Title
Adoption of Resolution Authorizing the City Manager to Execute All Necessary Documents with the California Department of Transportation (Caltrans) to Accept Grant Funds in the Amount of $480,070 for the Oakland-Alameda Estuary Waterway Study, and Amending the Fiscal Year 2024-25 Grants Fund (Fund 222) Operating Budget and Capital Improvement Budget Appropriating $480,070 from the Grants Fund (Fund 222) to the Oakland-Alameda Estuary Bridge Project in Capital Improvement Project C65900.
Preparation of design and feasibility studies are exempt from environmental review under California Environmental Quality Act Guidelines section 15262. (Planning, Building and Transportation 24462742)
Body
To: Honorable Mayor and Members of the City Council
From: Jennifer Ott, City Manager
EXECUTIVE SUMMARY
The City of Alameda (City) applied for and has been awarded a $480,070 grant from Caltrans for a Waterway Study for the Oakland Alameda Estuary Bridge project. The attached resolution is a requirement for the City to be able to accept these funds.
The Oakland Alameda Estuary Bridge project, a new bicycle/pedestrian connection between west Alameda and Oakland, has been in the planning and scoping phase for fifteen years, and is included in multiple City plans, along with many other local, county, regional and state plans. The Bridge is a long-term project that, when completed, will provide a free, 24/7 alternative to the deficient Posey Tube path and will connect west Alameda to Jack London Square, Amtrak, Downtown Oakland, and two nearby Oakland BART stations.
In June, after almost two years working with partners, stakeholders and the community, the City completed the Alameda County Transportation Commission (Alameda CTC)-funded Project Initiation Document (PID), which provides the technical foundation for the next project phases of environmental, design and implementation. The immediate next phase was identified to be a Waterway Study of the Oakland Estuary, which will provide an in-depth understanding of the vessel usage of the Estuary, in order to inform decisions on the width and height parameters for a potential bridge. Having these parameters is essential for moving the Bridge project forward. Without the results from the study, no feasible concepts can be developed and the environmental assessment, which would be the next required phase, could not take place.
BACKGROUND
In 2009, the City developed a comprehensive Estuary Crossing Final Feasibility Study Report (Study Report) to analyze and evaluate all of the potential strategies for crossing the Oakland Estuary (Estuary) either by foot, bike, or transit. This planning effort was the first to directly analyze the feasibility of new or improved Estuary crossings, with the goal of developing crossing designs that would appeal to users, adjacent communities, decision-makers, transit providers, and funding authorities. Near-, mid-, and long-term solutions were explored, including many bridge types, improvements to the Posey/Webster Tubes, as well as bus and water shuttle services. The top recommended mid-term option was a water shuttle, for which a two-year pilot is now underway, and the top long-term option was a moveable Bicycle-Pedestrian Bridge.
In October 2016, City Council directed that staff begin working on the Bridge project and consider hiring a maritime engineer to further study the project feasibility.
In 2018, City Council adopted the Transportation Choices Plan with the “West End Bicycle/Pedestrian Crossing” (Project #39), which included the near-term action to “fund a project study report to determine the specifics and feasibility of an additional crossing” and to meet and coordinate with the United States Coast Guard (USCG).
In 2019, Alameda CTC allocated over $300,000 to conduct a detailed feasibility study of the proposed lift-bridge, plus other crossing options, and the potential demand for different crossing options.
In 2020, Alameda CTC added the project to the 2020 Countywide Transportation Plan’s 10-Year Priority Projects and Programs List.
In 2021, the Estuary Crossing Study: Detailed Feasibility and Travel Demand Analysis (Study) was completed. It confirmed that a lift bridge meeting the Coast Guard requirements to have a 600-foot span between piers that can be raised to 175 feet, is technically feasible from an engineering and geotechnical perspective. With confirmation of feasibility, including letters of support from the USCG and the Port of Oakland (Port), the City began seeking funding for the PID.
In 2021, Alameda CTC voted to allocate $1,555,000 in funding for the PID to the City. A PID is needed to move forward with this complex project, and to apply for and receive funding for the environmental review phase. Council authorized staff to enter into a funding agreement with Alameda CTC for the PID phase.
In 2022, City Council awarded the PID contract to two engineering firms, and work began later that year.
In November 2023, staff provided an update to City Council on the PID. At that time, the City, in close partnership with the City of Oakland, had conducted a significant amount of preliminary work to identify three bridge alignments (see map in Exhibit 2) to study in detail in the final PID, including:
• Established a Technical Advisory Committee (TAC), and a Stakeholder and Equity Advisory Committee (S/EAC), which provided input at key milestones.
• Drafted a “Purpose and Need” Statement.
• Developed 12 realistic alignments, that fit the draft Purpose and Need statement and were not overly-constrained.
• Developed detailed screening matrix with 13 criteria and applied it to the 12 alignments.
• Developed consensus with the advisory committees on the 3 alternatives (with height, span and ramping) to be evaluated in the PID.
• Met with various stakeholders individually (including WETA, Alameda Municipal Power (AMP), Port of Oakland, Alameda CTC and MTC).
• Met with regulatory agencies to introduce project and review permitting requirements.
• Developed a project web page, logo, fact sheet, survey and FAQs (www.estuarybridge.org <http://www.estuarybridge.org>)
To date, the Bridge project is now included in over 15 local, countywide, regional and state plans.
DISCUSSION
The PID, summarized further below, was completed in June 2024, and the next phase to move the Bridge project forward is a Waterway Study. It will provide a detailed understanding of how the Oakland Estuary is used by vessels today, and the usage implications of any constraints on its current width. The project area is bracketed by Coast Guard Island to the east and the Port to the west. The Estuary also contains many boat marinas and several commercial boating businesses and is used intensively by recreational boaters. The USCG must approve any changes to navigable waterways, including the addition of a new moveable bridge. The Waterway Study will be closely coordinated with the USCG and will provide the initial detailed data and analysis needed for their consideration of different bridge options.
The Waterway Study includes two components: a Vessel Study and a Navigation Simulation Desktop Study. By assessing the type, number, schedules, frequency, and timing of vessels that traverse this section of the Estuary, the study will inform the height, width, span, and other navigational clearance parameters for a proposed bridge. The specific location of the proposed bridge has not yet been determined. Major deliverables of the Waterway Study include desktop simulations for multiple potential bridge locations and a variety of bridge pier placement options, and bridge height and width parameters. The Study will also provide useful data for the Oakland Alameda Estuary Adaptation project, which City staff are also leading.
The City applied for a Caltrans Sustainable Communities grant early this year to complete the Waterway Study, and was conditionally awarded the grant in July. The City is required to provide the attached resolution before a grant agreement can issued. The Study is expected to take two years.
As noted, the PID was completed in June 2024. As a technical study following a prescribed format used by Caltrans, it does not require approval by any agency; however, it was reviewed and comments were incorporated from City of Alameda and Oakland staff, and Caltrans staff. The PID studied the three selected bridge alignments in detail. The PID did not select a preferred alternative, nor did it finalize the bridge design type, both of which will be completed in the environmental phase. The PID found:
- The bridge cost, in part due to cost escalation over time, is now estimated to be around $300 million.
- Construction would likely not begin until 2033 at the earliest.
- Estimated daily usage (both people walking and biking) ranges, depending on the bridge alignment, between 8,000 to 9,500 crossings per weekday.
To move forward, the bridge project still needs funding for future phases, an agency to lead the project, and an agency to lead the environmental review. The City does not anticipate leading any future phases after the Waterway Study. While it is working on the Study, City staff will develop a project implementation strategy that includes working with county, regional and state partners. This will be brought to the City Council for review and discussion.
In July, the two-year water shuttle pilot began service, and it has been incredibly successful in its first five weeks. One objective of this pilot is to test the demand for non-motorized crossings of the estuary between the west end of Oakland and the Jack London Square area, and also to see how it matches projections. While a one-day count found around 100 people walking and biking on the Posey Tube pathway in May 2024, daily ridership on the water shuttle to date ranges from 450 to 800, depending on the day, and many shuttle runs are full, leaving people behind. It appears that more frequent service, longer hours and more days, are desired and would likely be well-utilized by the public. The City is already working to find ways to increase the frequency of service with the current single vessel and within the current project budget, and is also seeking funding to extend and expand the service.
City staff will continue to work on improving and expanding the water shuttle service, as they also work on the longer-term pedestrian/bicycle bridge option.
ALTERNATIVES
City Council may consider a range of alternatives:
• Approve the resolution for the Oakland-Alameda Estuary Waterway Study to complete the study.
• Approve the resolution with revisions determined necessary by the City Council.
• Not approve the local resolution, and direct staff to proceed with another approach.
FINANCIAL IMPACT
The Oakland-Alameda Estuary Waterway Study project is estimated to cost $542,716. The Caltrans grant award amount is $480,070 and the City’s local match amount, which is just over the required 11.47%, is $62,646. Of this total local match amount, $43,930 is available in the Active Transportation Plan CIP (#C63000). The remaining amount, $18,715, will come from staff costs which can be used for a local match, and are included in the Transportation Planning operational budget.
|
Budget Request |
Revenue/ Expenditure |
Fund Number |
Fund Description |
Project Number |
Project Name |
Budget Amount |
|
New Grant Award |
Increase Revenue Budget |
222 |
Grants |
C65900 |
West End Bicycle Ped Crossing |
$480,070 |
|
|
Increase Expenditure Budget |
222 |
Grants |
C65900 |
West End Bicycle Ped Crossing |
$480,070 |
|
Transfer Between Funds Request |
Decrease Expenditure Budget |
310 |
CIP |
C63000 |
Active Transportation Plan Implementation |
$43,930 |
|
|
Increase Expenditure Budget |
310 |
CIP |
C65900 |
West End Bicycle Ped Crossing |
$43,930 |
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
The City’s 2023 Strategic Plan includes a project to “Plan and identify funding for the design of a Bicycle Pedestrian Bridge on the west end” (#TIE2).
The Active Transportation Plan’s 2030 Infrastructure Plan includes Project #8: Oakland-Alameda Bicycle-Pedestrian Bridge and calls for completing the PID and identifying a Lead Agency for all future phases by 2024.
General Plan Policy ME-15 Estuary Crossings states: “Work with Oakland, Alameda County, Caltrans, the Alameda County Transportation Commission, the State of California, the US Coast Guard, and other local, regional and federal partners to improve and ensure the maintenance and safe operations of Alameda’s existing bridges and tubes, and improve bicycle, pedestrian and transit access between Alameda and Oakland.”
Policy ME-15 Action (b) states: “West Alameda to Oakland Bicycle and Pedestrian Bridge. Prioritize work with Oakland, Caltrans, the Alameda County Transportation Commission, the State of California, the US Coast Guard, and other relevant agencies to design, fund, construct and operate a bicycle and pedestrian bridge from West Alameda to Oakland in order to increase bicycle and pedestrian access across the estuary.”
The 2018 Transportation Choices Plan includes the “West End Bicycle/Pedestrian Crossing” (Project #39) which included the near term action to “fund a project study report to determine the specifics and feasibility of an additional crossing” and to meet and coordinate with the USCG.
ENVIRONMENTAL REVIEW
Preparation of feasibility and other studies are exempt from environmental review under California Environmental Quality Act Guidelines section 15262. Once the Waterway Study is completed and the project design is better defined, environmental review will be completed.
CLIMATE IMPACT
Supporting bicycling and walking with a new bicycle/pedestrian bridge will help the City meet its goals to reduce greenhouse gas (GHG) emissions by supporting mode shift away from automobiles. The City’s 2019 Climate Action and Resiliency Plan found that transportation accounts for 70% of the City’s GHG emissions, and that moving people out of automobiles is paramount to reducing transportation-related emissions.
RECOMMENDATION
Adopt a resolution authorizing the City Manager to execute all necessary documents with Caltrans to accept $480,070 in grant funds for the Oakland-Alameda Estuary Waterway Study and to appropriate the $480,070 grant in Fiscal Year 2024-25 towards the Oakland-Alameda Estuary Bridge Project in Capital Improvement Project C65900.
Respectfully submitted,
Allen Tai, Planning, Building and Transportation Director
By,
Rochelle Wheeler, Senior Transportation Coordinator
Financial Impact section reviewed,
Margaret O’Brien, Finance Director
Exhibits:
1. Bridge Waterway Study Schedule and Cost
2. Map of Bridge Alignments studied in the PID