To: Board of Supervisors
From: Warren Lai, Public Works Director/Chief Engineer
Report Title: Resolution of Necessity Hearing for the I-80 San Pablo Dam Road Interchange Improvement - Phase 2 project, San Pablo area
Recommendation: Recommendation of the County Administrator
RECOMMENDATIONS:
OPEN the public hearing and ask if any notified property owners wish to be heard as to the four items specified in Section B below, CLOSE Public Hearing.
Upon completion and closing of the hearing, MAKE the findings and determinations listed under Section B below and ADOPT the attached Resolution of Necessity to acquire the required property by eminent domain. Project No.: 0660-6X4173/EA 0413000404.
FISCAL IMPACT:
In eminent domain actions the judgment will be the price paid for the property and may include court costs which are regarded as a roughly calculable expense of property acquisition and prejudgment interest. Costs of acquisition in this case are 100% reimbursable from Contra Costa Transportation Authority (CCTA). (SCH NO.: 2009082009)
BACKGROUND:
A. Proposed Project:
The Contra Costa Transportation Authority (CCTA), in cooperation with the California Department of Transportation (Caltrans), proposes to reconstruct the Interstate 80 (I-80)/San Pablo Dam Road (SPDR) Interchange - Phase 2, which is in the City of San Pablo and borders the City of Richmond. The purpose of the Project is to improve overall safety, traffic operations, and bicycle/pedestrian access at the interchange. The Project will reduce traffic congestion, optimize traffic flows at interchange ramps, improve pedestrian and bicycle access and safety, and standardize the vertical clearance of the overcrossing.
The existing I-80/SPDR Interchange has several nonstandard features that contribute to traffic congestion and the inefficiency of the interchange operations, including short weaving sections between the ramps within the Project limits. The Phase 2 project scope of work includes the realignment of SPDR and replacement of the overcrossing. The new single span bridge will consist of a 4-foot striped median, three (3) lanes and a Class IV bikeway in each direction of travel, and 7-foot-wide sidewalks on each side of the structure. Reconstruction of the I-80 westbound on- and off-ramps at SPDR. Construction of a new connector road on the west side of I-80 to connect SPDR to McBryde Avenue. By consolidating the off-ramps at McBryde Avenue and SPDR in the westbound direction (while maintaining direct access to McBryde Avenue), the short weaving distance between the successive on- and off-ramps will be eliminated, and safety and traffic operations will be improved along westbound I-80. This connector includes a new bridge over Wildcat Creek, reconstruction of the I-80 eastbound on- and off-ramps at SPDR, and the realignment of Amador Street.
Under an Agreement between Contra Costa County (County), Caltrans, CCTA and the City for the Exercise of the Power of Eminent Domain for the I-80/San Pablo Dam Road Interchange Project-Phase 1 (dated July 16, 2013), the Parties agreed and reaffirmed that the County is designated as the party to administer the portion of the Cooperative Agreement relating to the acquisition of real property, through eminent domain or otherwise, by and through its Board of Supervisors, County Officials and departments, and County attorneys.
On June 25, 2013, this Board ADOPTED the Mitigation Negative Declaration and pertaining to the entire project including Phase 2, as the responsible agency for the project.
Construction of the Phase 2 project is scheduled to begin in the Spring of 2028. In order to proceed with the project, it is necessary for the County to exercise its power of eminent domain to acquire the property rights described herein.
Pursuant to Section 1245.235 of the Code of Civil Procedure, notice was given to all persons listed on the attached Exhibit 1 whose names and addresses appear on the last equalized County Assessment Roll. This notice consisted of sending by first-class and certified mail on September 4, 2026, a Notice of Intention which notified these owners that a hearing is scheduled for October 6, 2026, at 9:00 a.m. in the Board’s Chambers, at which time they may appear to be heard on the matters referred to in the notice.
B. Scope of Hearing Per C.C.P. Section 1245.235
1. Public interest and necessity require the proposed project.
The proposed I-80/San Pablo Dam Road (SPDR) Interchange Project - Phase 2 Improvements includes construction of the proposed SPDR Overcrossing (OC) Bridge, a new Wildcat Creek Bridge, and the McBryde Connector Road between San Pablo Dam Road and McBryde Avenue. The McBryde Connector Road will provide a more direct and continuous connection to the I-80 westbound mainline, improving local and regional traffic circulation and reducing reliance on San Pablo Dam Road, San Pablo Avenue, and other local streets. By providing a shorter and more direct route, the project is expected to reduce out-of-direction travel, improve travel times, minimize traffic congestion on the local roadway network, and optimize overall traffic operations.
The project also proposes removal of the existing McBryde Avenue westbound I-80 off-ramp. Removal of this off-ramp will eliminate the existing weaving condition between the successive westbound San Pablo Dam Road on-ramp and McBryde Avenue off-ramp. This improvement will reduce traffic conflicts and congestion associated with the closely spaced ramps and substantially improve the operational efficiency and safety of the I-80 westbound mainline. A new Wildcat Creek Bridge will be constructed as part of the McBryde Connector Road. Construction of this bridge requires a Temporary Construction Easement (TCE) from Parcel 70027 to provide sufficient access and workspace for construction activities.
The proposed McBryde Connector Road will run generally parallel to the I-80 westbound mainline and requires acquisition of Permanent Right-of-Way and/or Temporary Construction Easements (TCEs) from Parcels 70027, 70028, and 70029. These property interests are necessary to construct roadway improvements, associated facilities, and required construction features within the project limits, and are more particularly described and depicted in Appendix “A” to the proposed Resolution of Necessity.
The proposed acquisitions are directly related to the approved project improvements and are necessary to implement the project’s approved purpose and need. The affected parcels provide the required footprint for the McBryde Connector Road and associated improvements, including the Wildcat Creek Bridge. Without acquisition of the identified property interests, the proposed improvements cannot be constructed as approved and the project would not be able to fully achieve its intended transportation, operational, and safety benefits.
The project also includes replacement of the existing SPDR Overcrossing Bridge with a wider structure designed to accommodate future traffic demand and improve multimodal connectivity. The proposed bridge will provide three lanes in each direction and Class IV bicycle facilities, consistent with the project’s objectives to improve traffic operations, reduce congestion, and enhance bicycle connectivity across I-80. To accommodate the proposed interchange configuration and roadway improvements, San Pablo Dam Road will be widened and reconstructed to conform to the proposed roadway geometry. The widening will require relocation and reconstruction of the existing sidewalk and associated pedestrian facilities.
2. The project is planned and located in the manner that will be most compatible with the greatest public good and the least private injury.
During the project approval and environmental determination phase, the project team studied several interchange design alternatives. After detailed study and discussion with the project development team, along with taking input from public meeting, a preferred interchange design alternative was selected. The preferred interchange design achieves the required traffic operational improvement, provide safer pedestrian and bicycle access thru the new widened SPDR bridge structure, widens the on- and off-ramp from the I-80 mainline, constructs a connector road that provide one way access between San Pablo Dam Road and McBryde Avenue with the least of right of way impacts to both residential and commercial properties. The alternative designs that were not selected would have resulted in more right-of-way impacts, including both residential and commercial properties. The proposed preferred interchange design alternative and other local street improvements, including bridge structures, retaining wall and sound wall, are more specifically discussed in the approved Final Initial Study / Environmental Assessment (IS/EA)
3. The property(ies) sought to be acquired is/are necessary for the project,
The proposed acquisitions are necessary for the reconstruction of I-80 San Pablo Dam Road Interchange improvement design, which includes realignment and widening of on-ramp and off-ramp, widening of a San Pablo Dam Road, realignment of Amador Street, a new McBryde Avenue connector road, and the construction of SPDR Overcrossing bridge and Wildcat Creek bridge. The Project Team has diligently evaluated and incorporated reasonable and practicable measures to avoid full take right-of-way impacts to affected properties within the Project limits. Such measures have been considered throughout project development and design and will continue to be implemented, as applicable, during construction. Despite these efforts, certain property interests are necessary to acquire to construct and complete the Project as approved. The proposed improvements cannot be constructed as planned without the right-of-way acquisitions and temporary construction easements described in Appendix “A” to the Resolution of Necessity.
4. The offer of compensation required by Section 7267.2 of the Government Code has been made to the owner or owners of record.
The County, through the Real Estate Division of the Public Works Department, has made an offer of just compensation to the owners of record for the rights required for this project. The offer was based on an appraisal of the fair market value of the property rights being acquired. In this case, efforts were made to acquire each required property or property right through negotiated purchase and sale instead of condemnation. Attempts to negotiate a settlement involved an offer being mailed and emailed to the owners of records, phone discussions, and offers to meet virtually or at the project site with owners and/or their representatives. However, the negotiations were not successful, requiring the County to proceed with the adoption of this Resolution of Necessity.
CONSEQUENCE OF NEGATIVE ACTION:
The County will be unable to acquire the property rights necessary for the project.