Richmond–San Rafael Bridge

Proposals for a bridge were advanced in the 1920s, preceding the completion of the Golden Gate Bridge. In 1927, Roy O. Long of The Richmond–San Rafael Bridge, Incorporated, applied for a franchise to construct and operate a private toll bridge. The proposed 1927 Long bridge would have been a steel suspension bridge, carrying a 30-foot-wide (9.1 m) roadway for a distance of 14,600 feet (4,500 m) at an estimated construction cost of US$12,000,000 (equivalent to $202,200,000 in 2022). The bridge would afford a maximum vertical clearance of 135 feet (41 m) with a 1,200-foot (370 m) main span.[6] Charles Derleth, Jr. was selected as the consulting engineer, after having served in that role for the recently completed Carquinez Bridge.[7] The Long bridge would have spanned San Pablo Bay between Point Orient (in Contra Costa County) to just below McNear's Point (in Marin County), and Long was granted the franchise in February 1928 by the Contra Costa County Board of Supervisors.[8]

A competing proposed bridge also came out in 1927, from Charles Van Damme of the Richmond-San Rafael Ferry Company. The 1927 Van Damme bridge would have carried a 27-foot-wide (8.2 m) roadway for a distance of 19,000 feet (5,800 m) at an identical estimated construction cost of US$12,000,000 (equivalent to $202,200,000 in 2022).[9] It would have spanned San Pablo Bay from Castro Point (Contra Costa County) to Point San Quentin (Marin County), approximately the same routing as the eventually completed 1956 bridge.[8] Although the 1927 Long bridge had been granted a franchise in February 1928, Van Damme subsequently petitioned to reopen the case, since the ferry company owned the land at the proposed eastern terminus and therefore should have been favored in the franchise selection process.[10] Also, since the ferry company's franchise rights were not set to expire until the 1950s, Long's 1927 bridge cost would have increased to reimburse losses to ferry revenues.[9] Soon after winning the franchise rights, Long approached Van Damme with an offer to buy the Richmond-San Rafael Ferry Company for US$1,250,000 (equivalent to $21,300,000 in 2022).[11]

Van Damme and Long later agreed in September 1928 to merge their interests for a combined bridge proposal between Point San Pablo (Contra Costa County) and McNear's Point (Marin County).[12] The combined project, now headed by Oscar Klatt for the American Toll Bridge Company, received approval for the routing from then-Secretary of War Good in May 1929, although vertical and horizontal clearances for the proposed bridge were not fully established at the time.[13] In November 1929, vertical clearance had been increased to 160 feet (49 m) to satisfy Navy requirements.[14] The construction permit was issued in February 1930.[15]

Klatt's 1929 bridge was dormant for nearly a decade following the issuance of a construction permit in 1930. An extension was filed in 1938 to allow construction to start as late as February 1942,[16] and fresh plans for a bridge district to facilitate financing were announced in 1939.[17] In 1947, interest was revived in bridging Marin and Contra Costa Counties.[18]

A third bridge was proposed in late 1927 by the enigmatic T.A. Tomasini.[19] Tomasini's 1927 bridge called for two lanes of automobile traffic straddling a central rail line from San Pedro Hill (Marin) to San Pablo station (Contra Costa), a distance of over 5 miles (8.0 km).[20] In 1928, Tomasini presented a revised proposal for a bridge farther south than the other two bridges—spanning the water from Albany (in Alameda County) to Tiburon. The 1928 Tomasini Albany–Tiburon bridge was the longest of the three proposed bridges by a significant margin.[10][21] The proposed Albany–Tiburon bridge would have been similar in concept to the 1967 San Mateo–Hayward Bridge, with a high-level western section approximately 7,700 feet (2,300 m) long transitioning to a low-level eastern causeway. The western section featured two 1,000-foot-wide (300 m) spans to cross the navigation channels, with the western navigation span having a minimum vertical clearance of 150 feet (46 m) and the eastern navigation span having a minimum vertical clearance of 135 feet (41 m).[22] The 1,000-foot-wide (300 m) navigation channels for the proposed Albany–Tiburon bridge were opposed by shipping interests, who wanted the channels to be 1,500 feet (460 m) wide instead. The cost of the longer spans required would have made the proposed Albany–Tiburon bridge impractical, and Tomasini argued that "any mariner who could not negotiate a bridge such as proposed should lose his license."[23]

Tomasini's proposed 1928 San Francisco Bay crossings, shown in orange. Red bridges are those that were built, including the 1956 Richmond–San Rafael Bridge (1). 1937 Golden Gate Bridge (2), and 1936 San Francisco-Oakland Bay Bridge (3) .

1. Albany–Tiburon bridge
2. Sausalito–Belvedere bridge
3. San Francisco–Marin–Alameda tunnel & bridge

Tomasini would later add a bridge spanning Richardson Bay in March 1928 from Sausalito to Belvedere to his proposal.[12] The additional Sausalito–Belvedere bridge would have been 7,300 feet (2,200 m) long and 22 feet (6.7 m) wide with a lift span to allow the passage of large vessels, at an estimated cost of US$750,000 (equivalent to $12,800,000 in 2022).[24][25] Meanwhile, in April 1928 Tomasini recruited the prominent Ralph Modjeski to serve as the consulting head engineer for the proposed Albany–Tiburon span,[26] and Modjeski promptly complimented the plans that had been drawn up by Tomasini's chief engineer, Erle L. Cope.[25] The design for a lift span in the proposed Sausalito–Belvedere bridge was changed to a bascule after public comments were received from a local shipbuilder.[27] Tomasini received a permit for the Sausalito–Belvedere bridge from the War Department in December 1928.[28] Tomasini had planned to commence construction of the Sausalito–Belvedere bridge in July 1930,[29] but he was met with opposition from the Tiburon-Belvedere Chamber of Commerce, who felt the creation of a bridge would eliminate the promised San Francisco-Tiburon ferry service.[30] In 1931, the Richardson Bay Redwood Bridge was opened, which was the largest structure in the world constructed of redwood.[31] The Redwood Bridge carried the Redwood Highway (present-day US 101) and spanned the upper reach of Richardson Bay,[32] eliminating some of the need for the proposed Sausalito–Belvedere bridge. The Redwood Bridge would be replaced by a concrete structure in the 1950s.[33]

Tomasini continued to add to the project scope in July 1928 by proposing a bridge and tunnel to join San Francisco to the proposed Albany–Tiburon bridge. The tunnel would run roughly northeast from Bay Street and Grant Avenue, not far from present-day Pier 39, at a depth of 50 feet (15 m) below low tide water level for 11,200 feet (3,400 m). At that point, the tunnel would surface northwest of Goat Island, and then transition to a bridge nearly 4 miles (6.4 km) long with a minimum vertical clearance of 50 feet (15 m) and two lift spans connecting to the proposed Albany–Tiburon bridge. The cost of the entire project was US$55,670,000 (equivalent to $948,800,000 in 2022), split as US$20,000,000 (equivalent to $340,900,000 in 2022) for the Albany–Tiburon bridge, US$670,000 (equivalent to $11,400,000 in 2022) for the Sausalito–Belvedere bridge, and US$35,000,000 (equivalent to $596,500,000 in 2022) for the San Francisco–Marin–Alameda tunnel and bridge.[34] Tomasini organized each of the three proposed structures as independent projects, preferably to be built simultaneously, but in the event that one was not approved, it would not delay the construction of the other two.[34] San Francisco's board of supervisors rejected Tomasini's San Francisco–Marin–Alameda tunnel and bridge in September 1928, although the board's action was non-binding.[22]

Aerial photo of the bridge and the surrounding area

By February 1932, Tomasini's proposed Albany–Tiburon bridge had changed to a combination bridge—tunnel. The bridge portion was a low trestle approximately 19,800 feet (6,000 m) long, extending westward from Point Fleming in Albany in Alameda County. The proposed tunnel would have been 17,200 feet (5,200 m) long and ventilated by four towers, emerging at Bluff Point near Tiburon in Marin County.[35] Total estimated cost for the two structures was now US$35,000,000 (equivalent to $750,700,000 in 2022) and despite opposition from the US Navy, who cited potential navigation hazards,[36] the bridge—tunnel was approved by the War Department in July 1932.[35] Although he had the permit to begin work, Tomasini filed numerous annual extensions to retain the rights through 1941,[37] apparently due to a lack of funding to start work. Tomasini was still scrambling for funding in August 1941, seeking the issue of bonds worth US$20,000,000 (equivalent to $397,900,000 in 2022).[38] Tomasini lost the rights to the crossing in October 1941,[39] which was not the first time he was opposed by Earl Warren, who had questioned the validity of Tomasini's franchise as early as 1933.[40] Still, Tomasini was doggedly trying to advance his plans as late as 1948.[41]

Aerial photo of the bay

In 1949, the County of Marin and the City of Richmond commissioned a preliminary engineering report from Earl and Wright of San Francisco, which concluded that a bridge would be feasible.[42] A follow-up 1950 study, conducted by the Division of San Francisco Bay Toll Crossings, was commissioned by Marin County and the City of Richmond using US$200,000 (equivalent to $2,430,000 in 2022) in state funding. The 1950 report concluded the bridge could be built in accordance with the California Toll Bridge Authority Act.[42] The preliminary design was approved on 1951-08-08 and California approved the preliminary report on 1951-11-27. The California Toll Bridge Authority authorized the issue of US$72,000,000 (equivalent to $793,400,000 in 2022) in bonds on 1952-11-07 and subsequently sold US$62,000,000 (equivalent to $678,100,000 in 2022) on 1953-02-26 to construct a single-deck bridge. The remaining US$10,000,000 (equivalent to $109,400,000 in 2022) was reserved for construction contingencies and to complete the lower deck of the bridge.[43] The $62 million raised from bond sales was divided into three parts: US$50,000,000 (equivalent to $546,900,000 in 2022) for construction, US$10,000,000 (equivalent to $109,400,000 in 2022) to address interest obligations on the bonds during the construction period, and US$2,000,000 (equivalent to $21,900,000 in 2022) in construction contingency.[43] In 1954, Governor Knight declared the second deck should not be delayed in the public interest, and US$6,000,000 (equivalent to $65,500,000 in 2022) was loaned from the State School Land Fund in 1955 to complete the second deck. The bridge was finished $4 million under budget.[44]

During the study period, an earth and rock-fill bridge with lift structures was considered, but the high-level bridge was chosen as the cost of a low bridge with navigation locks and lifting structures was prohibitive.[42]

The majority of construction costs were tied up in two contracts that opened for bidding on 1952-12-19. The first contract, for the substructure, was awarded to the low bidder, the Ben C. Gerwick, Inc. — Peter Kiewit Sons' Co. Joint Venture for US$14,234,550 (equivalent to $155,700,000 in 2022). The second contract, for the superstructure, was awarded to the low bid of US$21,099,319 (equivalent to $230,800,000 in 2022) by a joint venture between Peter Kiewit Sons' Co. — A. Soda & Son — Judson Pacific Murphy Corp.[42] The substructure construction moved rapidly, with an estimated 45% of piers completed approximately a year after the contract was awarded.[1]

The bridge with the upper deck was opened in 1956. It was dedicated on August 31, and opened for traffic on September 1 with one traffic lane per direction.[45] At the time, it was the world's second-longest bridge, behind the San Francisco–Oakland Bay Bridge,[46] as well as the longest continuous steel bridge.[47] The lower deck opened on August 20, 1957, at which point there were three lanes of traffic per direction.[48][49]

Originally a part of State Route 17, the bridge is now part of Interstate 580.

Upon its opening, the Richmond–San Rafael bridge was the last bridge across San Francisco Bay to replace a previous ferry service, leaving the Benicia–Martinez Ferry across Carquinez Strait as the only remaining auto ferry in the Bay Area (it would be replaced by a bridge in 1962).

Golden Gate Transit bus route 580 provides public transportation across the bridge. Formerly route 40, it runs between the San Rafael Transit Center and the El Cerrito del Norte BART station.[61] Golden Gate Transit Route 42, which provided service to Richmond BART/Amtrak station, was folded into route 40 in December 2015 that was later redesignated line 580, after the freeway on which it crosses the bay.[62]

The following initial toll rates were adopted on July 10, 1956, prior to the opening of the bridge:

The basic toll (for automobiles) on the seven state bridges, including the Richmond–San Rafael Bridge, was raised to $1 by Regional Measure 1, approved by Bay Area voters in 1988.[65] A $1 seismic retrofit surcharge was added in 1998 by the state legislature, originally for eight years, but since then extended to December 2037 (AB1171, October 2001).[66] On March 2, 2004, voters approved Regional Measure 2, raising the toll by another dollar to a total of $3. An additional dollar was added to the toll starting January 1, 2007, to cover cost overruns concerning the replacement of the eastern span.

The Metropolitan Transportation Commission, a regional transportation agency, in its capacity as the Bay Area Toll Authority, administers RM1 and RM2 funds, allocating a significant portion to public transit capital improvements and operating subsidies in the transportation corridors the bridges serve. Caltrans administers the "second dollar" seismic surcharge, and receives some of the MTC-administered funds to perform other maintenance work on the bridges. The Bay Area Toll Authority is made up of appointed officials put in place by various city and county governments, and is not subject to direct voter oversight.[67]

Due to further funding shortages for seismic retrofit projects, the Bay Area Toll Authority again raised tolls on all seven of the state-owned bridges in July 2010. The toll rate for autos on the Richmond–San Rafael Bridge was thus increased to $5.[68]

In June 2018, Bay Area voters approved Regional Measure 3 to further raise the tolls on all seven of the state-owned bridges to fund $4.5 billion worth of transportation improvements in the area.[69][70] Under the passed measure, the toll rate for autos on the Richmond–San Rafael Bridge will be increased to $6 on January 1, 2019; to $7 on January 1, 2022; and then to $8 on January 1, 2025.[71]

In September 2019, the MTC approved a $4 million plan to eliminate toll takers and convert all seven of the state-owned bridges to all-electronic tolling, citing that 80 percent of drivers are now using Fastrak and the change would improve traffic flow.[72] On March 20, 2020, accelerated by the COVID-19 pandemic, all-electronic tolling was placed in effect for all seven state-owned toll bridges.[73] The MTC then installed new systems at all seven bridges to make them permanently cashless by the start of 2021.[74] In April 2022, the Bay Area Toll Authority announced plans to remove all remaining unused toll booths and create an open-road tolling system which functions at highway speeds.[75]

Comparison of piers at eastern cantilever span in 2003 before reconstruction (top) and at western cantilever span in 2011 after reconstruction (bottom).

In the fall of 2001, the bridge commenced an extensive seismic retrofit program,[76] similar to other bridges in the area.[77] The retrofit was designed by a three-way joint venture between Gerwick/Sverdrup/DMJM under a US$19,000,000 (equivalent to $36,500,000 in 2022) design contract awarded in 1995.[78] The retrofit is intended to allow the two-tier bridge to withstand a 7.4 magnitude earthquake on the Hayward Fault and an 8.3 magnitude quake on the San Andreas Fault. The foundation piers were strengthened by wrapping the lower section of structural steel in a concrete casing, installing new shear piles, and adding bracing to the structural steel towers.[79] Isolation joints and bearings were also added to the main bridge structures (cantilever spans over the navigation channels) to strengthen the structure.[80]

The fifty-year-old bridge was showing its age and also needed age-related maintenance, which was performed in conjunction with the seismic upgrade work. There were reports of cars being damaged while traveling on the lower deck by fist-sized concrete chunks falling from the joints of upper deck slabs.

A major part of the retrofit involved the long concrete causeway on the Marin side, which as part of the retrofit program, was nearly completely replaced. Because of the active use of the bridge, Caltrans designed the project to allow the bridge to remain open to traffic. For economy, schedule efficiency and traffic impact mitigation, much of the repair work was fabricated off site and shipped to the bridge by barge.

To reduce impacts to traffic the major work was performed at night. Caltrans kept two lanes of traffic moving in each direction during daylight hours, then reduced that flow to a single lane in each direction at night. Thus, one trestle was completely closed, and the other trestle had two-way traffic.

The concrete segments of the trestle were precast in Petaluma and barged to the site. At monthly intervals, tugs positioned barges with one or two 100-foot-long (30 m), 500-ton pre-cast concrete roadway segments, which a 900-ton barge-mounted crane lifted into place. Earlier, either two or four of the corroded, 50-foot (15 m) concrete segments of the old roadway were removed by crane. Then, a pile driver moved into position and drove new piles. After the new concrete road segment was in place, steel plates were used to temporarily fill the gaps, and the roadway was ready for morning traffic. At times, construction backed up traffic to Highway 101 into central San Rafael.

The completion of this retrofit, on September 22, 2005, was celebrated as a success despite the many challenges, including the deaths of two workers.

The retrofit was originally estimated by Caltrans engineers at US$329,000,000 (equivalent to $578,000,000 in 2022),[77] but Caltrans adjusted the estimate to US$393,272,000 (equivalent to $668,300,000 in 2022) in 2000 during the bidding process.[81] While most of the resulting bids were close to US$545,000,000 (equivalent to $926,100,000 in 2022), the low bid came in at US$484,403,479 (equivalent to $823,200,000 in 2022) from the Tutor-Saliba/Koch/Tidewater Joint Venture.[81] Caltrans revised their estimate to US$665,000,000 (equivalent to $1,099,000,000 in 2022) in May 2001 when more funds were appropriated for California's Toll Bridge Seismic Retrofit Program in Assembly Bill 1171.[82] The cost was again adjusted during an August 2004 review by Caltrans, this time to US$914,000,000 (equivalent to $1,416,100,000 in 2022).[83] The final cost of the retrofit, however, was $778 million, or $136 million below this August 2004 estimate.[83]

The protected bike/pedestrian path on the upper deck of the bridge

In both directions, the bridge is wide enough to accommodate three lanes of traffic. The bridge previously operated with all three lanes in both directions opened to traffic after the lower deck was completed in 1957.[48][49] Currently the third lane on the lower deck is used as a right-hand shoulder or a "breakdown lane" and is marked along the bridge with the signs "Emergency Parking Only". The third lane on the upper deck is a separated bicycle and pedestrian path.[84]

In 1977, Marin County was suffering one of its worst droughts in history. A temporary on-surface pipeline, six miles (10 km) long, was placed in the third lane. The pipe transferred 8,000,000 gallons of water a day from the East Bay Municipal Utility District's mains in Richmond to Marin's 170,000 residents. By 1978, the drought subsided and the pipeline was removed. The disused third lane was then restriped as a shoulder.

In 1989, after the Loma Prieta earthquake, the third lane was opened up as a normal lane to accommodate increased traffic after the Bay Bridge was shut down because of a failure of that span. Many commuters from San Francisco drove across the Golden Gate Bridge into Marin and then across the Richmond–San Rafael Bridge to go to Oakland (and vice versa). After the Bay Bridge was reopened, the third lane was again closed.

On February 11, 2015, the Bay Area Toll Authority approved a plan to install a protected bike and pedestrian path on the wide shoulder of the upper deck of the bridge. The path was expected to be complete in 2017,[84] however it opened on November 16, 2019.[85] As part of the same project, a third eastbound lane[86] was added the previous year on the lower deck to be available for evening commutes.[59]

View from the east end of the bridge (Richmond) looking southwest toward Southern Marin. San Quentin State Prison is at the far end of the bridge (San Rafael), just beyond the edge of the picture on the right. Top right above the bridge is Mount Tamalpais. The broken pilings in the water in the middle left of the picture are the remains of the pier where the Richmond–San Rafael ferry docked before the bridge was built.