Agenda Item
DATE: 8/12/2025
TO: HONORABLE MAYOR AND CITYCOUNCIL
FROM: JOAN MALLOY, CITYMANAGER
SUBJECT: ADOPT A RESOLUTION AUTHORIZING THE CITY MANAGER TO EXECUTE THE FOURTH
AMENDMENT TO THE CONSULTING SERVICES AGREEMENT WITH MARK THOMAS & COMPANY, INC., IN THE AMOUNT OF $2,988,000, FOR A TOTAL CONTRACT AMOUNT OF $7,989,191, FOR THE FINAL DESIGN OF PHASE (SEGMENT) 2 FOR THE QUARRY LAKES PARKWAY (EAST WEST CONNECTOR) PROJECT, CITYPROJECT NO. 18-04
EXECUTIVE SUMMARY
Staff recommends that the City Council adopt the attached resolution authorizing the City Manager to execute the Fourth Amendment to the Consulting Services Agreement with Mark Thomas & Company, Inc., in the amount of $2,988,000, for a total contract amount of $7,989,191, for the final design of Phase (Segment) 2 of the Quarry Lakes Parkway (East West Connector) Project, City Project No.18-
04. STRATEGIC PLAN ALIGNMENT
This agenda item is aligned with the following:
Goal C, Strategy 2: Economic, Community Development, and Public Safety - Facilitate the build out of the greater Station District Area through the construction of the Quarry Lakes Parkway, completion of the pedestrian rail crossing, and implementing the recommendations of the SouthernAlameda County Regional Rail Integration Study to make the Station District a passenger rail hub served byACE.
BACKGROUND
The Quarry Lakes Parkway project was previously known as the East West Connector roadway, which traversed Fremont and Union City from Mission Boulevard to Interstate 880 (I-880) and was sponsored by the Alameda County Transportation Commission (Alameda CTC). On March 22, 2018, the Alameda CTC approved the request from the City of Union City to be the project sponsor of the former East West Connector Project and identified the following tasks for the City to complete:
1. Complete the final design of the current 2011 roadway design plans
2. Prepare a traffic study update
3. Determine if an update, amendment or addendum is required for the approved 2009 East West Connector EIR
4. Coordinate with transit agencies (BART, Alameda County Transit (AC Transit), Dumbarton Express & Union City Transit), adjacent cities, and pedestrian and bicycle advocacy groups to ensure the design meets the needs of those interests in terms of connectivity, safety and related concerns
5. Execute project (design review) agreements with BART and Union Pacific for the grade separations at BART, Oakland Subdivision and Niles Subdivision
6. Update the overall project cost estimate
7. Report back to the Commission upon completion of this work Union City became the Project Sponsor, responsible for the design, right-of-way certification and construction of the project. To manage the project more easily, it was also broken into segments, or phases. Phases 1-4 are in Union City and extend from Mission Boulevard to Old Alameda Creek. Phase 5 extends from Old Alameda Creek to Paseo Padre Parkway, crossing both Union City and Fremont. The portion of the project known as Decoto Complete Streets is solely within Fremont and is managed by Fremont. Union City and Fremont are now working together to implement each portion of the project that is in their respective cities.
As the first step in meeting the tasks outlined byAlameda CTC, in August 2018, the City Council adopted Resolution No. 5374-18, which authorized the City Manager to execute the East West Connector Project FundingAgreement (PFA) No.A18-0046, in the amount of $2.5 million, withAlameda CTC. The $2.5 million would be used to update the cost estimate and complete the other tasks.
Once Union City assumed the project, the City Council adopted Resolution No. 5444-19, which authorized renaming the I-880 to Mission Boulevard/East West Connector Project to the Quarry Lakes Parkway (QLP) Project. This was done to reflect the roadways updated purpose as a local, multimodal corridor.
Union City continued to work on the tasks requested by Alameda CTC at the previously mentioned March 2018 Alameda CTC meeting, and on November 19, 2020, City staff, in partnership with Alameda CTC staff, presented a detailed progress report to Alameda CTC.
Staff conveyed how each of the tasks had been completed, except for finalizing the East West Connector plans. The outdated 2011 East West Connector plans that the City needed to complete did not meet current design standards for bicyclists and pedestrians, nor did the plans meet the most recent design and engineering criteria for roadway design, seismic structures, railroad design and other project elements. Extensive redesign and engineering analysis would be needed to bring the plans up to date.
As a result of the presentation in November 2020, and based on Alameda CTC staff recommendations, Alameda CTC adopted Resolution No. 20-013 to allow the East West Connector/Quarry Lakes Parkway Project to move forward with the following funding parameters:
1. Commit the remaining balance of 1986 Measure B funding for the East West Connector (I-880 to Mission Blvd) Project to the Quarry Lakes Parkway Project ($69.0 million) sponsored by Union City and acknowledging that the commitment fulfills the 1986 Measure B funds from the 1986 Transportation Expenditure Plan
2. Allocate $4.2 million of 1986 Measure B funds to complete the Final Design of Phase 1 (7 th Street Connection) and Phase
2 (Gateway Connection)
3. Allocate $17.8 million of 1986 Measure B funds to complete the Final Design of Phase 3 (11 th Street Connection) and
Phase 4 (Grade Separations & Alvarado-Niles Connection) with the condition that full funding for all phases of the segment will be identified in the funding agreement
4. Authorize the Executive Director to execute appropriate funding agreements with Union City for the design of Phases 1, 2, 3 and 4 of the Quarry Lakes Parkway Project up to the amount allocated in the design phases for each segment With this input from Alameda CTC, the City has continued to move the project ahead. On October 12, 2021, the City Council adopted Resolution No. 5841-21, accepting the $4.2 million grant from Alameda CTC’s PFA No. A22-0053 and authorizing the use of those funds for Final Design Services of Phases 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04 (this is the second Project Funding Agreement. The first Project Funding Agreement awarded $2.5 million for the 2018 East West Connector, as described above).
On January 11, 2022, the City Council adopted Resolution No. 5878-22, authorizing the City Manager to execute a Consultant Services Agreement, C5833, with Mark Thomas & Company, Inc. (Mark Thomas) for the Preliminary Engineering (30% Final Design) of Phases 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04, in the amount of $1,200,000, funded from the $4.2 millionAlameda CTC grant.
The Preliminary Design effort was focused on the conditions of Alameda CTC Resolution No. 20-013, including: 1) redesigning the Quarry Lakes Parkway to meet NACTO and Caltrans Complete Streets Policies; 2) employing design features for future transit; 3) holding quarterly public meetings to update the bicycle, pedestrian and transit advocates through the City’s Bicycle and Pedestrian Advisory Committee (BPAC) and the City Council meetings for public input and comments; and, 4) convening meetings with the City of Fremont and AC Transit for the potential design of a transit priority lane along Decoto Road, between Dumbarton Bridge and Mission Boulevard.
Union City has led the effort to develop a full funding plan for implementation of Quarry Lakes Parkway, Phases 1-4, and submitted all funding documentation to Alameda CTC staff for their records. This includes all City Council approval actions for: 1) Measure 2014 TEP 21, Dumbarton Corridor Funds of $40 million; 2) TEP 22, Intermodal Station funds of $72.0 million; and, 3) the California Transportation Commission (CTC) approval action for the LATIP funds of $41.8 million, as noted above.
Since the City has assumed the project, the storm drain system has been reevaluated to reduce costs, improve creek restoration, and conserve land; however, the Line M overflow pipe system from the Line M channel to Old Alameda Creek is still required. To prepare an updated cost estimate for Phases 1-4 as requested by Alameda CTC, and to secure project permits from the regulatory agencies for wetland mitigation, stream alteration permits and storm water treatment, additional engineering and design is required for Phases 3 and
4. Additionally, the portions of the Line M overflow pipe system, the outfall structure into the Old Alameda Creek, and the entire roadway storm water treatment basin must be constructed in Phase 2, one of the first phases of the QLP project. Therefore, design of Phases 3 and 4 were needed to be understood to ensure that:
Updated project cost estimates can be prepared and would incorporate updated seismic standards The City has adequate information to proceed with permit applications to the regulatory agencies for the entire QLP project Portions of the Line M overflow pipe system, outfall structure, and stormwater systems can be constructed as part of Phase 2 On November 22, 2022, City Council adopted Resolution No. 6045-22, authorizing the City Manager to execute Amendment No. 1 to the Consulting Services Agreement, C5833b, with Mark Thomas & Company, Inc., for the Final Design of Phases (Segments) 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04, in the amount of $3,000,000, for a total contract amount of $4,200,000, from the 2022 Alameda CTC Project Funding Agreement No. A22-0053 grant.
At the same meeting, City Council adopted Resolution No. 6046-22, authorizing the City Manager to execute a Consulting Services Agreement, C5933, with Mark Thomas & Company, Inc., for the Preliminary Engineering (30% Final Design) of Phases (Segments) 3 and 4 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04, in the amount of $2,087,600, from the balance of the 2018 Alameda CTC Project Funding Agreement No. A18-0046, and appropriating $208,760 from the unused balance of SB-1 Funds.
DISCUSSION
On December 21, 2022, Mark Thomas completed the Preliminary Design (35% Plans) of the combined Quarry Lakes Parkway, Phases 1 and 2, including Preliminary Engineering Reports (Drainage, Geotechnical Design, Hazardous Materials, Stormwater Management, Pump Station Memo, and Lighting and Landscape Concept) and submitted them to outside agencies and utilities for their review and comments.
The Preliminary Design of the Quarry Lakes Parkway, Phases 3 and 4 (Grade Separation Underpass Structures) Plans and Cost Estimate have been updated to meet the latest structure and seismic design criteria required by Caltrans, Union Pacific and BART and in July 2023, Mark Thomas submitted the 35% Plans to the City, Union Pacific and BART for their review and comments. Since the Union Pacific Railroad Public Projects Manual, dated July 30, 2021, Section 5, Grade Separations Projects no longer allow Underpass Structures, Mark Thomas prepared a UPRR Design Variance Request Report explaining and justifying the planned Underpass Grade Separation Structures at Oakland Subdivision (Phase 4) and the Niles Subdivision (Phase 3) and submitted it to Union Pacific Railroad for their review, receiving their conditional concurrence in September 2023.
On August 29, 2023, Union City staff, along with Mark Thomas and their subconsultants (Project Consultant Team) met with Alameda CTC staff to provide a project update for Quarry Lakes Parkway, Phases 1-4, including the Complete Streets design, the engineering design reports updates (Drainage, Hydromodification and Mitigation), the Resources Agencies permit process, and revised cost estimates.
In February 2024, based on the updated plans for Quarry Lakes Parkway, Phases 1-4, Union City staff and the Project Consultant Team submitted updated draft Cost Estimates to Alameda CTC for their initial review.
Quarry Lakes Parkway, Phases 1-4 Cost Estimates have increased from East West Connector cost estimates because the previous project plans from 2011 were outdated and the project component costs did not include an approved stormwater management design (roadway drainage, water quality treatment, hydromodification and Line M overflow system), the proposed Line M Flood Control Channel realignment design (channel section and layout), and environmental mitigation strategies required by Alameda County Water District, Alameda County Flood Control District, San Francisco Regional Water Quality Control Board, and other regulatory agencies.
In addition, the modernized Quarry Lakes Parkway, Phases 1-4 design has contributed to the increase in the cost estimates because:
1. The roadway geometrics, street sections and profile have been re-designed and updated to meet Caltrans’ Complete Streets design guidelines and multimodal policies, including a separate Class I multi-use trail, buffered on-street bike lanes, protected intersections, future far-side transit stops, and enhanced street lighting for all modes. The designs and project updates have been presented at the Union City BPAC meetings and other interested parties, and bike advocates have been invited for public comment and project input
2. The underpass structures, retaining walls, and concrete slab protection over the existing aquifer have been re-designed to meet current structural and seismic design criteria along with BART and Union Pacific design requirements Alameda CTC staff prepared letters and emails to Union City staff in 2024 requesting additional information and details on the revised cost estimates with discussion on usable segments and allowable costs of various scope elements. The Project Consultant Team and City staff have provided the requested information through letters, emails and meetings.
In September 2024, the Project Consultant Team completed the 65% Plans, Specifications and Estimates (PS&E) of Quarry Lakes Parkway, Phase 2 (Gateway Connection) and submitted it to Alameda CTC for review. In addition, the Consultant repackaged the 35% PS&E of Quarry Lakes Parkway, Phase 1 (7
th Street Connection) and submitted the package to Alameda CTC for review. This submittal also included a revised Cost Estimate for Quarry Lakes Parkway, Phases 1-4.
On October 24, 2024, a meeting was held with Alameda CTC and Union City staff to discuss the design status and the complexity of Quarry Lakes Parkway, Phases 1-4, along with a summary of the key design components. Components include the completed 35% Plans of Quarry Lakes Parkway, Phase 1 (7
th Street Connection), the 65% Plans of Quarry Lakes Parkway, Phase 2 (Gateway Connection), and the Preliminary Engineering (30% Design) of Quarry Lakes Parkway, Phase 3 (11 th Street Connection) and Phase 4 (Alvarado-Niles
Road Connection). The status of the current project funding agreements was discussed, including the remaining grant funds and milestone schedules and that Alameda CTC is committed to supporting project delivery of usable segments. Alameda CTC reiterated the need for a complete 65% design and matching cost estimates to enable their staff to complete the required due diligence related to review of the project scope elements, cost estimates, and reasonableness of the funding plan.
At the same meeting, the City detailed the complexity of the environmental mitigation requirement and stated that the resource agencies led by Regional Water Quality Control Board, are requiring mitigation implementation of Quarry Lakes Parkway Phases (Segments) 1-4 before construction can begin on Phases (Segments) 1 and 2. The City explained that as part of the mitigation the importance of constructing the “gravity flowing” Line M overflow pipe in Segment 1, collecting stormwater from the impacted wetlands (2c Basin and the Line M Detention Basin), and draining into Old Alameda Creek in Phase (Segment) 2.
On December 5, 2024, the Alameda CTC Commission approved Amendment No. 2 to the Project Funding Agreement No. A22-0053 for Phases (Segments) 1 and 2 of the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04, increasing the grant funding by $801,191 to complete QLP Phase 1 65% PS&E and extending the expiration date to December 31, 2026, for a total PFA amount of $5,001,191 (see Exhibit A). The increase of $801,191 to Alameda CTC Quarry Lakes Parkway (East West Connector) PFA No. A22-0053 is from the remaining balance of 2018 Alameda CTC East West Connector PFA No. A18-0046, which expired on June 30, 2024.
The design of 65% Plans of Quarry Lakes Parkway, Phase 1 (7 th Street Connection), was delayed because of required coordination and approval by Alameda County Flood Control of the section and layout of the Line M Flood Control Channel realignment, and to better understand the impacts to the Corp Yard site. The updated 65% Plans with the matching cost estimate will be completed by the Consultant Team and submitted by June 2025 to Alameda CTC to enable their staff to complete the required due diligence related to review of the project scope elements, cost estimates, and reasonableness of the funding plan. Alameda CTC anticipates reporting back to the Commission in September 2025 for approval of a future amendment with additional design budget to complete Final Design (100% PS&E) for Quarry Lakes Parkway, Phase 1.
On January 14, 2025, the City Council adopted Resolution No. 2025-006, authorizing the City Manager to execute Amendment No. 2 of the Alameda County Transportation Commission (Alameda CTC) Project Funding Agreement No. A22-0053, to accept an additional $801,191, for a total PFA amount of $5,001,191, for Final Design of Phases (Segments) 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04.
On February 11, 2025, the City Council adopted Resolution No. 2025-021, authorizing the City Manager to execute the Third Amendment to the Consulting Service Agreement with Mark Thomas & Company, Inc. in the amount of $801,191, for Final Design of Phases (Segments) 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04, for a total contract amount of $5,001,191.
The Third Amendment to the Consulting Services Agreement with Mark Thomas & Company, Inc., allowed the Consultant to complete the 65% Plans and Engineers Estimate for Phase 1 of Quarry Lakes Parkway by refining the engineering design of the Line M Flood Control Channel realignment, the 7
th Street geometrics, with coordination with Alameda County Flood Control District. The work also included the coordination with Regional Water Quality Control Board on behalf of the resources agencies for the environmental mitigation permit approval of the Quarry Lakes Parkway, Phases (Segments) 1-4 before construction of Quarry Lakes Parkway, Phases (Segments) 1 and 2 along with design of the “gravity flowing” Line M overflow pipe in Phase (Segment) 1, collecting stormwater from the impacted wetlands (2c Basin and Line M Detention Basin) and draining into Old Alameda Creek in Phase (Segment) 2.
On April 30, 2025, the Consultant completed the 65% Plans, Specifications and Estimate (PS&E) of Quarry Lakes Parkway, Phase 1 and submitted to the City and Alameda CTC, Alameda County Flood Control District, Alameda County Water District, Union Sanitary District, PG&E and other utilities, and to Caltrans for their review and written comments.
On May 22, 2025, the Alameda CTC Commission approved the 2026 Comprehensive Investment Plan, which authorizes the Commission to approve the following:
1. Approve the 2026 Comprehensive Investment Plan (CIP), which incorporates:
$60.16 million in new programming and allocation recommendations consisting of Measure B (MB), Measure BB (MBB), Vehicle License Fee (VLF) and Transportation Fund for the CleanAir (TFCA) funds, $32.09 million in previously approved programming actions occurring after the 2024 CIP Update was approved on May 23, 2024, and
Technical adjustments to previously approved CIP funds, including $5.59 million in new allocations of previously programmed funds.
2. Authorize the Executive Director or designee to execute Project Funding Agreements (PFAs) for funding awarded and allocated through the 2026 CIP
As stated in Exhibit A, 2026 Comprehensive Investment Plan, the report identifies new programming and allocation recommendation to advance delivery of projects and to actively leverage significant outside funding in the amount of $9.87 million, three (3) Alameda CTCsponsored projects and Quarry Lakes Parkway were included (description for Quarry Lakes Parkway below):
"Quarry Lakes Parkway (QLP), Union City ($3.995 million, 1986 MB, for QLP, “Segment 2” Project). The QLP project is the last of the project from the 1986 Measure B Transportation Expenditure Plan (1986 MB TEP) with remaining allocated funds. In March 2018, the Commission approved the transfer of the project sponsorship for the I-880 to Mission Boulevard East West Connector Project from Alameda CTC to the City of Union City. The project funding at the time included approximately $89 million of 1986 Measure B funds with $69 million remaining for future expenditure. The $3.995 million recommendation is for the design phase of the QLP, Segment 2 project and is conditioned as follows:
Commission policy as reflected in the current CIP allows for risk management strategies such as initial usable segments to address risks to full project implementation, including significant funding shortfalls. As applied to this recommendation, the Initial Usable Segment strategy is intended to allowfor currently available funding to be put to use to provide some portion of the intended benefits of the overall, underfunded project while minimizing the amount of funding expended at risk on a project with a significant funding shortfall or other impediments to the implementation of the full project. The benefits of the Initial Usable Segment must be independent of the need to construct future segments of the overall project.
The current staff recommendation is made with the understanding that the City needs to develop the design to a level of detail that identifies and supports the delivery of an Initial Usable Segment that is eligible for the 1986 MB funds. The expected deliverable for the recommended allocation for the design phase of Segment 2 is a set of construction-ready plans, specifications and estimates for the Initial Usable Segment." Next Steps
On June 24, 2025, the City Council adopted Resolution No. 2025-087, authorizing the City Manager to execute Amendment No. 3 of the Alameda County Transportation Commission (Alameda CTC) Project Funding Agreement No. A22-0053, to accept an additional $3,995,000, for a total PFA amount of $8,996,191, for Final Design of Phases (Segments) 1 and 2 for the Quarry Lakes Parkway (East West Connector) Project, City Project No. 18-04.
These additional 1986 Measure B funds will provide the Consultant, Mark Thomas & Company, Inc., additional budget (Fourth Amendment) in the amount of $2,988,000 to complete the Final Plans, Specifications and Estimate (PS&E) for Quarry Lakes Parkway Phase 2; $250,000 for Construction Management firm to review the Final PS&E for constructability before advertisement; and the remaining budget of $757,000 for environmental mitigation permit and utility review fees, totaling $3,995,000.
The Fourth Amendment to the Consulting Services Agreement with Mark Thomas & Company, Inc., will also allow the Consultant coordinate with the residential developer of approximately 535 new residential units (25% affordable) on the former Caltrans property on development details such as new roadway alignment, the utility connections, the sidewalk connections, locations of new driveways, the intersections designs and traffic signals, the streetlights, trees, landscaping and irrigation and allow the City to update Caltrans on the anticipated schedule for the deposit of appraised value estimated over $86 million.
FISCAL IMPACT
The FourthAmendment to the Consulting Services Agreement with Mark Thomas & Company, Inc., (C5833) in the amount of $2,988,000, for Final Design of Phase (Segment) 2 of the Quarry Lakes Parkway Project, City Project No. 18-04, will be funded from Capital Projects Grants Fund monies (Account Number 41091804-57128).
There will be no fiscal impact to the General Fund.
RECOMMENDATION
Staff recommends that the City Council adopt the attached resolution authorizing the City Manager to execute the Fourth Amendment to the Consulting Services Agreement with Mark Thomas & Company, Inc., in the amount of $2,988,000, for a total contract amount of $7,989,191, for the final design of Phase (Segment) 2 of the Quarry Lakes Parkway (East West Connector) Project, City Project No.18-
04. Prepared by:
MarilouAyupan, Public Works Director
Submitted by:
MarilouAyupan, Public Works Director
ATTACHMENTS:
Description Type
Attachment 1 - FourthAmendment Attachment
Attachment 2 -Amendment No. 3 to PFA No.A22-0043 Attachment Amendment 3 - QLPMitigation Permits Attachment
Draft Resolution Resolution
ExhibitA -AlaCTCITEm8.2_2026 CIP Exhibit
Exhibit B- QLPPhase 2 Title Sheet Exhibit
REVIEWERS:
Department Reviewer Action Date
Public Works Ayupan, Marilou Approved 8/8/2025 - 3:09 PM City Manager’s Department Malloy , Joan Approved 8/8/2025 - 8:15 PM