Public Works Agency
www.santa-ana.org/pw
Item # 15
City of Santa Ana
20 Civic Center Plaza, Santa Ana, CA 92701
Staff Report
December 2, 2025
TOPIC: Award a Construction Contract to Construct the Santa Ana Zoo Stormwater Capture and Diversion Project
AGENDA TITLE
Mitigated Negative Declaration, Appropriation Adjustment, and Construction Contract to Armstrong Cal Builders Inc. to Construct the Santa Ana Zoo Stormwater Capture and Diversion Project (Project No. 24-6604) (Non-General Fund)
RECOMMENDED ACTION
1. Approve and adopt the Mitigated Negative Declaration and Mitigation and Monitoring Reporting Program prepared for the Santa Ana Zoo Stormwater Capture and Diversion Project, in accordance with the California Environmental Quality Act (CEQA).
2. Approve an appropriation adjustment to recognize $3,700,000 in Caltrans Cooperative Implementation Agreement funding in the Federal Clean Water Protection Enterprise, Expense Reimbursement-Caltrans Account (No. 05717002-57021) and appropriate the same amount into the Federal Clean Water Protection Enterprise, Improvements Other Than Building expenditure account (No. 05717640-66220). (Requires five affirmative votes)
3. Approve an amendment to the Fiscal Year 2025-26 Capital Improvement Program to add $3,700,000 of Caltrans funding for the Santa Ana Zoo Stormwater Capture and Diversion Project (No. 24-6604).
4. Approve the Project Cost Analysis for a total estimated construction delivery cost of $8,343,525, which includes $6,627,620 for the construction contract, $1,053,143 for contract administration, inspection, and testing, and $662,762 for unanticipated or unforeseen work.
5. Award a construction contract to Armstrong Cal Builders Inc., the lowest responsible bidder, in the amount of $6,627,620, for construction of the Santa Ana Zoo Stormwater Capture and Diversion Project, for a term beginning December 2, 2025 and an estimated completion date of March 2027, and authorize the City Manager to execute the contract.
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GOVERNMENT CODE §84308 APPLIES: No
DISCUSSION
The Santa Ana Zoo Stormwater Capture and Diversion (SAZSCAD) Project features the installation of two underground stormwater infiltration systems in the parking lots at the Santa Ana Zoo (Exhibit 1). Together, these systems are designed to capture and infiltrate approximately 67 acre-feet per year of runoff back into the ground. The project was developed in close coordination with the Santa Ana Zoo. After the construction of the underground improvements, the surface of the impacted areas will be improved with a new 0.25-acre - pocket park in the west end of the Zoo’s main parking lot, as well as 24 new pervious parking stalls in the Zoo’s overflow parking lot. The project provides several benefits to the City and community, including assisting with NPDES Permit compliance, improving water quality, enhancing local water supplies, reducing flooding, providing new recreational opportunities, and new paving, signage, and striping in the Zoo parking lots (Exhibit 2). These improvements are in conformance with the adopted Zoo Master Plan (Exhibit 3).
Because stormwater runoff from the I-5 freeway flows through the City’s stormdrain system to the project location and will be captured and treated by the project, staff engaged Caltrans to contribute funding to the project. Staff successfully negotiated with Caltrans and they have agreed to contribute $3,700,000 towards construction of the project. On September 16, 2025, Council adopted Resolution No. 2025-040, which authorized the City to enter into a Cooperative Implementation Agreement with Caltrans for the project.
In addition to the Caltrans funding, staff secured two grants to fund this project, including a $2,603,525 grant from the Department of Water Resources Proposition 1 IRWM program and a $2,500,000 grant from the Orange County Transportation Authority (OCTA) Tier 2 Environmental Cleanup Program. Together, these three funding sources will be used to construct the project, with no City funds required.
A copy of construction plans, contracts, specifications, and all related reference materials, such as The Greenbook, are available for public review at the City’s Public Works Agency, Central Files office located in City Hall.
Public Outreach and Contractor Participation
On May 13, 2025, Staff attended a Zoo District Neighborhood Association Meeting to present about the project. Project materials were also sent to the Saddleback View Neighborhood Association.
This project was originally advertised for bid on September 18, 2025, with bids due on October 9, 2025. To provide an opportunity for local vendors to submit bids, the City notified 2,948 regional vendors via PlanetBids, many of which are Santa Ana based.
Santa Ana Zoo Stormwater Capture and Diversion Project
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Twelve vendors requested bidding documents, and a total of 12 bids were received. No bids were received from Santa Ana vendors.
As legally required, a Notice Inviting Bids was advertised in the Orange County Register newspaper on September 18, 2025 and September 25, 2025. The project was also advertised on PlanetBids from September 18, 2025 through October 9, 2025. Bids were received electronically via PlanetBids on October 9, 2025.
Bid Results Summary
RANK BIDDER’S NAME LOCATION BASE BID
1 RCCI Azusa, CA $5,716,266.00
2 Armstrong Cal Builders Inc. Stanton, CA $6,382,620.00 3 Boudreau Pipeline Corporation Woodland Hills, CA $7,675,383.00 4 GMZ Engineering, Inc. Westlake Village, CA $7,859,525.00 5 Legion Contractors Inc. Los Angeles, CA $7,866,800.00 6 mmc, inc La Palma, CA $8,476,150.00
7 Zusser Company, Inc. Los Angeles, CA $8,976,488.00
8 Environmental Construction, Inc. Woodland Hills, CA $9,521,407.00 9 Lonerock, Inc. Irvine, CA $9,627,255.00
10 Caliagua, Inc. Anaheim, CA $9,803,623.00
11 Mike Bubalo Construction Co.,
Inc. Baldwin Park, CA $9,917,900.00
12 Green Building Corporation North Hollywood, CA $9,951,482.00 A total of 12 bids were received. RCCI, the lowest bidder, was deemed non-responsive for failing to include a comprehensive list of subcontractors as required by the project specifications. Armstrong Cal Builders Inc. submitted the lowest responsive base bid in the amount of $6,382,620 (Exhibit 4). As specified in the bid documents, the lowest bid shall be determined by the Base Bid.
In the past five years, Armstrong Cal Builders Inc. has completed construction of the Santiago Park Main Entrance Project for the Public Works Agency. Based on the bid analysis and a contractor reference check, Staff recommends awarding a construction contract to Armstrong Cal Builders Inc. in the amount of $6,627,620 for the Base Bid and additional Bid Alternative for construction of the Santa Ana Zoo Stormwater Capture and Diversion Project (Exhibit 5). The Bid Alternative item is a flow meter and Santa Ana Zoo Stormwater Capture and Diversion Project
December 2, 2025
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vault, which will provide valuable data on how much stormwater runoff the project is capturing. The cost for this item is reasonable and there is adequate grant funding for it.
Project Delivery
To deliver a complete project, in addition to the construction contract, the estimated total project delivery cost includes a budget allocation 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 unspent construction administration funds are considered project savings and will not be requested for reimbursement from the respective granting agency.
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 $8,343,525.
Project Item Total
Construction Contract Base Bid $6,382,620
Add Alternate Bid Item (Flow Meter & Vault) $245,000
Construction Administration $613,143
Inspection $340,000
Materials Testing $100,000
Unforeseen Work (Contingency) $662,762
TOTAL CONSTRUCTION DELIVERY COST $8,343,525
Project Schedule and Contract Time
The contract time for this project is 220 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 contractor was required to submit a construction schedule as part of their bid to expedite delivery of the project. The projected completion date on the submitted schedule is within the allotted 220 working days. If the contractor fails to deliver on time, they will be assessed a penalty of $6,700 per calendar day as specified in the bid documents.
The actual completion date will depend on the contractor’s schedule, material procurement timelines, and any unforeseen delays. Based on a typical project timeline, the estimated project completion is provided below.
Santa Ana Zoo Stormwater Capture and Diversion Project
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Project Milestones
Milestone Estimated Date Notes
Administrative Startup January 2026 Contract execution, bonds, insurance
Material Procurement January 2026 – April 2026 Lead times may affect schedule
Estimated Notice to
Proceed May 2026 Start of working days
Estimated Project
Completion March 2027 Based on 220 working
days
The above dates are estimates and may be adjusted based on the actual Notice to Proceed date, material availability, weather, and unforeseen field conditions. The contractor will be required to minimize impacts to Zoo operations via implementation of a phasing plan. The contractor for this project will also be required to coordinate with the contractor working on the Zoo HIVE Educational Building project. Although both projects will be under construction concurrently, they are located in different areas of the Zoo.
Public Works Agency staff and Zoo staff will meet regularly with both contractors to ensure that work progresses as scheduled and that any operational impacts are minimized.
The project will include repaving the Zoo’s entire main parking lot, as well as installing new parking stalls in the overflow parking lot. Temporary impacts to Zoo parking are expected during the final paving and striping phase but will be mitigated by scheduling much of the work outside zoo operating hours. During this period, visitors may still use street parking and the overflow parking lot as well.
ENVIRONMENTAL IMPACT
Pursuant to the California Environmental Quality Act (CEQA), an Initial Study/Mitigated Negative Declaration (IS/MND) was prepared for the Project and has been attached to this report as Exhibit 8. The purpose of the IS/MND is to describe the proposed project and to provide an evaluation of potential environmental impacts associated with the project’s construction and operation. Moreover, the IS/MND evaluates the potential environmental impacts of project implementation; includes significance determinations from the environmental analyses; identifies regulatory requirements to be incorporated into the project; and sets forth mitigation measures that will lessen or avoid potentially significant project impacts on the environment.
The IS/MND determined that the proposed project would have no impact, or less than significant impacts with mitigation measures, in all topics outlined in the CEQA Environmental Checklist. The final Mitigation and Monitoring Program, which includes the applicable mitigation measures, is included as part of the documents provided in Exhibit 8.
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On August 7, 2025, staff issued a Notice of Intent to Adopt a Mitigated Negative Declaration, initiating the 30-day public comment period. The Notice of Intent was also posted at the OC-Clerk Recorder Office on August 12, 2025 (Exhibit 7). Minor comments were received from two Tribal Nations and the Orange County Transportation Authority (OCTA), which have been addressed. The mitigation measures identified in the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program prepared for the Project are incorporated into the construction specifications and will be carried out by the contractor and Public Works Agency. Following City Council adoption of the Mitigated Negative Declaration, staff will record the Notice of Determination for the Project in accordance with the California Environmental Quality Act (CEQA).
FISCAL IMPACT
As indicated in the Cost Analysis, the estimated total construction delivery cost of the project is $8,343,525. With approval of the Appropriation Adjustment, all funds are available for expenditure in Fiscal Year 2025-26 (Exhibit 9). Any remaining balances not expended at the end of the fiscal year will be presented to City Council for approval to carry forward to Fiscal Year 2026-27.
The proposed contract authorizes staff a maximum of 10% for construction contract change orders for unforeseen work. Staff will return to City Council for authorization and appropriation of additional contract authorization if necessary.
With approval of the requested appropriation adjustment, the funds will be budgeted and available for this item in the accounts below.
Fiscal
Year
Accounting Unit
- Account No.
(Project No.)
Fund
Description
Accounting Unit -
Account No.
Description
Amount
Current Budget
2025-26 16417643-66220
(24-6604)
PWA
Enterprise
Capital
Grants
Prop 1 IRWM Program,
Improvements Other Than
Buildings
$2,143,525
2025-26 03217663-66220
(24-6604)
Measure M-
Street
Construction
Measure M2 Competitive
Street, Improvements
Other Than Buildings
$2,500,000
Subtotal $4,643,525
Appropriation Adjustment
2025-26 05717640-66220
(24-6604)
Federal
Clean Water
Federal Clean Water
Protection Enterprise, $3,700,000
Santa Ana Zoo Stormwater Capture and Diversion Project
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Fiscal
Year
Accounting Unit
- Account No.
(Project No.)
Fund
Description
Accounting Unit -
Account No.
Description
Amount
Protection
Enterprise
Improvements Other Than
Buildings
Subtotal $3,700,000
Total $8,343,525
EXHIBIT(S)
1. Location Map
2. Project Exhibit
3. Zoo Master Plan Exhibit
4. Bid Proposal
5. Construction Contract
6. Cost Analysis
7. Notice of Intent to Adopt a Mitigated Negative Declaration
8. Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program
9. FY 2025-26 Capital Improvement Project Worksheet
Submitted By: Rodolfo Rosas, P.E., Acting Executive Director – Public Works Agency Approved By: Alvaro Nuñez, City Manager