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HomeMy WebLinkAboutStaff Report 2409-3458CITY OF PALO ALTO CITY COUNCIL Regular Meeting Monday, November 04, 2024 Council Chambers & Hybrid 5:30 PM     Agenda Item     7.Approval of General Service Contract Number C25191700A with Northwest Woodland Services, Inc. in the Amount Not-to-Exceed $1,209,780 for the Open Space Trails and Amenities Capital Improvement Program Project (OS-00001) for a Period of Five Years. CEQA status – Categorically exempt. Consent Questions City Council Staff Report From: City Manager Report Type: CONSENT CALENDAR Lead Department: Community Services Meeting Date: November 4, 2024 Report #:2409-3458 TITLE Approval of General Service Contract Number C25191700A with Northwest Woodland Services, Inc. in the Amount Not-to-Exceed $1,209,780 for the Open Space Trails and Amenities Capital Improvement Program Project (OS-00001) for a Period of Five Years. CEQA status – Categorically exempt. RECOMMENDATION Staff recommends that Council approve and authorize the City Manager or designee to execute Contract No. C25191700A1 with Northwest Woodland Services, Inc. for the Open Space Trails and Amenities, Capital Improvement Program Project (OS-00001) for a term of five years in the amount not to exceed $1,209,780, including $1,099,800 for basic services and $109,980 for additional services Open Space Trails Contract, pursuant to the Open Space Trails and Amenities Project (OS-00001). BACKGROUND In 2017, the City Council approved the Parks, Trails, Natural Open Space, and Recreation Master Plan2 which provides guidance on trails and roads in open space. Palo Alto's Open Space features approximately 43.2 miles of trails, spanning across several preserves. Since 2001, the City has contracted professional trail maintenance services to ensure these trails are well- maintained, environmentally sustainable, and safe for public use. Contractors are equipped with specialized tools and training to perform this work in compliance with environmental best practices and City standards. The trail maintenance contract covers the Palo Alto Baylands Preserve, Pearson-Arastradero Nature Preserve, and Foothills Nature Preserve. Contractors are responsible for providing all 1 Northwest Woodland Services, Inc., Open Space Trials and Amenities, Contract No. C25191700A; final_c25191700a_open_space_trail_maintenance_gsa.pdf 2 Palo Alto Parks Trails, Natural Open Space and Recreation Master Plan, September 2017; palo-alto- parks-master-plan.pdf (cityofpaloalto.org) labor, equipment, supervision, transportation, tools, supplies, and incidentals necessary to perform the required tasks in accordance with the contract's specifications. ANALYSIS The proposed five-year contract covers annual trail maintenance for Foothills Nature Preserve, Pearson-Arastradero Nature Preserve, and Palo Alto Baylands Preserve. This includes: •Grooming existing trails •Reshaping and installing new drainage features such as dips, water bars, and culverts •Closing unauthorized "social trails" using earth berms and other approved methods •Seeding and mulching disturbed areas outside of the trail path •Brushing and trimming vegetation •Inspecting, repairing, and constructing replacement wooden footbridges •Spreading and compacting crushed rock and oyster shells on trail surfaces The contract also includes a day rate for unscheduled but necessary grounds maintenance in Open Space, such as: •Tree clearing and brush chipping •Maintenance of picnic and campground facilities, including retaining walls, and erosion control structures •Maintaining trail surfaces Additionally, a portion of the contract covers work for the Utilities Department, which involves maintaining roads, brushing infrastructure sites, maintaining roadside drainage ditches, and culverts within Pearson-Arastradero Preserve and Foothills Nature Preserve. This ensures access to utility sites and includes grounds maintenance at Hal Well and Mayfield Reservoir sites. Procurement Process A Request for Proposals (RFP) was released August 1, 2024, but was rebid after staff identified that the initial license requirement was overly restrictive, potentially limiting the contractor pool. In response, the requirements were revised to allow for either a Class A Engineering license or a C61/D64 Soft Dirt and Gravel Hiking Trails license, broadening the qualifications for prospective bidders. At that time staff revised the length of the agreement from a (3) three- year term agreement to a (5) five-year term. City staff posted a rebid of the RFP on August 29, 2024 on the City of Palo Alto’s e-procurement website (OpenGov), notifying 3,251 vendors of the bid opening. There were 23 proposal packages downloaded. The City received two (2) bids by the bid submission deadline of September 11, 2024. The Northwest Woodland Services, Inc. and Santa Cruz Mountain Trail Stewardship both met City specifications. Northwest Woodland Services, Inc. is the lowest responsive bid. Table 1: Summary of Request for Proposal Proposal Description RFP 191700A OPEN SPACE TRAIL MAINTENANCE Proposed Length of Project 5 years Number of Vendors Notified 3,251 Number of Proposals Packages Downloaded 23 Total Days to Respond to Proposal 14 Pre-Proposal Meeting n/a Pre-Proposal Meeting Date n/a Number of Proposals Received 2 Proposal Price Range $1,099,800-$4,359,954 Public Link to Solicitation Project overview (opengov.com) The proposals were evaluated and determined to be responsive to the criteria identified in the RFP. Northwest Woodland Services, Inc. was selected because of the quality and effectiveness of their services, the experience of their field staff, prior record of performance with the City, and their ability to provide future services. Additionally, Northwest Woodland Services, Inc. cost for services ($1,099,800) was significantly lower than the other proposal ($4,359,954). FISCAL/RESOURCE IMPACT Staff is recommending additional services totaling 10% of basic services as inclement weather can impact the trail system significantly. In addition, this additional services funding is necessary for this project because it accounts for unforeseen circumstances and complexities that can arise during the five-year term. These additional services help ensure we have appropriate resources available to keep the condition of open space trails to city standards despite potential challenges that exceed typical expectations. The annual contract amount is $219,960 with no cost escalation within those five years. The contract additional services funding could be used within any of those five years. In FY 2025 the Open Space Trails and Amenities Project (OS-00001) has funding in the amount of $296,701 with the total five-year capital improvement plan project budget of $1,248,203, which is sufficient for this contract. ENVIRONMENTAL REVIEW The work types to be completed under this contract are categorically exempt from the California Environmental Quality Act (CEQA) under Title 14 California Code of Regulations Section 15301 (Existing Facilities), Section 15302 (Replacement or Reconstruction), Section 15303 (New Construction of Small Facilities or Structures), and Section 15311 (Accessory Structures) because it consists of the redevelopment of an existing facility. APPROVED BY: Kristen O'Kane, Community Services Director Dear Mayor and Council Members, On behalf of City Manager Ed Shikada, please see staff responses below for questions from Council Member Tanaka on the Monday, November 4 Council Meeting. Item 7: Approval of General Service Contract Number C25191700A with Northwest Woodland Services, Inc. in the Amount Not-to-Exceed $1,209,780 for the Open Space Trails and Amenities Capital Improvement Program Project (OS-00001) for a Period of Five Years. CEQA status – Categorically exempt. 1. What strategies were employed to ensure a robust bidding process that attracted qualified contractors, given the significant disparity in bids with Northwest Woodland Services’ proposal being over three times lower than the competing bid? How can we be sure this lower bid reflects both cost efficiency and the expected quality of services? Staff response: The procurement processed detailed in the staff report ensured a competitive bidding environment. In addition to being the low bid, Northwest Woodland Services, Inc. was chosen based on service quality, field staff experience, past performance with the City, and future service capacity, ensuring both cost efficiency and quality. 2. How does the City plan to address the risks of inflation and rising operational costs in a fixed five-year contract without cost escalation provisions, and what contingency measures are in place to ensure service quality isn’t compromised over time? Staff response: The fixed rate was proposed by the contractor. The contractor’s work will be monitored by Open Space Rangers to ensure quality of work. 3. What specific criteria will trigger the use of the 10% additional services fund, and how will the City ensure stringent oversight to prevent misuse or unanticipated budget overruns? Staff response: Additional services can be used for an extreme weather event(s) or for other unforeseen complexities during the five-year term, triggered when the day rate is exceeded. Additional services must be approved by the project manager. 4. What performance metrics will be established to monitor the contractor’s work throughout the contract, and how will these metrics inform future contract adjustments if standards are not met? Staff response: A project manager and Open Space Rangers will oversee and monitor the contractor’s work, ensuring adherence to performance standards and informing any necessary adjustments. Item 8: Approval of Contract Amendment Number 1 to Contract Number C24189849 with Ecology Action of Santa Cruz in the amount of $485,243 for the City of Palo Alto Safe Routes to School Bicycle and Pedestrian Life Skills Education Programs for Three Years (January 2025 - November 2027) for a new not-to-exceed of $625,211; CEQA status 15322 – categorically exempt (educational program). 1. How was the proposed cost of $485,243 determined, and what benchmarks were used to compare it to similar educational programs in other jurisdictions? Staff response: The cost proposal reflects the scope of work for three years, maintaining current service levels with minor curriculum updates. Ecology Action has delivered exemplary performance during the pilot program. This comprehensive programming is unique to Palo Alto, helping sustain and grow student active transportation. The proposal was evaluated based on their strong understanding of Palo Alto’s needs and their proven track record from the previous year. 2. Why was only one proposal received from Ecology Action, and what measures will the City implement to improve the procurement process and ensure competitive bidding in the future? Staff response: 175 firms were notified, but only one proposal was received. The City used its eProcurement platform and directly contacted three additional firms. A follow- up survey revealed that one cited timing, and two mentioned capacity constraints. 3. What specific metrics will be used to evaluate the program's success in improving student outcomes, and how will this information be reported to the Council and the community? Staff response: Pilot success metrics included timely deliverables, age-appropriate curriculum, and 92% teacher approval. These metrics—number of lessons, student participation, teacher satisfaction, and student safety outcomes—will continue to guide evaluation. Program performance will be reported to the Council and the community. 4. What contingency plans are in place for potential funding shortfalls from Measure B, and how will the City ensure program continuity in the event of decreased funding? Staff response: The City plans to use Measure B Bicycle and Pedestrian Grant funds for FY 2025 and beyond. If funding decreases, the City will seek other funding sources. The Safe Routes to School Capital Improvement Project also serves as a backup, pending Council approval. Item 11: Approval of Amendment 1 to Contract Number C24187853 with All City Management Services, Inc. to Increase Compensation by $228,768 for Additional Crossing Guard Services and Add a Contingency of $414,933 for a New Not-to-Exceed Amount of $4,564,566; and Approve a Budget Amendment in the General Fund; CEQA status - Not a Project. 1. What specific metrics will be used to evaluate the effectiveness of the proposed $228,768 increase in contract costs, and how will we measure the expected reduction in traffic incidents at the new crossing guard locations? Staff response: Through the City’s Safe Routes to School program, pedestrian and bicycle tallies are measured through annual counts. Traffic collision data can also be analyzed after implementation. Guards serve an integral role to help promote City goals to encourage alternative transportation methods. 2. With the proposed increase extending financial obligations through August 2028, how will future budgets accommodate these ongoing costs, particularly after the PAUSD cost-sharing agreement ends in June 2025? Staff response: Please refer to the staff report; the City will bear the continued cost of maintaining the additional guard. 3. How will adding crossing guards affect the Police Department's resource allocation, and what measures ensure that public safety priorities are not compromised? Staff response: Presence of a crossing guard allows patrol and traffic officers to focus traffic enforcement on areas of more concern and general calls for service. 4. What community engagement has been conducted regarding this crossing guard program, and have alternative solutions like volunteer programs or traffic calming measures been considered? Staff response: Changes were spearheaded as a result of community engagement. The City/School Transportation Safety Committee, of which the Police are members, constantly interact with school PTA’s, PAUSD staff and local transportation safety representatives. Volunteer programs and traffic calming measures are not feasible.