To: Board of Supervisors
Department or Agency Name(s): Sonoma County Public Infrastructure
Staff Name and Phone Number: Johannes J. Hoevertsz, 707-565-2550
Vote Requirement: Majority
Supervisorial District(s): Fifth
Title:
Title
Award the construction contract for the Freestone Flat Road Bridge Replacement Project (County Project Number C11004).
End
Recommended Action:
Recommended action
A) Approve the plans and specifications for the Freestone Flat Road Bridge Replacement Project (County Project Number C11004).
B) Award the construction contract to the lowest responsible and responsive bidder, Ghilotti Construction Company, Inc., in the amount of $3,560,980.61.
C) Authorize a 20% contingency in the amount of $712,196.12 for a total not-to-exceed contract amount of $4,273,176.73.
D) Authorized the Director of the Sonoma County Public Infrastructure (SPI) Department to execute construction contract C11004.
end
Executive Summary:
Sonoma County Public Infrastructure (SPI) is requesting that the Board award a construction contract to Ghilotti Construction Company, Inc. for the Freestone Flat Road Bridge Replacement Project. If approved, the total not-to-exceed value of the construction contract will be $4,273,176.73, including a 20% contingency.
Discussion:
The Freestone Flat Road Bridge over Salmon Creek project (County Project Number C11004) (“Project”) will replace the existing structurally deficient one-lane Freestone Flat Road Bridge (Bridge Number 20C-0440) with a new two-lane bridge designed to meet current design and seismic standards, including improvements to roadway approaches and appurtenance facilities. The Project will improve vehicular safety by providing two traffic lanes with shoulders. Due to the low traffic volume on Freestone Flat Road, pedestrian, bicycles, and vehicles will share the travel lanes and shoulders on the new bridge. The new bridge will be constructed on an alignment adjacent to the existing bridge, allowing traffic lanes on the existing bridge to remain open during construction.
The initial engineering/design contract for the Freestone Flat Road Bridge over Salmon Creek project was awarded by the Board to Quincy Engineering on September 24, 2013, with a not-to-exceed contract value was $429,980 and a term ending December 31, 2015. On November 10, 2015, the Board approved the First Amendment to the contract to extend the contract term to December 31, 2020. On July 23, 2019, a Second Amendment was approved increasing the total not-to-exceed contract amount to $608,600 and further extend the term to December 31, 2022. The Second Amendment provided funding necessary to hire a sub-consultant (Panorama Environmental, Inc.) in order to initiate the California Environmental Quality Act (CEQA) and National Environmental Policy Act (NEPA) environmental approval process for this Project.
On February 8, 2022, the Board approved the Third Amendment, increasing the total not-to-exceed amount contract amount to $833,116 (including a 10% contingency) and extended the contract term to December 31, 2025. The Third Amendment provided additional funding for increased right-of-way, utility, and environmental coordination. On December 12, 2025, the Board approved the Fourth Amendment, adding construction support services, increasing the total not-to-exceed contract amount to $916,549 (including a 10% contingency) and extending the contract term to December 31, 2029.
On July 19, 2022, by Resolution Number 22-0291, the Board adopted a Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program, and approved the Freestone Flat Road Bridge Replacement Project over Salmon Creek. In May 2025, Caltrans revalidated the NEPA clearance, allowing the Project to proceed to the construction phase.
On June 4, 2024, the Board delegated authority to the Director of SPI to execute two separate right-of-way agreements for this project, and the right-of-way phase was completed in February 2025 upon certification.
With design, engineering, environmental and right-of-way complete, SPI staff put the construction phase out to bid in early 2026. The Engineer’s Estimate for the Project was $5,337,000 and the Project was advertised for construction bids from January 23, 2026, to February 25, 2026. Bids were opened on February 25, 2026, and were received as follows:
1. Ghilotti Construction Company, Inc. $3,560,980.61
2. Gordon N. Ball Incorporated $3,846,186.00
3. Disney Construction $3,880,889.00
4. Granite Construction Company $4,072,577.50
5. Viking Construction Company $4,090,498.00
6. Stacy and Witbeck, Incorporated $4,410,410.00
7. Steelhead Constructors Associates $4,738,714.00
8. Golden State Bridge, Incorporated $5,308,573.60
The lowest responsive bid of $3,560,980.61 was approximately 26.6% lower than the Engineer’s Estimate and in accordance with Public Contract Code Section 20128, the contract must be awarded to the lowest responsible and responsive bidder, which is $3,560,980.61 (without contingency). If approved, the total estimated construction cost including a 20% contingency is $4,273,176.73.
This Project is eligible to be 100% funded by Federal Highway Bridge Program (HBP), however it must satisfy all requirements of the HBP. At the time of this Board Item, Caltrans has authorized $4,339,000 for construction.
SPI recommends awarding the Freestone Flat Road Bridge Replacement Project construction contract to Ghilotti Construction Company, Inc.
Strategic Plan:
This item directly supports the County’s Five-year Strategic Plan and is aligned with the following pillar, goal, and objective.
Pillar: Resilient Infrastructure
Goal: Goal 3: Continue to invest in critical road, bridge, bicycle, and pedestrian infrastructure.
Objective: Objective 4: Identify and retrofit bridges in County that are at high risk for damage during earthquakes.
Racial Equity:
Was this item identified as an opportunity to apply the Racial Equity Toolkit?
No
Prior Board Actions:
12/9/2025: Board approved Fourth Amendment to agreement with Consor (formerly Quincy Engineering) to provide support services during the construction phase, including reviewing technical submittals, addressing Requests for Information and inquiries from contractors, preparing design plans and specifications for contract change orders, and preparing and submitting as-built drawings.
6/4/2024: Board delegated authority to Director of Sonoma Public Infrastructure to execute right-of-way contracts with two Freestone Flat Road property owners.
7/19/2022: Board adopted a Resolution adopting the Mitigated Negative Declaration and Mitigation Monitoring and Reporting Program and approved the Freestone Flat Road Bridge Replacement Project over Salmon Creek.
2/8/2022: Board approved Third Amendment to agreement with Quincy Engineering for additional engineering and environmental services and extending the term of the agreement to December 31, 2025.
7/23/2019: Board approved Second Amendment to agreement with Quincy Engineering for additional engineering and environmental services and extending the term of the agreement to December 31, 2022.
11/10/2015: Board approved First Amendment to agreement with Quincy Engineering, extending the term of the agreement to December 31, 2020 at no additional cost.
9/24/2013: Board approved agreement with Quincy Engineering for engineering design work for the Freestone Flat Bridge Replacement Project.
Fiscal Summary
|
Expenditures |
FY25-26 Adopted |
FY26-27 Projected |
FY27-28 Projected |
|
Budgeted Expenses |
|
$4,273,176.73 |
|
|
Additional Appropriation Requested |
|
|
|
|
Total Expenditures |
|
$4,273,176.73 |
|
|
Funding Sources |
|
|
|
|
General Fund/WA GF |
|
|
|
|
State/Federal |
|
$4,273,176.73 |
|
|
Fees/Other |
|
|
|
|
Use of Fund Balance |
|
|
|
|
General Fund Contingencies |
|
|
|
|
Total Sources |
|
$4,273,176.73 |
|
Narrative Explanation of Fiscal Impacts:
If awarded, the total value of the construction contract is $4,273,176.73 inclusive of a 20% contingency. Appropriations for this project will be included in the FY 2026-27 Roads Capital (11051-34010103) Recommended budget. This project is eligible to be 100% funded through the HBP with $4,339,000 currently authorized by Caltrans for the construction phase, including $3,818,320 for construction and $520,680 for construction management. SPI has applied for additional funding to reimburse the County for construction costs exceeding the current approved amount of $454,856 through the Federal Highway Bridge Program (HBP) but the application has not been approved yet. In the event the application is denied, the Department would use annual allocations from traditional Road funding sources such as the Highway User Tax Account (HUTA) or the Road Maintenance Rehabilitation Account (SB1) to cover the additional costs.
Narrative Explanation of Staffing Impacts (If Required):
None
Attachments:
Construction Plans, Bid Book, Special Provisions, Construction Contract
Related Items “On File” with the Clerk of the Board:
Fourth Amendment to Agreement with Consor (formerly Quincy Engineering)
Third, Second and First Amendment Agreement with Quincy Engineering
Original Agreement with Quincy Engineering
Resolution adopting Mitigated Negative Declaration and Mitigation Monitoring Program