Item Number: 1
City Council / Board of Directors
Public Hearing(s)
Meeting of: June 17, 2025
Submitted By:
Fredy Bonilla, City Engineer
Subject:
Citywide Pavement Preservation and Maintenance Project Phase II - Approve Notice of Exemption and Award of Construction Contract
Recommendation:
That the Honorable City Council:
(1) Open and conduct a Public Hearing to receive testimony regarding the proposed Capital Improvement Project and California Environmental Quality Act Notice of Exemption;
(2) Close the Public Hearing;
(3) Approve the California Environmental Quality Act Notice of Exemption and authorize staff to file the notice with the Office of Planning and Research and the County Clerk; and
(4) Award a Construction Contract to Pavement Coatings Co., Inc. in the amount of $1,052,251.48 for the Citywide Pavement Preservation and Maintenance Project – Phase II, CC25-120.
Fiscal Impact:
This action will result in a fiscal impact of $1,052,251.48, an additional appropriation is not required. There are sufficient funds in the budget to cover the planned expenses. This Project will be funded by Measure I – Fund 250 for Project Number 60144 and Measure P – Fund 105 for Project Number 80090. The Fiscal Year (FY) 24/25 budget was approved by City Council and included these Capital Improvement Projects. The funds for Project Number 80090 are budgeted for Avalon Park. The project account codes, available budget, and the total budget are shown in the table below:
Account Code Fund Available Budget
2504500-55315-60144 Measure I $1,058,880.79
1056000-52410-80090 Measure P $77,172.96
Total: $1,136,053.75
4 1
6 7
Strategic Plan Goal:
This Project aligns with Goal E: Invest in Infrastructure, as outlined in the City of Victorville Strategic Plan 2023-2026. The proposed preservation treatments for public streets and parking lots will help extend their useful life by an additional 5 to 7 years.
Background:
Utilizing the City’s Pavement Management System, Engineering reviewed the pavement conditions of the City’s roadway network and selected roads to receive a rehabilitation or preservation treatment to prolong the life of the road. This project scope includes the application of treatments on road segments scattered throughout the City. The locations listed below were included in the Base Bid Scope of Work. Please refer to Attachment A (Vicinity Map), which shows the extent of the work and includes numbered locations corresponding to the list below.
•Location 1: Amargosa Road between Cracker Barrel Restaurant and Bear Valley Road
•Location 2: Amargosa Road between Seneca Road and Kimberly Drive •Location 3: Third Avenue from about 860 feet north of Bear Valley Road to Silica Drive
•Location 4: Hesperia Road between Verde Street and D Street •Location 9: Forrest Avenue between La Paz Drive and Seventh Street •Location 10: Avalon Avenue between La Paz Drive and Second Street •Location 11: Avalon Park parking lot
The City’s current pavement preservation strategy includes applying a double-layer micro-surfacing treatment, along with crack filling, crack sealing, and pothole patching.
This strategy does not replace the existing asphalt pavement but prolongs the life of the existing pavement by sealing it. Sealing the pavement against water infiltration helps protect the subgrade from moisture. When water penetrates the soil beneath the pavement, it can lead to movement and deformation from constant traffic. Over time, this soil movement contributes to the formation of ruts and potholes in the asphalt pavement.
Double-layer micro-surfacing is used as a cost-effective pavement preservation strategy to extend the life of the existing asphalt by preventing water from penetrating the underlying soil. This treatment is a relatively inexpensive method compared to asphalt grind and overlays (pavement rehabilitation work) or full depth pavement reconstruction.
The current cost associated with a micro-surfacing treatment is approximately $1.25 per square foot, compared to an approximate cost of $4.50 per square foot for a 2-inch grind and overlay, which involves removing the top 2 inches of existing asphalt and replacing it with 2 inches of new asphalt pavement. With a limited budget to maintain and reconstruct the City’s roadway network, preservation treatments are a cost-effective way to prevent the formation of ruts and potholes and to delay the need for more expensive full road reconstruction.
4 1
6 7
A double layer micro-surfacing treatment consists of two applications of a micro-surfacing mixture that includes sand, finely crushed aggregate, micro-surfacing emulsion, water, and alkali glass fiber additives. The inclusion of glass fibers allows the material to flex and contract under traffic loads, functioning like a flexible “band-aid” over the existing pavement. This treatment helps to increase the lifespan of an existing road more effectively than a traditional slurry seal. Micro-surfacing is also a rapid setting treatment, similar to slurry seal, which minimizes road closure durations. While it does not provide the same level of surface smoothing as a grind and overlay or full reconstruction, it can improve ride quality more than a slurry seal treatment can.
The Bid Schedule in the Bid Proposal consisted of two parts: the Base Bid (Schedules A & B) and Additive Work (Schedule C). The Base Bid defined the established Scope of Work used to determine the lowest responsive, responsible bidder who would be recommended to the City Council for award of the Construction Contract. Additive Work was not included in the Base Bid but required the Contractor to submit Unit Prices for additional work. These additional segments of roadway could be included in the Contract Scope of Work if the project budget allowed.
In anticipation of the proposed work, the City’s Public Works Department has been removing and replacing deficient areas of asphalt pavement and completing maintenance on the above-mentioned street segments.
Discussion:
It is a routine requirement to comply with the California Environmental Quality Act (CEQA) before construction starts on a public works project. The attached Notice of Exemption (Attachment B) describes the project activities and states that the project is categorically exempt under CEQA §15301(c) for the replacement and minor alteration of existing public infrastructure. Activities such as asphalt pavement repair, crack sealing, slurry sealing, micro-surfacing, and striping fall within this exemption category.
The project was bid using formal bid procedures in accordance with Victorville Municipal Code §2.28.210 and the California Public Contract Code. On May 22, 2025, four (4) bids were received and publicly read aloud. The bidders and base bid results are shown below:
Company Base Bid Amount
Union Pavement Services, Inc. $872,112.98
Pavement Coatings Co. $919,868.85
American Asphalt South, Inc $928,858.87
Roy Allan Slurry Seal, Inc. $946,585.12
After careful review and tabulation of the bid proposals, staff determined the lowest responsive and responsible bidder was Pavement Coatings Co. Although Union Pavement Services, Inc. submitted a lower bid, it was found to be non-responsive. Both Engineering staff and the City Attorney conducted a careful review of Union Pavement Services’ bid and identified errors in the bid schedule tabulation as well as an incomplete Contractor’s Qualification Statement (CQS) form. Specifically, the CQS form lacked 4 1
6 7
information for three (3) projects completed directly by Union Pavement Services and omitted responses to Subsections xi through xvi of Questions 2.a, 2.b, and 2.c. of the CQS form. Moreover, the project references provided were for work performed by individuals employed by other contractors, not Union Pavement Services itself. Due to these specific omissions, the City Attorney concluded the bid was non-responsive.
The determination aligns with the following statement from the CQS form: “Failure to adequately demonstrate the required prior work/project completion experience will deem the bid nonresponsive and ineligible for further consideration.” Following the submission and opening of bids, the City received a non-specific bid protest letter from Pavement Coatings Co. on May 8, 2025. However, the determination of Union Pavement Services’ bid as being non-responsive was not based on this protest letter.
The Engineer’s Estimate for the project’s Base Bid work before advertisement was $1,018,100.00. The lowest responsive and responsible base bid came in at approximately
9.6% below the Engineer’s Estimate.
Upon review of the bid documents and tabulation of the bid proposal from, it was determined that the total bid amount for the preservation treatments included in the Base Bid amount totaled $919,868.85. With an available Measure I budget of $1,058,880.79, a remaining balance of $139,011.94 is available for potential additional road segment treatments. Engineering Staff recommends that the Contractor perform additional work from Schedule C – Additive Work which was included in the bid but separate from the Base Bid. This additional work is recommended to be incorporated into the final Contract scope for an amount of $132,382.63 and includes the following locations numbered and shown in Attachment A.
•Location 5: Luna Road between Carleton Circle and Cobalt Road •Location 6: Luna Road between Fox Run Road and Amethyst Road •Location 7: Eucalyptus Street between US Highway 395 and 320 feet west of Richmond Avenue
The Engineering Department will be responsible for the management of the construction for this Project. Construction is likely to start in July 2025 and is estimated to last approximately 40 working days. The start date and total duration of the Project will depend on weather conditions.
Staff recommends that the City Council approve the Notice of Exemption and award a Construction Contract in an amount of $1,052,251.48 to Pavement Coatings Co. for the Citywide Pavement Preservation and Maintenance Project – Phase II for the Base Bid amount and some Additive Work included with the Bid Proposal.
Staff remains available for any questions Council may have.
Prepared By:
Sarah Mayne, Management Technician
4 1
6 7
Attachments: A. Vicinity Map
B. Notice of Exemption
C. Construction Contract