Title
Recommendation to Authorize the City Manager to Execute an Agreement with Moffatt & Nichol for a Waterway Study for the Oakland-Alameda Estuary Bridge Project in an Amount Not-to-Exceed $524,000. (Planning, Building and Transportation 24562743)
Body
To: Honorable Mayor and Members of the City Council
From: Jennifer Ott, City Manager
EXECUTIVE SUMMARY
The City of Alameda (City) is undertaking a grant-funded Waterway Study of the Oakland Estuary (Estuary) as the next planning phase for the Oakland-Alameda Estuary Bridge (Bridge) project. The Bridge is envisioned as a moveable bicycle/pedestrian bridge in the western end of Alameda that would provide a free, 24/7 alternative to the deficient Posey Tube bicycle/pedestrian path and future narrow Webster Tube path, and connect west Alameda to Jack London Square, Amtrak, Downtown Oakland, and two nearby Oakland BART stations.
The Bridge Project Initiation Document (PID), completed in 2024, identified the Waterway Study as the next planning phase. This study will provide an in-depth understanding of the vessel usage of the Estuary to inform decisions on the width and height parameters for a potential bridge. Having these parameters is essential for moving the Bridge project forward.
In August, City staff issued a Request for Proposals (RFP) for the Waterway Study. An inter-agency selection panel selected Moffatt & Nichol as the top-ranked team that best meets the City’s needs. The City negotiated an agreement with Moffatt & Nichol for an amount not-to-exceed $524,000, which is attached for City Council’s consideration (Exhibit 1). The agreement will be funded by a Caltrans grant and matching funds approved by City Council in fall 2024.
The future environmental, design and construction phases for the Bridge are all expected to be funded, led and implemented by a county, regional or state agency, not by the City.
BACKGROUND
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 over fifteen years, and is included in multiple City plans, along with many other local, county, regional and state plans. The moveable bridge is a long-term project that will provide a free, 24/7 alternative to the deficient Posey Tube bicycle/pedestrian path and future narrow Webster Tube path. It will connect west Alameda to Jack London Square, Amtrak, Downtown Oakland and two nearby Oakland BART stations. The City has worked with regional partners to take the steps outlined below.
2009 Estuary Crossing Final Feasibility Study Report
In 2009, the City completed a comprehensive Estuary Crossing Final Feasibility Study Report (Estuary Crossing Study) to analyze and evaluate potential strategies for crossing the Estuary by foot, bike, or transit. This planning effort analyzed 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. It explored near-, mid-, and long-term solutions that included many bridge types, improvements to the Posey/Webster Tubes, as well as bus and water shuttle services.
The Estuary Crossing Study identified a water shuttle as the top recommended mid-term option, and a moveable bicycle-pedestrian bridge as the top long-term option. The City has followed through on these recommendations, working with partners to launch the Oakland Alameda Water Shuttle in 2024, and leading the next steps for Bridge project planning.
2021 Estuary Crossing Study: Detailed Feasibility and Travel Demand Analysis
In 2021, the City completed the Estuary Crossing Study: Detailed Feasibility and Travel Demand Analysis, funded by $300,000 from the Alameda County Transportation Commission (Alameda CTC). This study examined the feasibility of the proposed lift bridge plus other crossing options, and the potential demand for different crossing options. It confirmed the technical feasibility of a lift bridge meeting the United States Coast Guard (USCG) requirements to have a 600-foot span between piers that can be raised to 175 feet. The USCG and the Port of Oakland (Port) both provided letters of support based on this assessment.
2024 Bridge Project Initiation Document (PID)
In 2024, the City, in partnership with the City of Oakland, completed the Bridge PID utilizing $1,555,000 in funding from Alameda CTC. The PID provides the technical foundation for the next project phases of environmental, design and implementation, and is required for applying for larger grants. The PID identified and studied three top bridge alignments in detail (Project Location Map shown as Exhibit 2). It 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 is estimated to be around $300 million.
- Construction could begin in 2033 at the earliest.
- There could be an estimated 8,000 to 9,500 crossings of the Bridge every weekday, depending on the Bridge alignment.
The PID also identified that the next phase for the Bridge project would be a Waterway Study of the Estuary to provide an in-depth understanding of the vessel usage and inform the width and height parameters for a potential bridge. Having these parameters is essential for moving the Bridge project forward. The City successfully applied for a Caltrans Sustainable Communities grant in early 2024 to complete the Waterway Study and City Council accepted the $480,070 grant in September 2024.
DISCUSSION
On August 4, 2025, the City released the RFP for the Waterway Study for the Oakland-Alameda Estuary Bridge. The City received proposals from three consultant teams. A selection panel made up of representatives from the City of Alameda, the City of Oakland and the Port evaluated and scored the proposals and interviewed the top two consultant teams: Moffatt & Nichol and HNTB. Both teams were highly qualified, and the City selected Moffatt & Nichol as the team that best meets the City and project needs (see contract in Exhibit 1).
The Waterway Study is a technical study that will be developed over the next 20 months, including data collection and navigational modeling, which will be used to determine the width and height clearance parameters for a potential bridge.
The USCG must approve any changes to navigable waterways, including the addition of a new moveable bridge. The Waterway Study will provide the initial data and analysis needed for their consideration of different bridge options and will support the future issuance of a bridge permit from the USCG.
During the Study development, the City will engage with key stakeholders beyond the USCG, including the City of Oakland, the Port, and commercial and recreational maritime users. The project includes limited community engagement, focused on presenting the Study findings to two advisory committees established during the PID phase. The final technical report will be presented to the City’s Transportation Commission and the City Council, and to City of Oakland Committees/Council, if requested.
Future Next Steps
Once the Waterway Study is completed, the Bridge project will need to secure funding for future phases and determine agencies to lead the project, which will require completing environmental review, identifying funding for construction and future operations and maintenance. The City does not anticipate leading any of these future phases, but rather advocating for other county, regional or state partners to take the lead.
Additional Crossing Options: Water Shuttle
The Oakland Alameda Water Shuttle service is in its second year of its initial two-year pilot, with funding for years three (3) and four (4) already secured. It has been highly successful with strong ridership and clearly shows the demand for non-motorized crossings of the Estuary between Alameda’s west end and the Jack London Square area. As staff evaluates the two-year pilot and begins long-term planning, options for expanding the water shuttle will be considered along with findings from the Waterway Study, which will allow for informed comparisons between the two options. Meanwhile, City staff will continue to work on improving and expanding the water shuttle service, while also working on the longer-term pedestrian/bicycle bridge option.
ALTERNATIVES
• Authorize the award of the agreement as described herein.
• Do not authorize award (not recommended).
FINANCIAL IMPACT
On September 17, 2024, City Council authorized the City Manager to accept a grant from Caltrans for $480,070 to develop the Waterway Study. City Council also appropriated $62,646 in local matching funds, from a combination of Active Transportation Plan (CIP #C63000) funds and in-kind staff costs. The total project cost is $542,716, of which the consultant contract is $524,000 and $18,715 is in-kind staffing. The project funds are already included in the City’s Budget (CIP #C65900).
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.
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.”
This action is subject to the Levine Act.
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.
RECOMMENDATION
Authorize the City Manager to execute an agreement for a Waterway Study for the Oakland-Alameda Estuary Bridge project to Moffatt & Nichol in an amount not-to-exceed $524,000.
Respectfully submitted,
Allen Tai, Planning, Building and Transportation Director
By,
Rochelle Wheeler, Senior Transportation Coordinator
Financial Impact section reviewed,
Ross McCarthy, Finance Director
Exhibits:
1. Agreement
2. Project Location Map