TO: Board of Supervisors
FROM: Steve Lederer, Director of Public Works
REPORT BY: Sonja El-Wakil, Associate Engineer
SUBJECT: “Measure U Solano Avenue Pavement Repair Project,” RDS 25-01 -Construction Contract Award, Oak Knoll Resort LLC Agreement, and Budget Amendment
RECOMMENDATION
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Award a Construction Contract to Mountain Cascade, Inc., of Livermore, California in the amount of $4,187,813 for the “Measure U Solano Avenue Pavement Repair Project,” RDS 25-01; approve cost sharing Agreement No. 260304B with Oak Knoll Resort, LLC for roadwork related to their permit for a left-turn-lane installation; and approve a Budget Amendment. (Fiscal Impact: $1,461,609 Expense; SB-1 Non-Operating Special Revenue Fund; Not Budgeted; Discretionary)
[4/5 vote required]
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BACKGROUND
The Solano Avenue road repairs were identified through the County’s procedure to do roadway maintenance based on Pavement Condition Index (PCI), an overall measure of the condition of the road surface developed by the United Sates Army Corps of Engineers and later standardized by American Society for Testing and Materials (ASTM). The PCI shows a numerical index ranging from 0 to 100, with 100 being a best roadway condition that is anticipated to support 20 years of use.
Solano Avenue from Locust Avenue (Napa City limit) to Vineyard View Drive (Yountville Town limit) is 3.2 miles with the PCI as low as 14. The proposed treatment will consist of installing new hot mix asphalt surfacing over a full-depth reclamation treatment. The work is scheduled to occur on Solano Avenue, from the City of Napa Limit (Locust Ave) to the Town of Yountville limit (Vineyard View Dr. The roadway is now in varying condition, including “failed” with 81% of the recorded PCIs between 14 and 27. Solano Avenue has extensive amounts of distress affecting the speed and flow of traffic. The Project will result in safer travel ways for the public and increased road durability to meet the continually increased traffic demand of the road. The Project will improve the PCI to 100, with a renewed life span anticipated to be around 20 years.
Additionally, the City of Napa is working in cooperation with Napa County using an existing cost share agreement to fund the portions of the work developed by the City of Napa Public Works Department, within city limits. The cost sharing agreement with the City of Napa is current and in effect, number 220337B. Similarly, the Project adjacent to the Oak Knoll Resort at 5091 Solano Avenue includes overlay and pavement markings for a required left-turn lane road widening, per the County’s issued use permit. The cost for this portion of work is to be paid for by the Oak Knoll Resort. The County is seeking to work in cooperation with neighbors in order to minimize construction impacts on the neighborhood and traveling public, as well as preserving the life of the pavement by combining the work, instead of creating unnecessary joints that would weaken the pavement. The cost sharing agreement with Oak Knoll Resort, LLC is recommended for Board approval today.
On June 24, 2025, the Board of Supervisors approved an authorization of $300,000 to create the project and provide starter funds for design. At the start of the 2026 fiscal year, $4,000,000 was approved to fund the project design and some of the construction phase. On December 9, 2025, the Board of Supervisors approved an agreement with TRC Engineers, Inc. to design the project. On February 10, 2026, the Board of Supervisors authorized the project for advertising and subsequent bid opening.
Bids were received and opened on March 12, 2026. The bid results are attached for reference.
The lowest responsive base bid of $2,999,314 is from Mountain Cascade, Inc., of Livermore, CA. In addition, staff recommends award of Additive Alternate #1 for $811,937, #2 for $26,982, and #3 for $349,579, for a grand total contract cost of $4,187,813. Additive Alternate #1 is for all work north of the Hoffman Ave intersection; Additive Alternate #2 is for work for the Oak Knoll Resort hotel left turn installation, including 2" of new asphalt over the widened new portion of road, and left turn markings; Additive Alternate #3 is for all work shown within the City of Napa limits. These extra pieces have been reviewed for County available funds and by cost sharing partners, respectively.
The total project cost is $5,761,609, including design phase funds previously approved, and the request today for $1,461,609. Approval of the requested actions today will initiate construction. It is anticipated that this project will commence around June 1 and cross into next fiscal year, with completion in October 2026.
Mountain Cascade, Inc. is not a local vendor however, the Public Contract Code requires that the construction contract be awarded to the lowest responsible bidder regardless of whether the low bidder is local or not. Staff reached out to the local construction contractor community by advertising the request for bids in the Napa Valley Register and the Solano-Napa Builder's Exchange, and by posting on the County website. Staff also sent "Notices to Contractors" to the local construction community.
Requested Actions:
1. Award of construction contract for the “Measure U Solano Avenue Pavement Repair Project,” RDS 25-01 to Mountain Cascade, Inc., of Livermore, California for their low grand total bid of $4,187,813;
2. Approval of and authorization for the Chair to sign Agreement No. 260304B with Oak Knoll Resort, LLC, a California corporation for a maximum of $34,490 for County reimbursement from Oak Knoll Resort, LLC for roadwork related to their permit for a left-turn-lane installation (Project Additive Alternate #2); and
3. Approve a Budget Amendment for the following (4/5 vote required):
a. Increase appropriations for Project 24033 - MT Solano Ave-Big Ranch Rd. Pavement in the Roads Fund (Fund 2040, Sub-Division 2040500) in account 52360-Construction Services by $1,461,609, offset by an increase of $1,461,609 in revenue account 48200-Transfers-In from the SB-1 Non-Operating Special Revenue Fund; and
b. Increase appropriations in the SB-1 Non -Operating Special Revenue Fund (Fund 2440, Sub-Division 1220052), in account 56100-Transfers Out by $1,461,609, offset by use of its available fund balance.
FISCAL & STRATEGIC PLAN IMPACT
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Is there a Fiscal Impact? |
Yes |
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Is it currently budgeted? |
No |
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Where is it budgeted? |
Project 24033 will be funded by SB1-SRF. This project was not budgeted as part of the annual budget process since SB1 revenues are received monthly. Staff monitors the revenues and cashflow and once there’s sufficient cash, come to the Board to move forward with the project and establish the project budget. |
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Is it Mandatory or Discretionary? |
Discretionary |
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Discretionary Justification: |
On June 24, 2025, $300,000 was approved to partially fund the design work for this project (24033). At the start of the 2026 fiscal year, $4,000,000 was approved to fund the project design and some of the construction phase. Approval is necessary to move forward with needed improvements. |
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Is the general fund affected? |
No |
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Future fiscal impact: |
Remaining budget from Fiscal Year 2025-2026 will be carried over to the Fiscal Year 2026-2027 budget. |
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Consequences if not approved: |
If not approved, the Project will not be constructed, and the needed maintenance will be deferred. |
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Additional Information: |
Strategic Initiative: Build Healthy, Connected Communities |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: It has been determined that this type of project does not have a significant effect on the environment and is exempt from the California Environmental Quality Act. [See Class 1 (“Existing Facilities”) and Class 2: (“Replacement or Reconstruction”) which may be found in the guidelines for the implementation of the California Environmental Quality Act at 14 CCR §15301 and 14 CCR §15302; see also Napa County’s Local Procedures for Implementing the California Environmental Quality Act, Appendix B.]