Westminster City Council
SUBJECT
Title
Adoption of Plans and Specifications, Authorization to Solicit Construction Bids, and Approval of Seven (7) Public Highway At-Grade Crossing Agreements with Union Pacific Railroad Company for the Mendez Historic Trail & Green Street Bikeway Project (Mendez Freedom Trail Project).
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publichearing
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From: Adolfo Ozaeta, Assistant City Manager
Jake Ngo, Public Works Director/City Engineer
Requested by: Administration
Prepared by: Veronica Johnson, Management Analyst
____________________________________________________________
RECOMMENDED ACTION
Recommendation
A. Approve the plans and specifications for the construction of the Mendez Historic Trail & Green Street Bikeway Project (Mendez Freedom Trail Project); and
B. Authorize the Public Works Department to advertise and solicit construction bids for said project; and
C. Approve seven (7) Public Highway At-Grade Crossing Agreements with Union Pacific Railroad Company in the aggregate amount of $1,543,963; and
D. Authorize the City Manager to execute the agreements on the City’s behalf.
end
BACKGROUND
The City of Westminster’s General Plan update, adopted in 2016, included an update to the City's Mobility Element, which detailed efforts to improve active transportation in the City of Westminster. Since then, staff has diligently pursued grant funding to implement various projects to meet the goals of the City’s Active Transportation Plan, adopted in 2017. To date, the city has received a total of $8.2 million in grant funding to implement active transportation projects.
Southern California Association of Governments Grant Funding
In August 2015, the city received a grant in the amount of $300,000 from the Southern California Association of Governments (SCAG) Active Transportation Safety and Encouragement Campaign. Westminster was the only city in Orange County to receive a grant at the time. The funds were used to host an event that would inspire more people to walk and bike through education, encouragement, and “project demonstrations.”
On May 21, 2016 (Bike Month), the city invited its residents and neighbors to the “Experience Hoover” celebration. “Experience Hoover” showcased possible bicycle and pedestrian improvements along Hoover Street, Main Street, and Olive Street. Hoover Street was transformed through the staging of temporary measures that demonstrated a separated two-way bike lane on Hoover Street adjacent to the pedestrian trail, and a roundabout at the intersection of Main Street and Olive Street. The event also demonstrated pedestrian walking treatments such as bulb-outs, which make crossing at intersections safer and easier by shortening the crossing distance, and new bike lanes and plaza areas.
At the event, staff collected ideas and feedback from participants regarding the possible improvements that were showcased, as well as additional improvements that were requested. These ideas and the event were incorporated into an application for grant funding to make these possible improvements a reality.
California Natural Resources Agency Urban Greening Program Grant Funding
In November 2017, the city was awarded a grant in the amount of $2.3 million from the California Natural Resources Agency for a “Green Infrastructure” project through the State’s Urban Greening Program. Using feedback received through the “Experience Hoover” event, a project concept was developed for a bikeway along the west side of Hoover Street between Garden Grove Boulevard and Bolsa Avenue, later branded as the Mendez Freedom Trail Project.
The Mendez Freedom Trail Project will introduce a two-way protected bikeway and will include a raised median to achieve vehicle/bicycle separation along the west side of Hoover Street. The raised median will include landscaping, lighting features, and enhance safety for all modes of travel along Hoover Street. Roadwork along the project limits will consist of the removal and replacement of deteriorated pavement, damaged concrete curb, gutter, driveway approaches, wheelchair ramps, asphalt overlay, and slurry seal.
In addition, the protected bikeway project will also incorporate educational elements to tell the story of the Mendez v. Westminster landmark civil rights case. The City of Westminster collaborated with the Orange County Department of Education (OCDE) to develop designs for educational interpretive panels to be installed adjacent to the protected bikeway (along the existing sidewalk trail). The goal of the project’s educational component is to develop a curriculum that would provide community members, students, and other visitors, an opportunity to learn about the Mendez v. Westminster landmark civil rights case. The curriculum has been developed by OCDE, as part of their project contribution, in partnership with the City of Westminster. The Mendez Freedom Trail Project will include other improvements in the form of interpretive panels, corridor branding (including new street name signs), and other educational elements.
Caltrans Active Transportation Program Grant Funding
In December 2015, the city was awarded a grant in the amount of $2.8 million from the Caltrans Active Transportation (Cycle 2) Program. The original project scope of the Garden Grove Complete Streets Project consisted of on-street buffered bike lanes on Garden Grove Boulevard from the Interstate 405 northbound off-ramp/State Route 22 eastbound on/off-ramp to State Route 22 off-ramp at Goldenwest Street. In May 2018, the city re-scoped the project to include a two-way protected bikeway along the aforementioned limits of Garden Grove Boulevard. The project scope was also expanded to include roadway improvements and the installation of on-street buffered bike lanes on two new arterial streets: Edwards Street from Garden Grove Boulevard to Trask Avenue; and Trask Avenue from Edwards Street to Hoover Street. The Garden Grove Complete Streets Project was completed in October 2023 and has received prestigious awards by the following organizations:
• American Society of Civil Engineers (ASCE) Orange County Branch - Outstanding Transportation Project Award
• American Planning Association (APA) Orange County Section - Award of Excellence in Transportation Planning
The project is also a finalist to receive an award of excellence from the California Transportation Foundation.
California State Parks Grant Funding
In February 2020, the city was awarded a grant in the amount of $1.3 million from California State Parks through the Proposition 68 Statewide Park Development and Community Revitalization Program. Mendez Tribute Monument Park is located on the northeast corner of Westminster Boulevard and Olive Street. The project recognizes the Mendez v. Westminster landmark civil rights case. The park features statues of modern students, as well as statues of Gonzalo and Felicitas Mendez, created by renowned sculptor Ignacio Gomez. The park also features a 3,000-lb. concrete “book” and four interpretive panel stations that tell the story of the landmark case. The park is the only park in California that features augmented reality technology free to the public. Through an augmented reality experience, users have access to programming that include videos of Sylvia Mendez and others; a digital scavenger hunt; and educational content that includes audio recording of all park content in English, Spanish, and Vietnamese. The curriculum has been developed by OCDE, as part of their project contribution, in partnership with the City of Westminster. Since its opening in December 2022, Mendez Tribute Monument Park has hosted many school field trips (totaling over 1,000 students) from all over Southern California.
State Senator Tom Umberg Funding
In October 2021, the city was awarded $1.5 million in state funding from the Office of State Senator Tom Umberg through California State Parks. These funds will be utilized for the educational interpretive panels and art along the Mendez Freedom Trail, and to address safety improvements to the Hoover Street railroad crossings identified by Union Pacific Railroad. These funds are administered through California State Parks.
Summary of Grant Funding
To date, the city has received a total of $8.2 million in grant funding to implement active transportation projects. The following table provides a summary of grants and funding sources:
GRANT AND FUNDING SOURCES
|
PROGRAM |
AGENCY |
AMOUNT |
|
Active Transportation Safety and Encouragement Campaign |
Southern California Association of Governments (SCAG) |
$300,000 |
|
State Urban Greening Program |
California Natural Resources Agency |
$2.3M |
|
Active Transportation Program |
Caltrans |
$2.8M |
|
Proposition 68 Statewide Park Development and Community Revitalization Program |
California State Parks |
$1.3M |
|
Office of State Senator Tom Umberg |
California State Parks |
$1.5M |
|
|
TOTAL |
$8.2M |
Mendez Freedom Trail Project
The Mendez Freedom Trail Project is partially funded by grants from the California Natural Resources Agency Urban Greening Program, and the Office of State Senator Tom Umberg through California State Parks. The balance of the project is funded by a portion of the City of Westminster's Senate Bill 1 (SB1) funding allocation, Municipal Lighting Fund, Measure M2, Capital Improvement Program (CIP), and Traffic Impact Fee.
It is important to note that the Mendez Freedom Trail Project includes funding for roadway rehabilitation along Hoover Street, adjacent to the proposed protected bikeway. Hoover Street was negatively impacted by the State Route 22 Freeway Improvement Project, completed in 2008. Due to delays in project development with Union Pacific Railroad (UPRR), already planned roadway improvements on Hoover Street were deferred to minimize cost and impact on the community. Hoover Street from Bolsa Avenue to Hazard Avenue was last improved in FY 2003/04 (20 years to date) from Hazard Avenue to Trask Avenue in FY 2006/07 (17 years to date), and it has been more than 20 years for the Garden Grove Boulevard to Trask Avenue segment.
Union Pacific Railroad Agreements
The engineering design of the subject project was awarded to the consulting firm of Mark Thomas in January 2019. The design for the project was substantially completed by December 2019. At that time, city staff and Mark Thomas reached out to the California Public Utilities Commission (CPUC) and UPRR to finalize the necessary permitting. The effort resulted in another request by CPUC and UPRR for additional improvements and traffic signal amenities at railroad crossing locations along Hoover Street at Garden Grove Boulevard, Trask Avenue, 21st Street, Westminster Boulevard, Main Street, Hazard Avenue, and Bolsa Avenue. As of Spring 2024, Mark Thomas and staff have been working to address and resolve the ongoing comments provided by various engineering groups within UPRR.
The final design plans and specifications reflect the improvements identified by the Rail Safety Division of CPUC and UPRR during field diagnostic meetings which included city staff and the City’s consultant team. The improvements include the installation of pre-signals, markings, signage, ADA improvements, and side railroad flashing lights. The City of Westminster must execute the UPRR Agreements for project construction to be authorized by UPRR. The agreements grant rights to the City of Westminster to widen the roadway and sidewalks at the railroad crossings. The improvements add to the overall safety and enhance the proposed Mendez Freedom Trail for the City’s residents. The total cost of the improvements is $1,895,475. UPRR will share the cost of improvements at 21st Street, Garden Grove Boulevard, and Trask Avenue in the amount of $351,512; the remaining balance paid by the city is $1,543,963.
The following table provides a summary of funding sources for the project:
MENDEZ FREEDOM TRAIL PROJECT - IMPROVEMENTS AND FUNDING SOURCES
|
PROJECT ITEMS FOR MENDEZ FREEDOM TRAIL PROJECT (CITY PROJECT) |
FUNDING SOURCE |
|
• Repair and Replace Pavement • Bikeways • Median Improvements |
• SB1 • CA State Parks (Umberg) • Urban Greening |
|
• Lighting |
• Municipal Lighting |
|
• Education Components |
• CA State Parks (Umberg) |
|
• Traffic Signal Upgrades/Modifications |
• Urban Greening • CA State Parks (Umberg) • Measure M2 • Capital Improvements Programs (CIP) FY 23/24 |
|
CITY PROJECT ESTIMATED TOTAL = $9,331,382 |
|
|
|
UPRR IMPROVEMENTS (UPRR PROJECT) |
FUNDING SOURCE |
|
• Union Pacific Improvements |
• CA State Parks (Umberg) • Traffic Impact Fee • Proposed Capital Improvement Program (CIP) FY 2024/25 |
|
City Contribution = $1,543,963 |
|
UPRR Contribution = $351,512 |
|
Total UPRR Improvement Cost = $1,895,475 |
|
TOTAL PROJECT ESTIMATED COST = $11,226,887 |
Work for the Mendez Freedom Trail Project will consist of:
• Reducing lanes from four to two with a two-way left turn lane on Hoover Street between Garden Grove Boulevard and Bolsa Avenue to construct a Class IV bikeway; and
• Construction of a new textured paved median, landscaped median with a bioretention swale and irrigation system; and Roadway excavation, pavement 6” dig outs, overlay, crack sealing, and slurry seal; and
• Traffic control, pavement markings, traffic signal modifications, striping, curb markings, and signs as shown on the plans; and
• Installation of four interpretive signage stations with precast concrete stools and art panels.
Per Westminster Municipal Code 3.44.120, the City Council shall adopt plans and specifications for all public projects requiring the formal bid procedure, pursuant to Public Contract Code Section 22039.
City staff and the consultant team have completed the plans and specifications, and the Public Works Director/City Engineer has approved the plans and specifications for the bidding. The Mendez Freedom Trail Project engineer’s estimate, with a 10% contingency, is $9.3M.
Advertising for competitive bidding and the bidding process will be done in accordance with the Public Contract Act and Uniform Cost Account Act. In accordance with the Procurement Policy, staff will return to the Mayor and City Council to recommend the award of the contract.
The bid opening is planned for July 2024, with an anticipated award date in August 2024. Construction is anticipated to begin September 2024, with projected completion by the end of Summer 2025.
FISCAL IMPACT
The total cost of the proposed improvements, including the UPRR’s agreements and a 10% contingency, is approximately $11M. Funding is allocated from the following budget sources: Urban Greening Program, California State Parks, Municipal Lighting, SB1, Measure M2, Traffic Impact Fee, Capital Improvement Program (CIP) FY 23/24, and UPRR’s contribution. Additional funding will be allocated in the FY 2024/25 budget for the Capital Improvement Program (CIP).
LEGAL REVIEW
The City Attorney’s Office has reviewed as to form.
CONCLUSION
The purpose of the Active Transportation Program is to encourage increased use of active modes of transportation, such as biking and walking, by increasing the proportion of trips accomplished by biking and walking and increasing safety and mobility for non-motorized users. The Mendez Freedom Trail is the next phase in the City of Westminster’s Active Transportation effort. The new bicycle facilities installed with this project will connect with the recently completed Garden Grove Complete Streets project at Trask Avenue and Hoover Street and continue along Hoover Street to Bolsa Avenue.
Along with the health benefits to the community, the trail will highlight Mendez v. Westminster, a landmark civil rights case. The educational components of this project will serve to educate current and future generations of students and the public on this monumental historic ruling which has its roots in Westminster.
The approval of the seven (7) Public Highway At-Grade Crossing Agreements with Union Pacific Railroad Company is necessary to proceed with the construction of the project.
ATTACHMENTS
1. Seven (7) Public Highway At-Grade Crossing Agreements with Union Pacific Railroad Company
a. 0792965 - Bolsa Avenue
b. 0792966 - 21st Street
c. 0793155 - Garden Grove Boulevard
d. 0794278 - Main Street
e. 0792969 - Westminster Boulevard
f. 0446269 - Hazard Avenue
g. 0765479 - Trask Avenue
2. Full size plans and specifications are not attached to this report but are available to review at City Hall
REVIEWED BY
Erin Backs, Finance Director
Christian Bettenhausen, City Attorney
Christine Cordon, City Manager