City Council Staff Report Page 1 of 10 October 13, 2026
CITY COUNCIL
STAFF REPORT
Agenda Item No. 4.1
DATE: October 13, 2026
TO: Honorable Mayor and Members of the City Council
FROM: Joan Malloy, City Manager
SUBJECT: Adopt a Resolution Accepting the BART Transit Column Mural Project Update, Approving a Revised Project Timeline, Approving the Request for Qualifications and Request for Proposals, and Approving a Budget Appropriation
EXECUTIVE SUMMARY
Staff recommends that the City Council adopt a resolution to accept the BART Transit Column Mural Project update, approve the revised project timeline, and approve the Request for Qualifications (Exhibit A.1) and Request for Proposal (Exhibit A.2) for artist(s) selection and appropriating an additional $30,000 in funds from the Art in Lieu Fee – Fund 268 to complete the artistic scope of work. Over the past year, staff has provided City Council with project updates on the work plan and timeline, community engagement activities, findings and insights from community input, and key project elements. Since City Council adopted the resolution accepting the BART Mural Project Community Feedback Report, which included the five themes identified through the Phase I community engagement process and the summary of community outreach and engagement activities on April 14, 2026, staff have been developing a full scope of work for the project in collaboration with City departments and in partnership with BART. Staff must understand and delineate the roles and responsibilities of the City, the selected artist(s), and BART requirements. As a result, the information gathered informed the development of the request for qualifications (RFQ) and request for proposals (RFP), including key elements, process, and timeline.
STRATEGIC PLAN ALIGNMENT
Goal E. Communication and Outreach: Build connections with community partners, residents, and employees.
Strategy: Collaborate with the Arts and Culture Commission and Bay Area Rapid Transit (BART) to place murals on the Kennedy Park BART pillars.
Agenda Item No. 4.1
City Council Staff Report Page 2 of 10 October 13, 2026
BACKGROUND
The BART Transit Column Mural Project, formerly BART Mural Project (“Project”), began in 2024, when City staff initiated discussions with Bay Area Rapid Transit (“BART”) regarding the process for developing murals on BART pillars in Union City. Because of the Project's size and complexity, and BART’s art and design requirements, BART recommended that the City retain a qualified public art consultant to assist with project planning, coordination, and implementation through BART’s application and approval process. The Project is also informed by the BART Arts Program Master Plan 2019, which outlines BART’s vision and framework for incorporating visual, performance, literary, and other art forms throughout the system. The Project name was changed to include Transit Column at the suggestion of BART Arts Program Manager Jennifer Easton to more clearly distinguish the art project's location outside the BART station but on BART transit column property.
In April 2025, the City agreed with Evelyn Orantes (“EO”) Consulting to provide guidance and support throughout the Project. EO Consulting has extensive experience in arts administration, public art, and cultural programming, including large-scale mural and sitespecific public art projects. EO Consulting also previously led BART’s Fruitvale Station mural project in Oakland, which involved a multi-phase mural installation on ten pillars connecting the station to the Fruitvale Business District.
On August 12, 2025, the City Council accepted the Project work plan for May 1, 2025, through June 30, 2027, and directed that the murals reflect the history of the Decoto community (Resolution No. 2025-121). On April 14, 2026, City Council adopted a resolution accepting the BART Mural Project Community Feedback Report, the five themes, and the engagement activities. With this approval, City staff, with guidance and support from EO Consulting and BART, began developing the request for qualifications.
The project identifies 10 columns: two on Decoto Road across from Charles F. Kennedy Park, seven along the park's eastern edge parallel to 12th Street, and one on J Street across from the park. This area includes pedestrian pathways, park sections, high-traffic areas, and transit-adjacent spaces.
The columns vary in height and circumference; each concrete column is approximately 20 feet tall, has six sides, and each side is 42 inches wide. The columns serve as highly visible landmarks, visible from a variety of viewing distances and perspectives. An aerial map and photos of the BART columns are provided as Exhibit D - Aerial Map and Photos of BART Columns.
DISCUSSION
The artist selection process for the BART Mural Project will be conducted in two phases through an open and competitive process: a Request for Qualifications (“RFQ”) and a Request for Proposals (“RFP”). A review panel composed of City staff, BART representatives, and arts professionals will evaluate all RFQ and RFP applications for minimum qualifications. The panel will include Laura Buzo, Director of Community and Recreation Services, Union City, along with external panelists Jennifer A. Easton, Arts Program Manager, BART; Rosa Valdez, Public Art Program Coordinator, Alameda County; and Evelyn Orantes, Art Consultant.
Agenda Item No. 4.1
City Council Staff Report Page 3 of 10 October 13, 2026 Collectively, Jennifer, Rosa, and Evelyn bring more than 70 years of experience in public art, arts administration, curatorial practice, and cultural consulting. Jennifer has served as BART's Art Program Manager since 2016 and previously spent 12 years managing public art programs for the City of San José, following earlier experience as a curator. Rosa serves as the Public Art Program Coordinator for the Alameda County Arts Commission and has more than 25 years of experience administering public art and arts programs.
Evelyn, Union City consultant for this project, is a cultural and public art consultant with more than 25 years of experience leading community-centered public art initiatives and cultural planning efforts. Together, they offer extensive expertise in public art program administration, artist selection, project implementation, and community engagement.
Laura Buzo brings more than 20 years of public-sector experience in grant administration, procurement, and contract management. She has extensive experience developing and evaluating RFQs and RFPs, administering and overseeing competitive selection processes, and overseeing and managing grants and contracts exceeding $1 million at the local and state level.
The RFQ is the first phase of the artist selection process and focuses on qualifications— identifying individual artists or artist teams with the artistic experience, technical capacity, and demonstrated ability to complete a community-centered public art project of this scale and complexity. After a thorough screening and scoring process, the top qualified artists or artist teams from the RFQ applicant pool will be invited to participate in the RFP process. This is the second phase of the artist selection.
In the RFP phase, artists will develop detailed proposals that the same review panel that evaluated the RFQ, along with the community, will evaluate and rate. Artists or artist teams that meet the RFQ minimum requirements and submit a completed application will be included in a Qualified Mural Artist Vendor Pool for future Union City projects, until June 30, 2032. Artists who do not meet the minimum requirements may still be included in the qualified vendor pool. For any future projects in which the City seeks to contract with an artist or artist team, a separate selection process will be conducted using the Qualified Mural Artist Vendor Pool.
Request for Qualifications
Upon City Council Approval, City staff intends to release the BART Transit Column Mural Project RFQ on Monday, October 19, 2026, with a submittal deadline of Monday, November 30, 2026. This will give applicants six weeks to complete the application.
Incomplete and/or late applications will not be accepted or reviewed. The RFQ is included as Exhibit A.1. City staff developed the RFQ through an extensive, inclusive community engagement process. The RFQ embeds the findings and insights from these efforts throughout the document. The RFQ also includes additional findings and analysis that provide more detail. The RFQ was also developed in consultation with BART.
The RFQ application elements and process include the following:
Eligible Applicants
RFQ eligible applicants must meet the following requirements and be able to articulate their experience, capacity, and ability clearly:
Agenda Item No. 4.1
City Council Staff Report Page 4 of 10 October 13, 2026 • Applicants must be 18 years of age or older.
• Individuals under 18 years of age are not eligible to apply for this RFQ and/or participate in on-site painting or installation activities. • Individuals under 18 years of age, or those who do not meet the minimum experience requirement, are encouraged to apply to paint a mural on a Union City utility box project.
• Applicants may apply as an individual artist or as part of a collaborative team with a designated lead artist; however, applicants may not submit multiple applications or participate in more than one RFQ application.
• Applicants may be local or regional artists and artist teams. • Applicants must demonstrate they are mid-career artists or artist teams with a minimum of five (5) years of experience completing large-scale public or private art or mural commissions.
• Applicants should be knowledgeable of and experienced in the logistical, operational, and safety requirements associated with large-scale mural production, including the use of lifts, scaffolding, and other site-specific equipment.
RFQ Application Elements
All RFQ applicants must complete and submit all elements of the application as described in the RFQ document, Section 1 through 5, on pages 11 - 14.
Section 1: Cover Page, that includes general information about the applicant.
Section 2: Statement of Qualifications and Experience. Applicants must articulate in a narrative response their qualifications and relevant experience and examples of public art or mural projects of similar scale and complexity.
Section 3: Artist(s) Résumé or Curriculum Vitae (CV). Applicants must submit a current résumé or CV outlining their professional experience and accomplishments as an artist. If applying as a team, each artist must submit an individual résumé or CV.
Section 4: Portfolio of Work. Applicants will submit at minimum 3, but not more than 5, portfolio samples of completed projects that represent the work of the lead artist or the artist team.
Section 5: References. Applicants will provide three professional references who can speak to their experience and/or to their work with an artist on a commissioned art project within the past 5 years.
RFQ Application Submittal Process
Applicants will submit their completed RFQ by 12:00 p.m. (Noon) on Monday, November 30, 2026, through an online portal available on the Union City website.
RFQ Application Review Panel
A review panel will evaluate and score each submitted application using a 100-point rubric to ensure the applicant meets the minimum requirements, submits all required documents, and clearly articulates their experience.
Agenda Item No. 4.1
City Council Staff Report Page 5 of 10 October 13, 2026 RFQ Application Review and Evaluation Criteria
The rubric below outlines the evaluation criteria and the maximum points assigned to each section of the application.
Description Possible Points
Artistic Experience and Technical Capacity: Demonstrated artistic experience, originality, visual impact, and overall technical capacity of the applicant. The panel will consider the consistency, technical skills, creativity, and professional caliber of submitted work samples.
20 Experience with Similar Scale, Complexity, and Public-Facing Projects:
Demonstrated experience completing projects of similar scale, complexity, and visibility, particularly in civic, community, transit, park, educational, or other public-facing environments. We will also consider project management experience, technical capabilities, and experience working safely in active public spaces.
30 Experience with Community-Centered Projects and Overall Capacity: Demonstrated ability to work in community-informed environments and to incorporate community voice, stakeholder input, and collaborative processes into artistic practice. The panel will consider examples of previous community-engaged projects and the applicant's ability to balance artistic vision with community interests.
30 Experience with Collaboration, Cultural Responsiveness, and Local Context: Demonstrated collaborative approach, cultural sensitivity, and experience working with diverse communities, public agencies, project partners, and stakeholders. Consideration may also be given to an applicant's connection to Decoto, Union City, or the surrounding region.
20 TOTAL 100
The top qualified artist(s) or artist teams receiving a score of 75 points or higher on their RFQ submission will be invited to submit a design proposal as part of the RFP phase. All RFQ applicants will be notified of the status of their submission and whether they have been selected to advance to the RFP phase. Furthermore, all RFQ applicants deemed qualified and scoring 75 points or higher will be placed on the qualified mural artist vendor pool for future Union City projects until June 30, 2032. Applicants who receive a score of 74 or less may still be included in the qualified vendor pool.
Request for Proposals
The RFP is the second phase and focuses on candidates developing a site-specific design proposal for murals on up to 10 BART transit columns. This phase identifies the artist or artist team whose design proposal best embodies the project's vision and goals, reflects the priorities and themes identified through the community engagement process, Agenda Item No. 4.1
City Council Staff Report Page 6 of 10 October 13, 2026 and aligns with the BART Arts Program Guideline. The artists will also demonstrate the highest standards of artistic excellence, technical feasibility, and long-term durability. The RFP candidates/artists will be provided with a $2,000 stipend to develop the design proposal and to attend two community forums. RFP candidates will have January 9– February 22, 2027, to develop their design proposals.
The RFP elements and process include the following:
RFP Information Session for Invited Candidates
RFP candidates will be invited to participate in a required RFP information session. This meeting will allow City staff to review the RFP's expectations and required elements and provide guidance on preparing a responsive, site-specific mural design proposal.
RFP Elements
All candidates must complete and submit all required elements of the RFP, Section 1 through 5, on pages 11 - 14.
Section 1: Cover Page, which includes general information about the applicant.
Section 2: Design Rendering Narrative, applicants must articulate their artistic concept, vision, and overall design approach in a narrative response, including how their proposed murals incorporate the identified themes and the unique history, character, and cultural identity of the Decoto community and Union City.
Section 3: Design Proposal. Applicants will develop a site rendering of each column that includes a description of the proposed medium and color palette.
Section 4. Materials and Technical Approach: Applicants must articulate in a narrative response the materials, paint systems, and installation methods they will utilize for this project.
Section 5: Project Work Plan. Applicants will develop a proposed work plan and schedule outlining major milestones, deliverables, and anticipated timelines from contract execution through design development, installation, and completion.
Section 6. Project Budget: Applicants will develop a detailed line-item budget, with a brief narrative/description for each proposed itemized expense, that includes, but is not limited to, materials, supplies, equipment, project staff wages, etc.
Section 7: Maintenance Statement, applicants must articulate in a narrative response the anticipated maintenance requirements and expected durability of the proposed mural.
Section 8: RFP candidates will be required to participate in two community forums; • Community Forum: Celebrating the History and Legacy of the Decoto community and Union City. Candidates will have an opportunity to learn directly from community members about the history of the Decoto community and Union City.
Scheduled for January 9, 2027, from 10:00 am – 12:00 pm. • Community Forum: Artist Design Proposal Presentations. Artists will present preliminary design concepts and receive community feedback. Scheduled for March 13, 2027, from 10:00 am – 12:00 pm.
Agenda Item No. 4.1
City Council Staff Report Page 7 of 10 October 13, 2026 RFP Submittal Process
Applicants will submit their completed RFP application, including their design proposal, by 12:00 pm on Monday, February 22, 2027, through the online portal available on the Union City website.
RFP Application Review Process
The committee will evaluate each design proposal using a 100-point scoring system that combines professional review and community input.
• Review Panel (50 Points): The review panel will evaluate each proposal based on artistic excellence, responsiveness to the community-identified themes and project vision, alignment with the BART Arts Program Guidelines and site context, technical feasibility, durability, and the overall quality of the proposal and presentation. The same review panel from the RFQ will evaluate each RFP application. • Community Input (50 Points): Finalists will present their design proposals at a public community forum, and residents will have the opportunity to view the proposals, hear artist presentations, and provide input. Community members will have an opportunity to provide input from March 13 – March 31, 2027.
RFP Application Review and Evaluation Criteria
The rubric below outlines the evaluation criteria and the maximum points assigned to each section of the application.
CATEGORY POSSIBLE
POINTS
Artistic Excellence and Visual Impact 10
Responsiveness to Community Themes 10
Alignment with BART Art Guidelines and
Site Context 10
Feasibility and Implementation Readiness 10
Community Engagement Approach and Presentation 10
Community Input and Feedback 50
TOTAL 100
Top-scoring artists will be recommended for selection. These recommendations will be forwarded to BART, the Union City Arts and Culture Commission, and the City Council for review and final approval.
Artist(s) or artist teams that are invited to submit a design proposal but are not selected for the BART Transit Column Mural Project will be placed in the City's Qualified Mural Artist Vendor Pool through June 30, 2032, and may be considered for future public art and mural opportunities, subject to project-specific needs and funding availability.
Following all required approvals, the City will enter into a Professional Services Agreement with the selected artist(s). The agreement will be required to satisfy all Agenda Item No. 4.1
City Council Staff Report Page 8 of 10 October 13, 2026 insurance, licensing, and contractual requirements established by the City and BART, including but not limited to prevailing wage obligations as provided for in Sections 1771- 1774 of the Labor Code. The City will negotiate and execute the agreement with the selected artist(s). The selection process will be finalized when a contract is executed. City staff, BART representatives, and the project consultant will work collaboratively with the selected artist(s) to refine and finalize the mural design, scope of services, project budget, and implementation schedule.
Project Budget
The City is allocating a total budget of $150,000 for the design and installation of artwork for up to 10 BART columns, with an estimated budget of approximately $15,000 per column. BART and consultant Evelyn Orantes determined the price per column.
Mural project budgets are commonly estimated based on total paintable surface area, using a per-square-foot rate that accounts for labor, materials, project complexity, and, for public art projects, additional requirements such as design development, meetings, coordination, and community engagement.
Each column is approximately 20 feet high, with six faces measuring approximately 42 inches wide, for about 420 square feet of paintable surface per column, or 4,200 square feet across ten columns. 420 sq. ft. × $35.71/sq. ft. ≈ $15,000 per column The proposed $15,000 per-column project allocation is also comparable to the percolumn allocation for the Fruitvale BART Station mural project, completed in 2024, which included 10 murals. Staff is proposing that no individual contract with an artist(s) or artist team(s) exceed $75,000. However, based on the submittals, the City may want to reconsider final contract award amounts.
Final contract amounts will be based on the total number of columns assigned to each artist or artist team, the project scope, and anticipated efficiencies related to materials, equipment, project management, and installation. The budget and scope of work will be negotiated with the selected artist(s) following approval by the City Council.
City’s Role and Responsibility
Given the size and complexity of the BART columns—including their height, location, proximity to active tracks/streets, park, sidewalk, pedestrian pathway, and overall condition — City staff has been working closely with BART and City departments over the past months to identify all project requirements to inform the process, timeline, and requirements for artist selection.
City staff has been instrumental in identifying all aspects and elements of this project, from preparation to mural installation. It also defines the City's responsibilities, project logistics, technical requirements, safety considerations, and updated project timeline.
This ensures that all aspects of the project have been clearly considered to minimize unexpected interruptions once the artist(s) are selected and are ready to begin mural installation. As a result, the City’s role and responsibility will include, but is not limited to:
• BART Permits: Obtain and submit the proper BART permits to clean, prepare, and Agenda Item No. 4.1
City Council Staff Report Page 9 of 10 October 13, 2026 install the murals on the 10 identified columns.
• BART Column Cleaning and Preparation: Clean and prepare the BART columns for the mural installation.
• City will secure a contractor to clean and prepare the columns. • City will be responsible for stenciling/labeling each column as required by BART. • Environmental Control Plan: Develop an environmental control plan to identify, minimize, monitor, and manage potential environmental impacts related to the project. • Traffic Safety Control Plan: Develop a traffic safety control plan to prepare and manage street/lane closures on Decoto Road and 12th Street for mural installation. • Prepare and manage park and pedestrian pathway closure surrounding the columns.
The artistic costs do not include permits, cleaning and preparation of the columns, or any additional preparation (environmental and traffic controls, for example). Once staff better understand the scope for securing permits and preparing the worksite, they will return to the City Council for additional approvals to fund this portion of the Project.
FISCAL IMPACT
There is no impact on the general fund.
The BART Mural Project is funded through the Public Art In-Lieu Fee – Fund 268. City Council approved $200,000 in Fiscal Year 2024-2025 to launch the project. However, as staff have identified the key elements of the project, additional costs not previously identified have emerged. As a result, additional funds are needed to complete the project successfully. Staff requests an additional $30,000 to complete the artistic scope of work.
RECOMMENDATION
Staff recommends that the City Council adopt a resolution accepting the BART Transit Column Mural Project Update, approving a Revised Project Timeline, approving the Request for Qualifications and Request for Proposals, and approving a budget appropriation of $30,000 from the Public Art In-Lieu Fee – Fund 268 to complete all artistic phases of the project.
Staff will return to City Council in early Spring 2027 to request their approval of the recommended artist(s) and mural design selection. At that time, staff will also seek authorization for site preparation work under the City’s control.
Prepared by: Laura Buzo, Community and Recreation Services Director With the support and guidance of Chu Thai, Finance Director, and Kristopher Kokotaylo, City Attorney
Submitted by: Laura Buzo, Community and Recreation Services Director Agenda Item No. 4.1
City Council Staff Report Page 10 of 10 October 13, 2026
ATTACHMENTS
1. Draft Resolution
2. Exhibit A.1 - City of Union City BART Transit Column Mural Project Request for Qualifications
3. Exhibit A.2 - City of Union City BART Transit Column Mural Project Request for Proposals
4. RFQ/RFP Exhibit A - Union City BART Mural Project: A Community Feedback Report (Complete Report)
5. RFQ/RFP Exhibit B - September 11, 2025, BART Mural Project Community Forum Notes
6. RFQ/RFP Exhibit C - Bay Area Rapid Transit (BART) Arts Program Guidelines
7. RFQ/RFP Exhibit D - Aerial Map and Photos of BART Columns
8. RFQ/RFP Exhibit E - City of Union City BART Transit Column Mural Project Request for Proposals (RFP) - Attached above as Exhibit A.2
9. RFQ/RFP Exhibit F - Union City Standard Contract