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Accept a report on the project delivery status of Pleasants Valley Road Bridge at Miller Canyon Creek; and Authorize Department of Resource Management staff to close the federal project
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Published Notice Required? Yes ____ No _X _
Public Hearing Required? Yes ____ No _X _
DEPARTMENTAL RECOMMENDATION:
The Department of Resource Management recommends that the Board of Supervisors:
1. Accept a report on the project delivery status of Pleasants Valley Road Bridge at Miller Canyon Creek; and
2. Authorize Department of Resource Management staff to close the federal project.
SUMMARY:
In 2010, the Department of Resource Management (DRM) initiated a project to build a single lane bridge adjacent to the existing bridge on Pleasants Valley Road at Miller Canyon Creek (Project). The intent of the Project was to leave the existing bridge as-is and build the new side-by-side bridge, similar to Suisun Valley Road Bridge at Suisun Creek. The new bridge was eligible for funding through the federal Highway Bridge Program (HBP), and federal funds were used to start preliminary engineering and environmental clearance work (see photo of existing bridge).
Over the last 8 years the environmental clearance issues for the Project became substantial, including archaeological, biological, right-of-way, and rail damage impacts. DRM staff had several meetings with Caltrans staff to discuss these issues and seek alternatives to advance the Project. It has become apparent that continued federal funding for the Project will prove very costly and technically difficult. Other design and funding alternatives can be considered outside of the federal process, including grants for fish passage improvement, bike funds for rail improvements, and the State Bridge Investment Credit. DRM proposes that the Board authorize staff to pay back the $174,666 in federal HBP funds that were used to date and close the federal Project. Staff will study and seek other alternatives and return to the Board on new project delivery and funding options outside the federal process that will likely reduce ultimate costs with time savings.
FINANCIAL IMPACT:
The cost to provide this presentation is borne within the Department’s operating budget. The $174,666 payment to the State, that the Board would authorize through approval of this item, would be paid by the Road Fund. The costs associated with preparing the agenda item are nominal and absorbed by the department’s FY2019/20 Adopted Budget. There is no impact to the General Fund.
DISCUSSION:
The existing bridge, also locally known as Thurber Bridge, was reduced from a two-lane to a one-lane bridge in 2009 due to accidents related to its narrow geometry. It is currently a stop-controlled single-lane bridge. In order to keep the existing bridge, the proposed new single-lane bridge was planned to be built in parallel to the east as the Miller Creek alignment prevents a new bridge being built to the west. The scope of the Project would require right of way acquisition from the two adjacent eastern parcel owners for construction and permanent use. Federally protected biological species are known to exist at this location. One of the parcel owners had concerns with our effort to biologically and archaeologically survey portions of their property for use as right of way for the Project, which has impeded the County’s ability to achieve federal environmental clearance.
In November 2018, a vehicle struck the west side of the existing bridge which nearly broke off the concrete rail and exposed the lack of rebar reinforcement (see photo Attachment). K-Rail was placed along the western edge to maintain traffic and keep the bridge safe. This accident precipitated additional conditions and new issues to address.
The deterioration of the old rails has exposed that there may be insufficient rebar to prevent a vehicle from breaching through the rail in an accident, with resultant K-Rail placement. The old rail in this condition also cannot be rehabilitated. Since 2016, rail replacement as part of a federal project requires the rail to meet new standards for vehicular impact. These types of new rails have very limited architectural options (very square and boxy), and they would require a significant addition to the federal environmental process for historic structure review. Also, federal funding for rehabilitation of existing bridges requires scour analysis to ensure funds are not spent on structural improvements where the foundation is under threat of scour. The existing bridge already has been identified by Caltrans to have foundation/pile scour issues. This will necessitate the existing bridge be fully retrofitted with a new pile foundation system with expanded approach sections as part of the federal Project. These modifications would significantly change the architecture of the existing bridge, which expands the scope of the environmental process.
Another option that was discussed with Caltrans was to minimally rehabilitate the existing bridge for pedestrian and bicycle use and build a two-lane bridge to the east. Issues related to this option include a partial realignment of Pleasants Valley Road, broader right of way acquisition and impacts to adjacent properties, broader biological and archaeological impacts, significant Great Valley Oak tree loss, and a significant reset of the federal environmental process. This would push the project well past the 10-year deadline for environmental clearance without a clear timeline for delivery. Caltrans has indicated that extensions beyond the 10-year requirement are only granted if there is a clear schedule for timely delivery.
The Project was originally planned to cost ~$1.5 million and take 5-7 years to deliver due to right of way issues. The new requirements for federal delivery, and limited alternatives left to deliver the Project, have updated preliminary estimates of $3.5 - $4 million with a 10-year timeline for delivery. The local match required would be at least $400,000, not including some of the unreimbursed overhead of federal project delivery.
Given the increased cost and the time constraints applicable to this project under the Federal Highway Bridge Program, DRM is recommending repaying the federal funds expended and closing the Project at this time. Caltrans and the Federal Highway Administration require payback of federal funds if environmental clearance is not obtained within 10 years without a reasonable case for extension. Once closed, staff will study alternatives for local bridge funding grants. The State Bridge Investment Credit program is a newer program that rewards local agency funding of bridges by crediting the amount expended toward future federal bridge local match funding. This provides a promising alternative that could lead to paying other local match costs on upcoming bridges, such as Stevenson Bridge and Maine Prairie Bridge.
ALTERNATIVES:
The Board could choose to not receive the presentation. This is not recommended, since Caltrans is looking for direction from the County on how the Project will be handled. The Board could also choose to direct staff to continue the Project as a federally funded bridge. This is not recommended, since the updated costs will require a larger local investment by the County, and the additional time required may still put the Project at risk of de-funding by Caltrans.
ANOTHER AGENCY INVOLVEMENT:
County Counsel has reviewed and approved this item as to form.
CAO RECOMMENDATION:
APPROVE DEPARTMENTAL RECOMMENDATION