_f _s_an_ R_a_fa_e_l _ _ ____ _ _ _________ IH"rs.,,.HT"E.,..,L""L""'_,.~f-J~·~J"-:!Ul-,'-:-~ Project Location - Specific: !~T'.~~~, C6~~
Intersection of 2nd and 4th Street in San Rafael, California Project Location - City: San Rafael Project Location - County: Marin Description of Nature, Purpose and Beneficiaries of Project:
The City of San Rafael proposes to improve access to the non-conventional multi-legged Intersection of 2nd and 4th Slleet at the City's weste~y gateway, where a prlncipal arterial and minor arterial roadway meets a frontage road and residential streets. This project will reconfigure !he intersection and improv~ the traffic signals to extend the Cross Marin Bikeway, while improving access and safety for pedestrians. The work consists of demolition and concrete work including side\Valks, curb ramps. and realigning curbs, traffic signal modifications/upgrades, street safety lightning, pavement work, landscape, signage, striping, bicycle improvements, and transit stop. The project will take place within the City's right-of-way.
Name of Public Agency Approving Project: _C_it_y_o_f_S_a_n_R_a_fa_e_l _______ ___ _____ __ _ Name of Person or Agency Carrying Out Project: _c_it_y_o_f_S_a_n_R_a_fa_e_l _ _____ _ _ _ ____ __ _ Exempt Status: {check one):
D Ministerial (Sec. 21 0B0(b)(1 ); 15268);
D Declared Emergency (Sec. 21080(b)(3); 15269(a));
D Emergency Project (Sec. 21080(b)(4); 15269(b)(c));
ul Categorical Exemption. State type and section number: ExiSting streets, Section 15301 (c) D Statutory Exemptions. State code number: _ ________ _ _________ _ _ Reasons why project is exempt:
The project consists of the alteration of existing public streets, sidewalks, gutters, bicycle lanes, pedestrian crossings, and traffic signals that do not create or expand additional automobile lanes.
Lead Agency
Contact Person: Grey Melgard - --------- ---- Area Code/Telephone/Extension: 4 1 5-485-3355 If filed by applicant:
1. Attach certified document of exemption finding.
2. Has a Notice of Exempti n been filed by the public agency approving the project? • Yes No Signature:
• Signed by Lead Agency Signed by Applicant
Authority cited: Sections 21083 and 2111 D, Public Resources Code.
Reference: Sections 21108, 21152, and 21152.1 , Public Resources Code.
Title: Senior Civil Engineer
Date Received for fi ling at QPR: _ ____ _
Revised 2011