Public Works Agency
www.santa-ana.org/pw
Item # 17
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
March 4, 2025
TOPIC: Bristol Street Improvements Project - Phase 4
AGENDA TITLE
Appropriation Adjustments, Construction Contract to Sully-Miller Contracting Company, and Construction Management Agreement to Cannon Corporation for Bristol Street Improvements (Phase 4) from Warner Avenue to St. Andrew Place Project (Nos. 11- 6741, 19-6499)
RECOMMENDED ACTION
1. Approve four appropriation adjustments recognizing:
•$770,440 in the New Transportation System Improvement Area E, Prior Year Carry Forward revenue account to New Transportation System Improvement Area E, Improvements other than Building expenditure account. •$33,747 in the New Transportation System Improvement Area E, Prior Year Carry Forward revenue account to New Transportation System Improvement Area E, Improvements other than Building expenditure.
•$1,196,886 in the Residential Street Improvement, Prior Year Carry forward Revenue account to Residential Street Improvement, Improvements other than building expenditure account.
•$25,198 in Local Drainage Area IV, Prior Year Carry Forward revenue account to Public Works Storm Drain Construction, Improvements other than building expenditure account.
(Requires five affirmative votes.)
2. Approve an amendment to the Fiscal Year 2024-2025 Capital Improvement Program to allocate an additional $10,283,196 in construction funds to complete the Bristol Street Improvements & Widening: Phase 4 – Warner Avenue to St.
Andrew Project (Nos. 11-6741 & 19-6499).
3. Approve the Project Cost Analysis for a total estimated completion cost of $26,994,144, which includes $22,354,493 for the construction contract, $2,803,930 for contract administration, inspection, and testing, and a 10% ($2,235,449) project contingency for unanticipated or unforeseen work due to the complexity and extensive scope of this project.
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4. Reject Bid Protest received by Nationwide Contracting Services and award a construction contract to Sully-Miller Contracting Company, the lowest responsible bidder, in accordance with the base bid in the amount of $22,354,493, subject to change orders as approved by the City, for construction of the Bristol Street Improvements from Warner Avenue to St. Andrew Place and Bristol Street (Phase 4) Water Main Improvements Project (Nos. 11-16741 & 19-6499)and authorize the City Manager to execute the contract.
5. Approve an agreement with Cannon Corporation for Construction Management and Inspection services for the Bristol Street Improvements Projects, in an amount not to exceed $1,998,642 for a term beginning March 4, 2025, and expiring March 3, 2027, with an option for one, one-year extension. (Agreement No. A-2025-XXX)
6. Determine that, pursuant to the California Environmental Quality Act, the recommended actions are exempt from further review. Categorical Exemption Environmental Review No. EIR 89-01 was filed for the Bristol Street Improvements Projects.
GOVERNMENT CODE §84308 APPLIES: Yes
DISCUSSION
Background
In 1991, the City Council adopted the 3.9-mile Bristol Street Environmental Impact Report and Bristol Street Corridor Specific Plan (amended March 2018). The plans incorporate Complete Streets standards, including wider sidewalks and landscaped buffers for pedestrians and bike lanes (Exhibit 1). These improvements will result in greater safety and mobility for all users, improve traffic flow, and enhance streetscape aesthetics. Bristol Street is classified as a north-south major Arterial per the City’s General Plan Circulation Element and the County of Orange’s Master Plan of Arterial Highway. In anticipation of population growth, traffic congestion, and safety concerns, the City and Orange County Transportation Agency (OCTA) have identified Bristol Street corridor for major improvements to provide adequate vehicular capacity and multimodal improvements.
Bristol Street improvements is a long-term project being completed in 5 major phases as funding becomes available. The initial phases (1 and 2) were completed in 2002, which included improvements from St. Andrew Place to McFadden Avenue and from Elm Street to Memory Lane. Since then, enhancements have been made at key intersections, such as Bristol Street and Warner Avenue, Bristol Street and 17th Street, as well as segments between McFadden Avenue and Civic Center Drive, and from Washington Avenue to 18th Street. Additionally, on September 17, 2024, City Council approved the construction contract award of Bristol Improvements Phase 3, from Civic Bristol Street Improvements Project - Phase 4
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Center Drive to Washington Avenue, which is currently under construction. The remaining segment of Bristol Street improvements from 18th Street to Elm Street (Phase 5) will need to be prioritized for funding allocation comes available.
Bristol Improvements Phase 4
The proposed Phase 4 construction contract will improve Bristol Street from Warner Avenue to St. Andrew Place (Exhibit 2). Improvements include roadway widening from two to three lanes in each direction with bus islands to accommodate future bicycle lanes as further explained below, wider sidewalks, parkways, and a raised landscape median. Other major infrastructure improvements include replacing the water main line, undergrounding overhead utilities, and installing a new storm drain system. The project will also include sound walls adjacent to residential parcels. Once completed, these improvements will enhance vehicle capacity, the ride quality, and visual appearance of the Bristol Street corridor.
The City was conditionally awarded federal funding from the California Department of Transportation (Caltrans) to construct Class IV protected bicycle lanes on Bristol Street from Warner Avenue to Edinger Avenue in June 2019. As required, the City applied to Caltrans for authorization to proceed to construction and bundle the protected bicycle lane improvements into a single Phase 4 construction contract as was done with the Phase 3 improvements. Caltrans informed staff that additional (new) reviews of documents related to right of way certification would be required. Staff has all required documentation but the Caltrans review and approval process may take between 6-12 months. In order to avoid any further delays in starting construction of Phase 4, staff separated the protected bicycle improvements from this construction contract. The protected bicycle improvements will be a separate future construction contract for City Council consideration, and constructed concurrently and in coordination with this construction contract once Caltrans authorizes construction funding. The Bristol Phase 4 contract includes many items of work which take significant time to construct including underground utilities whereas the bicycle improvements are constructed near the end of the project. Staff will be in routine communication with Caltrans to emphasize the importance of a timely review and authorization to proceed to construction of the bicycle lane work.
To ensure timely delivery and oversight of this major construction project, staff recommends hiring a third party construction management company as has been done to assist in the oversight of other major construction projects. On December 19, 2024, the Public Works Agency (PWA) released Request for Proposal (RFP) No. 24-139, by which it sought the services of a qualified consulting firm to lead efforts to provide construction management and inspection services. The consultant shall provide general construction management services to support construction efforts and assist in the overall delivery of the project, including preconstruction tasks, managing construction, and ensuring the work is completed in accordance with the contract documents, project Bristol Street Improvements Project - Phase 4
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closeout, and commissioning phase. The consultant team will report directly to the City's project manager.
Public Outreach and Contractor Participation
To provide an opportunity for local vendors to submit bids, the City notified a total of 117 regional vendors via PlanetBids, many of which are Santa Ana based. Furthermore, staff specifically reached out to Santa Ana vendors to encourage their participation in bids. A total of six bids were received. No bids were received from Santa Ana contractors.
As legally required, a Notice Inviting Bids was advertised in the Orange County Register newspaper on November 22, 2024. The project was also advertised in PlanetBids from November 20, 2024 to December 19, 2024. Bids were received electronically via PlanetBids on December 19, 2024.
One bid protest was received by the third-lowest bidder, Nationwide Contracting Services, Inc., against the second lowest bidder, Los Angeles Engineering, and the lowest bidder, Sully-Miller Contracting, regarding their responsiveness to the bid proposal requirements. Upon review, City staff determined the protest content invalid and rejected the bid protest on January 14, 2025. Staff deemed the protest immaterial and recommends awarding the project to the lowest responsible bidder, Sully-Miller Contracting Company.
Bid Results Summary
RANK BIDDER’S NAME LOCATION BASE BID
1 Sully-Miller Contracting Company Brea, CA $22,354,493 2 Los Angeles Engineering, Inc. Covina, CA $25,689,000
3 Nationwide Contracting Services, Inc. Huntington Beach, CA $26,144,807 4 OHLA USA, Inc. Irvine, CA $27,159,820
5 All American Asphalt Corona, CA $27,999,987
6 Excel Paving Company Long Beach, CA $31,428,645
A total of six bids were received and all were deemed responsive. Sully-Miller Contracting Company submitted the lowest responsive base bid in the amount of $22,354,493 (Exhibit 3). As specified in the bid documents, the lowest bid shall be determined on the basis of the Base Bid. Based on the bid analysis and a contractor’s reference check, staff recommends awarding the construction contract to Sully-Miller Contracting Company (Exhibit 4).
The RFP for Construction Management services was advertised on the City’s online procurement management and publication system, with Proposals due on January 16, 2025. Five proposals were received and evaluated by a selection committee. Based on Bristol Street Improvements Project - Phase 4
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criteria outlined in the RFP, the following summarizes the top three responding firms and their ranking.
Firm City Rank
Cannon Corporation San Luis Obispo, CA 1
Butier Engineering Tustin, CA 2
Willdan Anaheim, CA 3
Staff recommends awarding an agreement for construction management and inspection services to Cannon Corporation (Cannon) based upon the scope of work and selection criteria outlined in RFP 24-139 (Exhibit 5). Their proposal demonstrated the firm has the necessary capacity and expertise to complete the required services. The firm’s rates are reasonable and within industry standard, the team qualifications are appropriate for this project, and the proposal was determined to provide the best value for the City.
Project Delivery
To deliver a complete project, in addition to the construction contract, the estimated total project delivery cost includes a budget allocation for construction administration, inspection, and testing. Construction administration and inspection may be performed by either Staff or consultants and includes construction management, inspection of the Contractor’s work to ensure contract compliance, workmanship and quality, materials testing, and implementation of the labor requirements.
Any of the allocated construction administration funds not spent are considered project savings and are returned to the respective fund balance upon close out of the project.
In addition to the Construction Contract Bid Amount, Staff requests that City Council allocate and authorize a project contingency budget equal to 10% of the Contract Bid Amount. The recommended contingency budget will allow Staff to execute contract change orders in the event unexpected conditions arise or if additional work is required to effectively deliver and complete the project.
As indicated in the Cost Analysis (Exhibit 6) and as summarized in the table below, the estimated total construction delivery cost of the project is $26,994,144.
Project Item Total
Construction Contract Bid Amount $22,354,493
Construction Management and Inspection: Cannon
(Includes Materials Testing and Inspection)
$1,998,642
Construction Administration $405,560
Project Contingencies (10% of Bid) $2,235,449
TOTAL ESTIMATED CONSTRUCTION DELIVERY COST $26,994,144
Bristol Street Improvements Project - Phase 4
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The City had been awarded an OCTA M2 grant of $7,501,206 for street improvement related expenditures. The City is responsible for funding the balance of street improvements plus the costs of underground utility improvements. Construction costs have rapidly escalated in the past four (4) years. According to the California Department of General Services, California Construction Cost Index (CCCI), the average cost of construction has increased by 34.4% in the past four (4) years (since 2021), over double the rate for the previous five-year period (2016-2020). Staff applied for additional construction funds and, on April 10, 2023, OCTA replaced the previous award amount and awarded the City a total of $11,910,061. In addition to this grant, the City will fund the balance of improvements from gas tax revenues, General Fund, water capital, developer impact fees, and proceeds from sale of remnant Bristol properties.
Project Schedule and Contract Time
The completion date is November 30, 2026, with an option to extend to address any unforeseeable conditions such as rain, natural disasters, or other delays beyond the control of the City and of the Contractor. The contract time for this project is 368 working days, as specified in the bid documents. Working days are counted in accordance with the City’s Standard Specifications, which exclude weekends, City-observed holidays, and inclement weather days that prevent work. The projected project schedule is provided below.
Milestone Estimated Date Notes
Administrative Startup March 2025 Contract execution, bonds, insurance, traffic control plans
Material Procurement March 2025, concurrent
with construction
Staff review and approval of
material submittals
Contractor Mobilization April 2025 Start of construction activities Project Completion November 2026 Based on 368 working days Project Phasing
As stipulated under the contract, the Contractor will be constructing this project in the following phases to minimize duplication and impacts to completed components of the project:
1. Phase I – Soundwalls, Temporary Street Lighting, and Potholing Soundwall construction will be the first item of work along with temporary street lighting on the east side of Bristol Street between Warner Avenue and St. Andrew Place. Contractor will perform exploratory potholing as required for utilities.
2. Phase II – Underground Utility Construction
In this phase, the Contractor will construct underground electric and communications ducts and structures for the undergrounding of existing pole Bristol Street Improvements Project - Phase 4
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mounted utilities. Work includes coordination with utility companies to facilitate underground relocations and pole removals.
3. Phase III – Water, Sewer, Storm Drain, and Street Improvements Contractor to construct water, sewer, and storm drain improvements prior to any street improvements and work only on one side of the street at a time to minimize traffic disruptions.
4. Phase IV – Future Protected Bike Lane Project Coordination As previously discussed, a future protected bike lane project will be awarded during the construction of this project. The Contractor is required to coordinate construction activities to deliver a seamless complete project. Final paving shall not occur until the protected bike lanes are in place.
ENVIRONMENTAL IMPACT
Categorical Exemption Environmental Review No. EIR No. 89-01 was filed for the Bristol Street Improvements Project (Exhibit 7) in 1991. The proposed project continues to meet the parameters of the CEQA Guidelines and EIR No. 89-01. On April 7, 2015, the Santa Ana City Council adopted a resolution approving an addendum to the Final Environmental Impact/Statement for the segment of Bristol Street between Warner Avenue and St. Andrew Place.
FISCAL IMPACT
As indicated in the Cost Analysis, the estimated total construction delivery cost of the project is $26,994,144. All funds are available for expenditure in Fiscal Year 2024-25.
Any remaining balances not expended at the end of the current fiscal year will be presented to the City Council for approval to carry forward to Fiscal Year 2025-2026 (Exhibit 8).
The proposed contract authorizes staff a maximum of 10% in contingencies for construction contract change orders. Should additional contingency be necessary due to unforeseeable conditions, staff will return to City Council for authorization and appropriation.
With the approval of the requested appropriation adjustments, a portion of the accumulated fund balances will be appropriated for spending in the following accounts:
•New Transportation System Improvements Area E, Improvements Other Than Buildings expenditure account (No. 03417660-66220),
•New Transportation System Improvements Area F, Improvements Other Than Buildings expenditure account (No. 03517660-66220),
•Residential Street Improvement, Improvements Other Than Buildings expenditure account (No. 05817660-66220), and
•Public Works-Storm Drain Construction, Improvements Other Than Buildings expenditure account (No. 22417660-66220).
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The spendable portion of the fund balance for the following funds on June 30, 2025 is estimated to be:
•$770,440 for the New Transportation System Improvements Area E fund; •$33,747 for the New Transportation System Improvements Area F fund; •$3,904,391 for the Residential Street Improvement Fund; and •$257,198 for the Local Drainage Area IV Fund
Which is sufficient to allow for the recommended appropriations of $770,440, $33,747, $1,196,886, and $257,198, respectively.
Approval of the requests to reallocate funds will provide a total of $7,625,197 in unspent funds from Property Sale proceeds and Project Nos. 18-6901, 20-6954, 20-6955, 20- 6961, 20-6971, and 22-6470.
The following table summarizes the funds budgeted for expenditure to deliver the construction of this project.
Fiscal
Year
Accounting
Unit –
Account No.
(Project No.)
Fund
Description
Accounting Unit,
Account Description Amount
CURRENT BUDGET
2024-25
01117017-
66220
(11-6741)
General Fund
PWA – Service
Enhancement,
Improvements Other
Than Buildings
$680,000
2024-25
03217662-
66220
(11-6741)
Measure M
Street
Construction
Measure M2 Local
Fairshare St,
Improvements Other
Than Buildings
$11,380
2024-25
03217663-
66220
(11-6741)
Measure M
Street
Construction
Measure M2
Competitive Street,
Improvements Other
Than Buildings
$11,910,023
2024-25
03517660-
66220
(11-6741)
New
Transportation
System
Improvements
Area F
New Transportation
System Improvements
Area F, Improvements
Other Than Buildings
$638,361
2024-25
05917661-
66220
(11-6741)
Select Street
Construction
OCTA Bristol St
Corridor Imps,
Improvements Other
Than Buildings
$178,516
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Fiscal
Year
Accounting
Unit –
Account No.
(Project No.)
Fund
Description
Accounting Unit,
Account Description Amount
2024-25
05917663-
66220
(11-6741)
Select Street
Construction
HUTA 2103 Gas Tax,
Improvements Other
Than Buildings
$632,183
2024-25
06617647-
66301
(19-6499)
Acquisition and
Construction
Water Utility Capital
Projects, Water Capital
Project
$2,568,996
2024-25
22417660-
66220
(11-6741)
Local Drainage
Area IV
Public Works-Storm
Drain Construction,
Improvements Other
Than Buildings
$491,217
Total $17,110,676
APPROPRIATION ADJUSTMENTS
2024-25
03417660-
66220 (11-
6741)
New
Transportation
System
Improvements
Area E
New Transportation
System Improvements
Area E, Improvements
Other Than Buildings
$770,440
2024-25
03517660-
66220
(11-6741)
New
Transportation
System
Improvements
Area F
New Transportation
System Improvements
Area F, Improvements
Other Than Buildings
$33,747
2024-25
22417660-
66220
(11-6741)
Local Drainage
Area IV
Public Works-Storm
Drain Construction,
Improvements Other
Than Buildings
$257,198
2024-25
05817660-
66220
(11-6741)
Residential
Street
Improvement
Residential Street
Improvement,
Improvements Other
Than Buildings
$1,196,886
Total $2,258,271
REALLOCATIONS
2024-25
03217662-
66220
(From 18-6901
to 11-6741)
Measure M
Street
Construction
Measure M2 Local
Fairshare St,
Improvements Other
Than Buildings
$1,287,170
2024-25
03217662-
66220
(From 20-6971
to 11-6741)
Measure M
Street
Construction
Measure M2 Local
Fairshare St,
Improvements Other
Than Buildings
$313,260
2024-25 05917661-
66220
Select Street
Construction
OCTA Bristol St
Corridor Imps, $2,884,900
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Fiscal
Year
Accounting
Unit –
Account No.
(Project No.)
Fund
Description
Accounting Unit,
Account Description Amount
(Property Sale
Proceeds to
11-6741)
Improvements Other
Than Buildings
2024-25
05917665-
66220
(From 18-6901
to 11-6741)
Select Street
Construction
HUTA Gas Tax –
RMRA, Improvements
Other Than Buildings
$500,000
2024-25
05917665-
66220
(From 20-6961
to 11-6741)
Select Street
Construction
HUTA Gas Tax –
RMRA, Improvements
Other Than Buildings
$1,031,880
2024-25
05917665-
66220
(From 20-6954
to 11-6741)
Select Street
Construction
HUTA Gas Tax –
RMRA, Improvements
Other Than Buildings
$804,828
2024-25
05917665-
66220
(From 20-6955
to 11-6741)
Select Street
Construction
HUTA Gas Tax –
RMRA, Improvements
Other Than Buildings
$198,405
2024-25
06617647-
66301 (From
22-6470 to 19-
6499)
Acquisition and
Construction
Water Utility Capital
Projects, Water Capital
Project
$604,754
Total $7,625,197
TOTAL ESTIMATED CONSTRUCTION DELIVERY COST $26,994,144
EXHIBIT(S)
1. Project Specific Plan
2. Location Map and Proposed Conditions
3. Bid Proposal
4. Construction Contract
5. Agreement for Construction Management & Inspection Services
6. Cost Analysis
7. Environmental Determination
8. Capital Improvement Project Worksheet
Submitted By: Nabil Saba, P.E., Executive Director – Public Works Agency Approved By: Alvaro Nuñez, City Manager