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DATE: |
October 27, 2026 |
17 |
Title
Adopt a Memorandum of Agreement with the City of San Diego and Advertise and Award a Construction Contract for Saturn Boulevard Pipe Extension Project and Related CEQA Exemption (District: 1)
Body
Overview
The Tijuana River Valley (TJRV) and surrounding South Bay communities have suffered severe and prolonged impacts from untreated sewage flows, urban runoff, and associated toxic airborne emissions. These conditions pose a significant threat to public health, environmental resources, and local economies, causing repeated beach closures and other hazards in nearby neighborhoods. In response, the County of San Diego (County) Board of Supervisors (Board) has taken multiple actions as part of an aggressive multi-agency strategy to address this environmental and public health crisis. On June 27, 2023 (16), the Board proclaimed a local emergency and has reaffirmed that declaration 26 times. On June 24, 2025 (10), the Board established the Ad Hoc Subcommittee on the Tijuana River Sewage Crisis (now the Standing Committee on the Tijuana River Pollution Crisis) to evaluate and advance urgent solutions, including infrastructure projects to mitigate “toxic hot spots” beginning with the Saturn Boulevard crossing area.
Turbulent water flows at the Saturn Boulevard culvert crossing are known to release hydrogen sulfide gas and other pollutants into the air, causing health risks for residents in the surrounding community. A feasibility study prepared by Dudek in January 2026 identified both immediate and long-term infrastructure solutions to address this area. The near-term solution it identified is the Saturn Boulevard Pipe Extension Project. The proposed pipe extension system will attach high-density polyethylene (HDPE) pipe extensions to the outlet of selected existing drainage culverts at the Saturn Boulevard crossing, extending them below the water surface in the downstream pond. By discharging the flow beneath the water’s surface, this project will reduce turbulence and foaming of the contaminated Tijuana River flows, which will reduce aerosolization of hydrogen sulfide and other harmful compounds into the air near residential areas. The long-term, permanent solution identified by the feasibility study involves a box culvert/bridge. This project would remove the portion of the roadway with the pipe culverts, regrade the channel upstream and downstream to be a smoother transition, and install a box culvert to replace the pipe culverts.
On January 28, 2026 (15), the Board received an update from the Ad Hoc Subcommittee which highlighted the Saturn Boulevard site as the highest-priority infrastructure hotspot in the County’s response to the sewage crisis. The Board directed the Chief Administrative Officer to include $2.5M for the capital costs to construct a near-term pipe extension at Saturn Boulevard; should alternative funding be identified, the $2.5 million will support immediate needs for the Tijuana River Valley. As the project is located within the City of San Diego and on Navy property, the Board also directed the Chief Administrative Officer, or designee, to begin working with the City of San Diego and the United States Navy on an agreement to move forward with the near-term infrastructure pipe extension project at Saturn Boulevard.
The County worked with the City of San Diego to develop a Memorandum of Agreement, which specifies that the County serves as the lead agency for design, permitting, construction, coordination with the Navy, and five years of monitoring and oversight, while both Parties commit to accelerated schedules, shared decision-making, and a structured process for pivoting to a permanent solution if funding becomes available. The agreement establishes roles, timelines, environmental compliance requirements, fiscal responsibilities, indemnification, communication protocols, and termination provisions to ensure coordinated action. The Agreement is included as Attachment B and has been signed by both parties. The County has also obtained letters of support from the Navy, included as Attachment C, and completed project design, necessary technical studies, and secured required regulatory permits in coordination with the City of San Diego, U.S. Navy, and California Coastal Commission.
On September 1, 2026 (14), the Board took additional action and authorized the allocation of $4.0M within the Unlocked Reserves Framework for the design of the permanent Box Culvert/Bridge solution at Saturn Boulevard to begin work on the permanent solution while the immediate solution moves forward. While the design is underway for this project, today’s action advances the construction of the pipe extension project. The pipe extension addresses an immediate public health problem, while the County works to secure a much larger investment for the permanent solution. If funding for the permanent solution becomes available soon, the County will be positioned to pivot from construction of the near-term solution to the permanent solution. If it does not, the near-term project can still provide needed relief while that funding is pursued. Both of these pathways are addressed in the agreement with the City, which is being considered for adoption today
Today’s requested actions will provide the authority needed to adopt the Memorandum of Agreement with the City of San Diego to Address Infrastructure Upgrades at Saturn Boulevard and begin construction of the Saturn Boulevard Pipe Extension Project. This includes authorizing the Director of the Department of Purchasing and Contracting to advertise and award a construction contract to the lowest responsive and responsible bidder, consistent with County Administrative Code Section 401, without further Board action, and in accordance with Board policy. In addition, it is recommended that the Board adopt a finding that the project is exempt from environmental review under the California Environmental Quality Act (CEQA) pursuant to CEQA Guidelines (Cal. Code of Regs., tit. 14, § 15000 et seq.), Sections 15269(b) and 15269(c). Construction of the pipe extension is expected to commence in early 2027 and be completed by summer 2027, providing near-term relief from health hazards for the impacted communities while more permanent long-term solutions are developed and funded. Note that the construction timeline may be impacted by the anticipated El Niño in the upcoming rainy season.
Body
Recommendation by Chief Administrative Officer:
1) Adopt the Memorandum of Agreement between the City of San Diego and the County of San Diego Regarding Infrastructure Upgrades at Saturn Boulevard, as well as authorize the Chief Administrative Officer or designee to make any subsequent amendments that do not materially alter the agreement.
2) Find that the Saturn Boulevard Pipe Extension Project (Project) is exempt from review under the California Environmental Quality Act (CEQA) pursuant to Sections 15269 (b) and 15269 (c) of the CEQA Guidelines, since the Project involves the emergency action to rehabilitate public service facilities necessary to maintain service essential to the public health, as well as action necessary to mitigate an emergency. Emergency actions include those that require a reasonable amount of planning to address the anticipated emergency.
3) Authorize the Director, Department of Purchasing and Contracting to advertise and award a construction contract and to take any action authorized by Section 401, et. Seq. of the Administrative Code, with respect to contracting for the Saturn Boulevard Pipe Extension Project.
4) Designate the Director, Department of Public Works, as County Officer responsible for administering the construction contract in accordance with Board Policy F-41 (Public Works Construction Projects) and to execute any related documents as needed to carry out the Project.
5)
Body
Equity Impact Statement
Residents of communities near the Tijuana River Valley - including areas of Imperial Beach, San Ysidro, and Nestor - have long been disproportionately affected by the cross-border pollution crisis, enduring toxic aerosols, and repeated beach closures that degrade quality of life and public health. These are communities with higher proportions of low-income and vulnerable populations, making this an environmental justice concern. Implementation of the Saturn Boulevard Pipe Extension Project is an important equity-focused intervention to immediately reduce exposure of these frontline communities to harmful airborne contaminants. By mitigating a major source of pollution, the Project will help improve air quality and public health outcomes for residents who have historically shouldered a disproportionate environmental burden. Community outreach will continue throughout Project implementation to keep residents informed of construction activities and expected improvements. This action aligns with the County’s commitment to health equity by prioritizing resources to protect the well-being of underserved communities most impacted by environmental hazards.
Sustainability Impact Statement
Today’s actions contribute to environmental, health and well-being, and social sustainability goals of the County of San Diego. The proposed action contributes to the County of San Diego’s sustainability goals by investing in infrastructure that protects public health and environmental resources in the Tijuana River Valley. By reducing the turbulence of local waterways and improving air quality for downwind neighborhoods, the Project supports Sustainability Goal #4 (Healthy and Safe Communities) and Goal #5 (Water and Air Quality). Additionally, the Project’s focus on mitigating pollution and improving conditions in the sensitive Tijuana River Valley ecosystem aligns with Goal #6 (Sustainable Land Use and Environmental Conservation).
Fiscal Impact
Funds for this request are included in the Fiscal Year 2026-27 Operational Plan in the Department of Public Works (DPW), General Fund. If approved, this request will result in a total project cost of $2,500,000 for the Saturn Boulevard Pipe Extension Project. The total estimated project cost includes $1,101,400 for design, environmental review, advertisement and construction management and $1,398,600 for construction, including a 20% contingency for unforeseen conditions. The funding source is available prior year General Fund fund balance in the Department of Public Works made available in the Fiscal Year 2025-26 Fund Balance Component Decreases (Unlocked Reserves) for the TJRV Pollution Crisis. In January 2026, the Board set aside these one-time funds for the Saturn Boulevard project, anticipating the need for immediate County investment in this interim solution. There is no change in net General Fund cost and no additional staff years.
Business Impact Statement
Environmental degradation in the Tijuana River Valley has harmed local eco-tourism, recreation, and hospitality businesses through beach closures, and health advisories that deter visitors. By mitigating pollution at the Saturn Boulevard crossing, this Project is expected to improve air quality, enhance nearby parks and beaches, and support local businesses and tourism, strengthening economic resilience of the South Bay communities. Construction will be publicly bid and completed by private contractors, sustaining regional jobs. County of San Diego construction contracts include provisions in the Working Families Ordinance, are competitively and publicly bid, and help stimulate the local economy by creating primarily construction-related employment opportunities and fostering growth through the County's Small and Local Business program. All workers employed on public works projects must be paid prevailing wages determined by the California Department of Industrial Relations, according to the type of work and location of the project. The prevailing wage rates are usually based on rates specified in the respective collective bargaining agreements. In these ways, the Project not only addresses an environmental and public health emergency but also bolsters local economic stability and fairness.
Advisory Board Statement
This request was not required to be presented to a formal advisory board. However, the Tijuana River Valley pollution issue and proposed solutions (including the Saturn Boulevard pipe extension) were regularly discussed by the Board’s Ad Hoc Subcommittee on the Tijuana River Sewage Crisis in 2025-26, which supported pursuing this Project as a priority action. County staff have also coordinated closely with the City of San Diego, the Navy, and other stakeholders through interagency working groups to ensure community and intergovernmental support for the Project’s implementation.
Background
The Saturn Boulevard Pipe Extension Project is urgently needed to protect public health and improve environmental conditions in an area that has been at the epicenter of the County’s cross-border pollution emergency. Hydrogen sulfide emissions from the Saturn Boulevard culvert crossing (located in the Nestor area near the City of Imperial Beach) have been linked to frequent complaints of health symptoms in the adjacent neighborhoods. Without prompt intervention, these conditions would persist or worsen, especially during periods of low flow when pollutants concentrate and as ongoing climate and weather patterns intensify the impacts. At the Saturn Boulevard crossing, the Tijuana River’s North Channel flows through a series of large culverts under the roadway. During dry weather, polluted river water discharges through two to three culvert pipes, spilling into a downstream pond where turbulence causes significant foaming and releases noxious gases (primarily hydrogen sulfide) into the air. This has created a persistent public nuisance and health concern for nearby residents who report symptoms such as headaches and nausea during periods of high pollutant concentration in the water and air. In storm conditions, additional culverts and an adjacent Arizona crossing (an at-grade overflow crossing) convey flood flows, but under normal conditions the problem is concentrated in the primary culvert barrels. The Saturn Boulevard area has been identified as a “toxic hot spot” and was prioritized by the Board for urgent intervention.
In late 2025, the County initiated a feasibility study to evaluate options for mitigating these harmful emissions at Saturn Boulevard. The study prepared by Dudek, dated January 2026, examined various measures and concluded that installing a pipe extension system downstream of the culverts would be the most feasible near-term solution to reduce the aerosolization of pollutants. This approach was recommended because it can be implemented relatively quickly (within approximately 18-24 months) and with minimal disturbance, providing relief to the community while more extensive, permanent solutions are pursued. The long-term, permanent solution identified by the feasibility study involves a box culvert/bridge. The project would remove the portion of the roadway with the pipe culverts, regrade the channel upstream and downstream to be a smoother transition, and install a box culvert to replace the pipe culverts. While the design is underway for this project, today’s action advances the construction of the pipe extension project. The pipe extension addresses an immediate public health problem, while the County works to secure a much larger investment for the permanent solution. If funding for the permanent solution becomes available soon, the County will be positioned to pivot from construction of the near-term solution to the permanent solution. If it does not, this project can still provide needed relief while that funding is pursued.
On January 28, 2026 (15), the Board of Supervisors received the Ad Hoc Subcommittee’s report and directed the Chief Administrative Officer to coordinate with the City of San Diego and U.S. Navy on necessary agreements for environmental review, design, and construction at the site. Following Board direction, County staff moved swiftly to obtain letters of support from the Navy and form a high-level framework with the City of San Diego, which was formalized in a Memorandum of Agreement executed on June 18, 2026. Under this framework, the County took lead responsibility for engineering design and environmental review, while the City and Navy provided access to the project site and participated in expedited technical and permitting reviews. By leveraging this collaboration, the Project has been developed on an accelerated timeline. All necessary technical studies including land surveying, and hydrologic & hydraulic analysis, have been completed to inform design and ensure the pipe extension will not increase flood risk or cause other adverse effects. Regulatory clearances are in progress or secured, including permits or approvals from the U.S. Army Corps of Engineers, Regional Water Quality Control Board, California Department of Fish and Wildlife, California Coastal Commission and other agencies as needed for work in the river channel and coastal zone. The project is located on Navy property and is anticipated to trigger review under the National Environmental Policy Act (NEPA) in conjunction with the Navy’s authorization of access or other necessary action to support the project. Additionally, the County worked with the City of San Diego to develop a second, more detailed Memorandum of Agreement to Address Infrastructure Upgrades at Saturn Boulevard, and the Agreement has been signed by both parties.
The resulting Project design calls for installation of durable HDPE pipe segments to extend two of the existing culvert barrels by approximately 40-60 feet into the downstream ponded area. Each extension pipe will be fitted with anchoring systems and energy dissipation measures to ensure they remain in place and function under varying flow conditions. The extended pipes will discharge below the pond’s typical water surface, greatly diminishing the turbulence and splash that can carry noxious gases into the air. By reducing this aeration effect, the Project will significantly cut down the release of hydrogen sulfide and other volatile pollutants at the site, improving air quality for nearby residents and visitors to the TJRV areas. The Project is carefully designed to avoid increasing flood levels; the extensions will be sized and placed so as not to impede significant storm flows, thereby maintaining existing flood capacity at the road crossing. Construction methods have been planned to minimize environmental disturbance in the sensitive river habitat by employing best management practices and avoidance measures to prevent any downstream siltation or harm to wildlife.
The total estimated cost of the Project is $2,500,000, which includes construction, contingency, and all related project delivery costs (planning, design, permitting, and construction management). This estimate aligns with the range identified in the feasibility analysis and reflects the installation of pipe extensions on two culvert barrels, which is expected to achieve a substantial reduction in emissions at the site. The funding source is available prior year General Fund fund balance. No additional funding from the City of San Diego is required for construction, oversight and monitoring under the current partnership.
By moving forward with construction at this time, the County will capitalize on the momentum of the interagency efforts and address a critical health and safety need before the upcoming peak dry season, when air quality issues are most severe. Deferring action would prolong the exposure of residents and visitors to noxious gases and delay much-needed relief to the community. This Project does not preclude or prejudice any future long-term solutions for the TJRV sewage crisis; rather, it complements ongoing advocacy for major infrastructure investments by providing an effective stop-gap measure at this time.
Environmental Statement
Section 15269 (Emergency Projects) of the CEQA Guidelines exempts projects undertaken to address emergencies. The proposed project is an emergency project to make emergency modifications to public service facilities that are necessary to maintain service essential to public health, safety, or welfare. Emergency modifications include those that require a reasonable amount of planning to address an anticipated emergency. Specific actions necessary to prevent or mitigate an emergency are also exempt under CEQA guidelines. The Saturn Boulevard Pipe Extension Project’s purpose is to reduce pollution and health hazards by reducing turbulence at the culvert outfall and minimizing the amount of hydrogen sulfide emitted into the air which contribute to the proclaimed local emergency. Therefore, the Project qualifies for a statutory exemption under Sections15269(b) and 15269(c) of the CEQA Guidelines. Upon approval of this exemption finding, a Notice of Exemption will be filed with the Clerk of the Board in accordance with CEQA and County procedures.
Linkage to the County of San Diego Strategic Plan
The recommended actions support the County’s 2026-2031 Strategic Plan, particularly the Equity, Sustainability, and Health initiatives. By addressing an urgent environmental health issue in an overburdened community, this Project advances Strategic Initiative 1 - Equity (promoting health and environmental justice in underserved areas) and Strategic Initiative 2 - Sustainability (protecting natural resources and public health for current and future generations). Installing the Saturn Boulevard Pipe Extension will help create safer, healthier communities (Goal 4) by reducing residents’ exposure to harmful pollutants and will aid in safeguarding regional water and air quality (Goal 5) by mitigating contamination in the Tijuana River Valley. These actions also align with the County’s vision of Live Well San Diego, supporting a healthy, safe, and thriving region through collaborative problem-solving and proactive infrastructure investment in communities that need it most.
Respectfully submitted,
DAHVIA LYNCH
Deputy Chief Administrative Officer
Attachment(s)
Attachment A - Vicinity Map
Attachment B - Memorandum of Agreement Between the City of San Diego and the County of San Diego Regarding Infrastructure Upgrades at Saturn Boulevard
Attachment C - Navy Letters of Support for Saturn Boulevard