REPORT TO THE CITY COUNCIL
FROM: GEORGEANNE A. WHITE, City Manager
Office of Mayor & City Manager
FRANCISCO PARTRIDA, Interim Director of Aviation
Airports Department
BY: RANDOLPH ALEXANDER, Airports Project Manager
Airports Department
SUBJECT
Title
Actions pertaining to the Runway 11L-29R Reconstruction project at Fresno Yosemite International Airport (Council District 4),Bid file 12502600:
1. ***RESOLUTION - Adopt the 38th Amendment to the Annual Appropriation Resolution (AAR) No. 2025-179 appropriating $7,500,000 for the AIP 106 Reconstruction Runway Project 11L-29R for Fiscal Year 2025-2026 (Requires Five Affirmative Votes) (Subject to Mayor’s Veto).
1. Award a Construction Contract to DeSilva Gates Construction-Vanguard a Joint Venture, of Dublin, California, for the Runway 11L-29R Reconstruction project at Fresno Yosemite International Airport in the amount of $98,888,888.00 (Bid File 12502600), with a notice to proceed each year contingent on FAA funding.
2. Approve a Consultant Agreement with Krazan of Fresno, California, to provide geotechnical quality assurance testing and inspection services for the Runway 11L-29R Reconstruction project at Fresno Yosemite International Airport in the amount of $1,164,070.00 for a term of three (3) years, with a notice to proceed each year contingent on FAA funding
3. Approve a Consultant Agreement with Kimley Horn for professional construction management and phasing services in the amount of $4,391,389.00 for a term of three (3) years, with a notice to proceed each year contingent on FAA funding
Body
RECOMMENDATION
Staff recommends that Council authorize the City Manager, or designee to execute a construction contract with DeSilva Gates Construction-Vanguard a Joint Venture of Dublin, California, in the amount of $98,888,888.00 (Bid File 12502600) for the Runway 11L-29R Reconstruction project (Project) at Fresno Yosemite International Airport (FAT) and approve a consultant agreement with Krazan of Fresno, California, to provide Geotechnical Quality Assurance (QA) testing and inspection services for the Project in the amount of $1,164,070.00 for a term of three (3) years, with a notice to proceed each year contingent on FAA funding. Approve a consultant agreement with Kimley Horn for Professional Construction (PC) management and phasing services in the amount of $4,554,111.00 for a term of three (3) years, with a notice to proceed each year contingent on FAA funding and adopt the 38th Amendment to AAR No 2025-179 appropriating of $7,500,000 for AIP 106 Reconstruction Runway Project 11L-29R.
EXECUTIVE SUMMARY
The Runway 11L-29R Reconstruction Project at Fresno Yosemite International Airport (FAT) is a critical enabling initiative designed to maintain safe, efficient airport operations. Funded by the Federal Aviation Administration (FAA), this project reconstructs and expands key airfield pavement areas, moving away from the use of asphalt, that breaks down over time and due to weather and increasing the extent of Portland Cement Concrete (PCC) surfaces through the entire length of the primary runway at FAT. These improvements will enhance aircraft circulation and ensure operational continuity as new international and domestic gates come online.
To support successful delivery, geotechnical quality assurance services will play a central role throughout construction. These services include comprehensive sampling and testing of soils, PCC, and asphalt surfaces; onsite inspections to verify compliance with project specifications; and preparation of engineering reports and recommendations. Together, these efforts will ensure the reconstructed runway and associated pavement systems meet the performance, durability, and safety standards required for long-term airport operations.
On February 18, 2026, staff posted the Staff Determination to award the construction contract to DeSilva Gates Construction-Vanguard. In response, the City received a formal appeal in protest of staff’s determination. Subsequently, an appeal hearing was scheduled and conducted by an Independent Administrative Hearing Officer on March 18, 2026. The Hearing Officer recommended upholding City staff’s determination, finding DeSilva Gates Construction-Vanguard as the lowest responsive and responsible bidder.
Background
The FAA-approved Airport Capital Improvement Program (ACIP) for Fresno Yosemite International Airport (FAT) identifies several critical airfield projects necessary to maintain safe and efficient operations, including the Runway 11L-29R Reconstruction effort. The ACIP serves as the FAA’s primary tool for prioritizing airport infrastructure needs and allocating appropriate funding to ensure continued safety, security, and operational capacity, such as larger weighted aircraft.
The reconstruction of Runway 11L-29R is a key enabling component of FAT’s broader airfield and terminal development program. As the terminal expansion advances, additional airfield pavement is required to support aircraft circulation, maintain operational continuity. The project also includes associated improvements such as utility relocations, upgraded airfield lighting, revised pavement markings, and reconfigured taxiways. These elements are essential to ensuring that runway operations remain safe and efficient while supporting long-term growth and relieving existing capacity constraints.
Plans and specifications for the runway reconstruction were prepared by Kimley-Horn and Associates, Inc. A Notice Inviting Bids was issued on July 2, 2025, posted on the City’s website, and distributed to ten building exchanges. Ninety-seven prospective bidders accessed the plans and specifications online. Five sealed bids were received and publicly opened on September 3, 2025, with prices ranging from $98,888,888 to $120,511,817. The lowest responsible and responsive bid-submitted by DeSilva Gates Construction-Vanguard a Joint Venture-was $98,888,888, approximately 32% below the engineer’s estimate of $130,674,836.25.
In accordance with FAA requirements, the Runway 11L-29R Reconstruction Project requires comprehensive geotechnical quality assurance (QA) services. Consistent with FAA policy and City of Fresno administrative procedures, the Airports Department issued a competitive Request for Qualifications (RFQ) for on-call geotechnical QA testing and inspection services. Three Statements of Qualifications were received and evaluated, resulting in all three firms being pre-approved to provide QA services on an on-call or project-specific basis. Krazan was determined to be the most qualified firm for this project. A detailed scope of work and fee were negotiated in accordance with FAA guidance, and the resulting consulting agreement represents the QA services required to support the runway reconstruction. Because these QA services involve specialized technical expertise beyond the capabilities of Airports Department staff, the engagement of a qualified consulting firm is essential.
In addition to the QA services consultant, the Runway 11L-29R Reconstruction Project requires comprehensive reporting and construction management services for Professional Construction (PC) phase services. Consistent with FAA policy and City of Fresno administrative procedures, the Airports Department issued a competitive Request for Qualifications (RFQ) for on-call PC phasing services. Three Statements of Qualifications were received and evaluated, resulting in all three firms being pre-approved to provide PC services on an on-call or project-specific basis. Kimley-Horn was determined to be the most qualified firm for this project. A detailed scope of work and fee were negotiated in accordance with FAA guidance, and the resulting consulting agreement represents the PC services required to support the runway reconstruction. Because these PC services involve specialized technical expertise beyond the capabilities of Airports Department staff, the engagement of a qualified consulting firm is essential.
Following the evaluation of bids and posting of the Staff Determination, a protest was received challenging the City’s determination of responsiveness and intent to award the construction contract. Consistent with City procedures as outlined in Resolution 2003-129, the matter was referred to an Independent Administrative Hearing Officer for review. A hearing was conducted on March 18, 2026, during which testimony and evidence were presented by all parties.
The Hearing Officer issued a written recommendation concluding that the City’s evaluation and determination were consistent with the requirements of the solicitation and applicable procurement standards. Specifically, the Hearing Officer recommended that the City uphold staff’s determination to award the contract to DeSilva Gates Construction-Vanguard, a Joint Venture, as the lowest responsive and responsible bidder, and deny the protest submitted by Security Paving Company, Inc.
The City Manager concurs with the Hearing Officer’s findings and recommendation and therefore recommends proceeding with the award of the construction contract to DeSilva Gates Construction-Vanguard.
The agreements for the contractor, QA consultant, and PC consultant have been reviewed and approved as to form by the City Attorney’s Office.
ENVIRONMENTAL FINDINGS
An Initial Study and Mitigated Negative Declaration (IS/MND) was prepared to evaluate the FATforward Passenger Terminal and Parking Expansion Project pursuant to the California Environmental Quality Act (CEQA) and adopted State CEQA Guidelines (Title 14, California Code of Regulations [CCR], Chapter Three). The City of Fresno Airports Department is the “lead agency” for this project (CEQA Guidelines, §15367). Based on the IS/MND, the following findings are made: (1) the project will not generate significant effects on the environment, and (2) when all applicable mitigation measures have been applied to the project, the project will result in a less than significant impact on the environment.
A public Notice of Intent to Adopt a Mitigated Negative Declaration for FATforward was published in the local newspaper on December 20, 2019, as required for public review and comment. A Notice of Determination was recorded with the Fresno County Clerk’s office on February 27, 2020, and Council adopted the IS/MND on March 19, 2020.
LOCAL PREFERENCE
Local Preference does not apply because Federal funding is being used.
FISCAL IMPACT
FAT is one of the largest drivers of economic activity, direct and induced jobs in the Central San Joaquin Valley. The new runway reconstruction project will help enable the airport to meet current and future demand as our region grows, resulting in further economic activity and job growth. Airports Department’s FY26 Adopted Budget provided $79,678,572 of appropriation authority for this Project. The remaining funds for the project will be adopted with the 38th Amendment to the 2025-179 Annual Appropriation Resolution. Funding for this Project is provided by FAA Airport Improvement Program grants. There is no impact to the General Fund from this action.
Attachments:
Resolution 38th Amendment AAR No. 2025-179
Evaluation of Bid Proposals - 11L/29R Runway Reconstruction
Findings and Recommendation by the Independent Administrative Hearing Officer
Consultant Services Agreement with Krazan
Consultant Services Agreement with Kimley-Horn
Project Site Map