HomeMy WebLinkAboutSS4 - Santa Ana River Crossings (SARX) StudyCITY OF NEWPORT BEACH
CITY COUNCIL STAFF REPORT
STUDY SESSION Item No, SSk
October 14, 2003
TO: HONORABLE MAYOR AND MEMBERS OF THE CITY COUNCIL
FROM: Public Works Department
Richard Edmonston, P.E.
949 - 644 -3311
red monston @city.newport- beach.ca.us
SUBJECT: STATUS REPORT ON SANTA ANA RIVER CROSSINGS (SARX)
STUDY AND PRESENTATION BY ORANGE COUNTY
TRANSPORTATION AUTHORITY
DISCUSSION:
The Master Plan of Arterial Highways (MPAH) is the long -range blue print for highway
construction throughout Orange County. The size and location of roadways on the
MPAH is intended to provide adequate transportation facilities for anticipated
development. Each local jurisdiction's General Plan Circulation Element is required to
be reasonably consistent with the MPAH in order for the jurisdiction to be eligible for
certain highway funding programs. This is necessary to ensure that each local
jurisdiction builds its share of regionally necessary roadways.
The current MPAH includes two future crossings of the Santa Ana River between Coast
Highway and Interstate 405. The northerly crossing would connect Garfield Avenue in
Fountain Valley with Gisler Avenue in Costa Mesa. The southerly proposed bridge
would connect Banning Street in Huntington Beach with the end of 19th Street in
Newport Beach, immediately adjacent to the City of Costa Mesa.
In 1991, Costa Mesa requested that the MPAH be modified to delete these two
proposed bridges. A cooperative study involving the County of Orange, Newport
Beach, Costa Mesa, Huntington Beach, and Fountain Valley was begun in 1993 to
examine the impacts of deleting the bridges. This study was known as SARX and
resulted in all the participants requesting that an EIR be prepared that could be used to
formally amend the MPAH.
The Orange County Transportation Authority (OCTA) assumed responsibility from
Orange County for the MPAH in 1994. In 1998 OCTA selected a consultant to perform
traffic analysis of three alternatives. The EIR was completed in April 2002 but has yet
to be certified by the OCTA Board of Directors due to unresolved differences of opinion
among the four affected cities.
SUBJECT: STATUS REPORT ON SANTA ANA RIVER CROSSINGS (SARX) STUDY AND PRESENTATION BY ORANGE
COUNTY TRANSPORTATION AUTHORITY
October 14, 2003
Page 2
TRAFFIC STUDY RESULTS
Alternative 1 would maintain the existing MPAH retaining both bridges on the Plan
Alternative 2 would delete both bridges from the MPAH.
Alternative 3 would substitute two new bridges for those shown on the MPAH. The
northerly bridge would connect Garfield Avenue in Fountain Valley to the
southbound 1 -405 Freeway. The southerly bridge would connect 17th Street in Costa
Mesa to Brookhurst Street in Huntington Beach at a point north of Banning Avenue.
The 2001 SARX traffic study developed traffic forecasts for the year 2020 to identify
significant impacts to roadway links and to intersections for the three Alternatives.
Approximately 300 roadway links and 90 intersections were evaluated. The existing
MPAH was used as the basis for comparison with the Alternatives 2 and 3 with the
following results:
• Alternative 2 (no bridges).would result in significant impacts to 8 roadway
links and 10 intersections.
• Alternative 3 (alternate crossings) would impact 4 roadway links and 5
intersections. (The Study Area is shown on Attachment 1.)
Mitigation measures were identified for both alternatives that would result in a
circulation system that would work at least as well as the conditions expected from the
MPAH. The mitigations for the impacted links consist of improvements to the
intersections at the ends of the links since they are normally the limiting factor for
roadway capacity. The impacted links and intersections along with the identified
mitigation measures for Alternate 2 are shown on Attachment 2 and Attachment 3. The
corresponding information for Alternate 3 is shown on Attachment 4 and Attachment 5.
The estimated costs for the three Alternatives are shown on Attachment 6.
NEWPORT BEACH IMPACTS
Hostel Road — Placentia Avenue to Newport Boulevard
With the current MPAH, this segment of Hospital Road is forecast to carry 31,000
Average Daily Traffic (ADT) which is Level of Service E (LOS F) by County criteria.
Under Alternative 2 (no bridges) this volume is anticipated to be 32,000 ADT which
would be also be LOS F. The volume on this roadway segment under Alternative 3
(substitute bridges) would also be 32,000 ADT. The relatively small increase of 1000
ADT exceeds the significant impact threshold used for the study of a 3 percent increase
in traffic on a link. This is a very short roadway segment and no separate mitigation
measure was proposed.
SUBJECT: STATUS REPORT ON SANTA ANA RIVER CROSSINGS (SARX) STUDY AND PRESENTATION BY ORANGE
COUNTY TRANSPORTATION AUTHORITY
October 14, 2003
Page 3
Newport Boulevard and Hospital Road Intersection
This intersection was forecast to have Intersection Capacity Utilization (ICU) values
under the existing MPAH for AM /PM of 0.80/1.06. Under Alternative 2 (no bridges) the
values were forecast to be 0.80/1.08 and under Alternative 3 (substitute bridges) the
values were predicted to be 0.79/1.07. The suggested mitigation measure for
increased PM impact at this intersection is to add a second left turn lane for northbound
Newport Boulevard. This would require additional right of way in an area with several
physical constraints.
West Coast Highway — Superior Avenue to Brookhurst Street
It is important to note that, per the existing City and County General Plans, the MPAH
assumes development of the Banning Ranch area, including the construction of several
arterial roadways that do not exist today. While there are some differences between
the MPAH and the City's Circulation Element, both assume two new signalized
intersections on Coast Highway between Prospect Street and Superior Avenue. The
SARX study uses the MPAH which calls for 17th Street to be extended westerly and
then turn south and intersect Coast Highway just east of Newport Shores. The second
new intersection would be located approximately 1000 feet westerly of Superior Avenue
where a new road tentatively named Bluff Road would run north for Coast Highway.
The study indicates that with the existing MPAH, this segment of Coast Highway would
have 45,000 ADT and the LOS E capacity would be 56,300. Under Alternative 2 (no
bridges) the volume is forecast to be 56,000 ADT - essentially at full capacity. Under
Alternative 3 (substitute bridges) the projected volume would be 54,000 ADT. T
Staff has concerns over the identified mitigation measures for the Coast Highway
segment and these were transmitted to OCTA in February 2001. We do not believe
that simply enhancing capacity at the study intersections addresses the City's
circulation concerns. Among various issues, we pointed out to OCTA there are two
other signalized intersections between the Santa Ana River and the proposed 17th
Street intersection and these are the primary access points for hundreds of residents.
The additional 11,000 ADT forecast in the "No Bridges" alternative would have an
impact on the daily lives of all these residents.
A related concern is the assumption that the MPAH will be built out upon development
of the Banning Ranch area. Taylor Woodrow Homes' proposal several years ago did
not include the construction of 17th Street to Coast Highway, but did include Bluff Road
with a signalized intersection at Coast Highway. Without the circulation system
improvements anticipated in the MPAH, there would be additional traffic at the Coast
Highway- Superior /Balboa Blvd. intersection. Based upon the final traffic study
projections for this intersection, no mitigations are required.
Other agency actions
SUBJECT'. STATUS REPORT ON SANTA ANA RIVER CROSSINGS (SARX) STUDY AND PRESENTATION BY ORANGE
COUNTY TRANSPORTATION AUTHORITY
October 14, 2003
Page 4
The Cities of Costa Mesa and Huntington Beach have recently taken Council actions
that are nearly identical. The six key items supported by the two cities are:
• Convey the City's opposition to the design and construction of the proposed
bridges
• Request the OCTA Board to certify the EIR
• Adopt the mitigation measures identified in the SARX "No Bridges" alternative.
• In cooperation with OCTA and participating jurisdictions, develop a program to
implement the mitigation measures
• Retain the bridges on the MPAH, but request that the surrounding jurisdictions
not assume the two bridges will be built when considering long -term studies
• Request OCTA to perform a follow -up study once all feasible mitigations have
been completed. Should the study confirm that the mitigation measures
addressed the impacts of the deletion of the bridges, OCTA is requested to
take action to delete the bridges from the MPAH
Fountain Valley expressed opposition to the deletion of the Garfield - Gisler bridge from
the MPAH since the very beginning of the SARX studies. They believe this added
regional facility is needed and that many of the proposed mitigation measures would
adversely impact neighborhoods in Fountain Valley. Earlier this year they submitted an
application to OCTA for funding a preliminary engineering study of alternative 3
(substitute bridge) for Garfield - Gisler accompanied by a project level environmental
analysis. This project was supported by the Growth Management area that
encompasses the City. More recently they have contacted OCTA expressing the
opinion that the SARX EIR cannot be certified without additional studies to reflect new
developments (Home Ranch and Town Center) in the City of Costa Mesa that were not
considered in the SARX Traffic Study and that they believe add to the need for the
additional bridge.
Environmental Review: OCTA has prepared a program level Environmental Impact
Report. This report can be used by the City Council at such time as they take a formal
action on the Study.
Prepared by:
Gout d +.o„.a
Richard M. Edmonston
Transportation and Development
Services Manager
Attachments
Submitted by:
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ATTACHMENT 2
Alternative 2 Traffic Impacts
The following are the intersection and roadway segment locations for the No Bridges
Alternative:
Intersections:
• Brookhurst Street @ Hamilton Avenue;
• Pacific Coast Highway @ Brookhurst Street;
• Ward Avenue @ Ellis Avenge;
• MacArthur Boulevard @ Hyland Avenue;
• Harbor Boulevard @ Warner Avenue;
• Harbor Boulevard @ South Coast Drive;
• Superior @ 17`h Street;
• Newport Boulevard @ 17th Street;
• Newport Boulevard @ Hospital Road; and
• West Coast Highway @ 17`x' Street Extension (Future).
Segments:
• Slater Avenue between Magnolia Avenue and Bushard Street;
• Ellis Avenue between Ward Street and I-405 S$ ramp terminal;
• Harbor Boulevard between Sunflower Avenue and South Coast Drive;
• Pacific Coast Highway between Brookhurst Street and Santa Ana River Crossing;
• Hamilton Avenue between Brookhurst Street and Bluff Road;
• West Coast Highway between Santa Ana River Crossing and 17`x' Street Extension
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• Hospital Road between Placentia Avenue and Newport Boulevard; and
• Talbert Avenue Bridge @ Santa Ana River Crossing.
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ATTACHMENT 4
Alternative 3 Traffic Impacts
The following are the intersection and roadway segment locations for the Alternative 3:
Intersection Improvements
• MacArthur Boulevard @ Hyland Avenue;
• Superior @ 17`s Street;
• Newport Boulevard @ 17th Street;
+ Newport Boulevard @ Hospital Road; and
• West Coast Highway @ 17'h Street Extension (Future).
Seerrrents:
• 17"' Street between Superior Avenue and Newport Boulevard;
• Pacific Coast Highway between Brookhurst Street and Santa Ana River;
• West Coast Highway between Santa Ana River Crossing and 17`h Street Extension
(future); and
• Hospital Road between Placentia Avenue and Newport Boulevard.
77 - Hyland Avenue/ 96- Superior Avenue/
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SEP -11 -2303 16 :49 OCTR P a D
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OC'TA
September 15, 2003
To: Regional Planning and Highways Committee
From: Arthur T. Leahy, Chief Executive Officer
Subject: Santa Ana River Crossings Study Status
Overview
714 560 5794 P.32/Z9
On May 12, 2003, the Board of Directors deferred action on funding
applications by the City of Fountain Valley for environmental study and design
for the Garfield Avenue /Gisler Avenue bridge across the Santa Ana River until
further discussions were conducted with cities involved in the Santa Ana River
Crossings Study. Staff proposes to continue to study alternatives pending
consensus among the impacted cities.
Recommendations
A. Take no action on the Santa Ana River Crossings program -level
Environmental Impact Report until the cities reach a consensus.
B. Direct staff to continue study with Costa Mesa, Fountain Valley, Huntington
Beach, and Newport Beach, as a part of the San Diego Freeway /Interstate
405 Major Investment Study and through separate studies, alternatives for
deletion of the bridges that are acceptable to all cities.
C. Approve the City of Fountain Valley's application for $250,000 in Growth
Management Area funding for preliminary design and project level
environmental analysis of the Garfield Avenue /Gisler Avenue bridge
across the Santa Ana River, without commitment by the Orange County
Transportation Authority to support or implement the results.
D. Do not approve the City of Fountain Valley's application for $500,000 in
Growth Management Area funding and $500,000 in Measure M Master
Plan of Arterial Highways funding for final design of the Garfield
Avenue /Gisler Avenue bridge.
Orange County Transportedon Authority
550 South Main Street / P.O. Box 14184 / Oranoo / Caftrnta 928631584 / (714) 560 -OCTA (6282)
SEP -11 -2003 16 :50 OCTA P & D 714 560 5794 P.03.'E9
Santa Ana River Crossings Study Status Page 2
Background
Master Plan of Arterial Highways Policies
The Master Plan of Arterial Highways is a network of planned streets, to be
built by local agencies. Orange County Transportation Authority (OCTA) is
responsible for maintaining the Plan and holding cities (and the County of
Orange) accountable to plan its eventual implementation. Measure M provides
OCTA with several tools to accelerate implementation of the Plan:
City General Plans must be consistent with the MPAH, or else the city
cannot apply for competitive Measure M funding. One of OCTA's policies in
evaluating a request to amend the MPAH is that there must be a consensus
among the cities affected by proposed changes. This policy was adopted
by the OCTA Board of Directors on April 13, 1998, to insure that the actions
requested by one city would not result in unacceptable impacts to another
city.
Cities may not "preclude" implementation of the Plan by allowing
development within MPAH right -of -way. If a city precludes implementation,
they are not eligible for Measure M turnback funds or competitive funding.
In 1996, OCTA determined that "preclusion" would also include a case
where one agency refused to allow an MPAH project to be funded and
constructed by another agency within the first agencies jurisdiction.
Funds are provided to cities and Measure M Growth Management Area
(GMA) teams to implement the MPAH.
Note that OCTA is not provided any powers to compel implementation of the
MPAH if a city is willing to forego Measure M funding.
Santa Ana River Crossings Study
Attachment A provides a detailed background of the Santa Ana River
Crossings (SARK) study and the program -level Draft Environmental Impact
Report (DEIR) conducted by four cities and the Orange County Transportation
Authority. Also described is the request from Fountain Valley to begin a
project -level Environmental Impact Report (EIR) for the bridge at Garfield
Avenue /Gisler Avenue.
The general conclusion of the DEIR was that deletion of the bridges from the
MPAH would cause traffic impacts at a number of locations, but these impacts
could be mitigated by street and intersection improvements (Attachment B.)
However, many of the impacted locations are in Fountain Valley and Newport
SEP -11 -2063 16:50 OCTA P & D 714 566 5794 P.04/U9
Santa Ana River Crossings Study Status Page 3
Beach, the two cities supporting the eventual construction of the bridges.
These cities believe that they already carry more than their share of traffic
across the Santa Ana River, and they are not supportive at this time of
constructing the mitigations necessary to allow removal of the bridges.
In addition, some of the mitigations (such as the Ellis Avenue/Euclid Avenue
connection to San Diego Freeway/ Inte.rstate 405 in the north, and
improvements to Pacific Coast Highway in the south) face serious engineering,
community, and environmental issues themselves.
Perhaps even more important, in mid - August 2003, Fountain Valley advised
OCTA that they feel the EIR has technical flaws relative to how new
development was handled (Attachment C.) The City does not support
certification of the EIR without further analysis.
Discussion
Unfortunately, OCTA staff was unable to conclude an agreement with the four
involved cities. Attachments D and E provide additional comments from
Fountain Valley and Costa Mesa. Options 'for the Board's consideration are
discussed below:
1. Require a consensus of the cities before anv further action is taken. This
option is consistent with previous OCTA actions. It would leave the bridges
on the MPAH and leave the program - level EIR uncertified (incomplete.)
This would leave the situation in its current freeze, and it would not make
any progress to solve the congestion problems in this area.
During this time, however, OCTA will be conducting Major Investment
Studies on the San Diego Freeway /Interstate 405 (1 -405) and the Orange
Freeway /State Route 57 (SR -57) Extension. During these studies,
solutions to the Ellis Street/Euclid Avenue /1-405 interchange will be
considered. New ideas might surface that impact the need for the bridges
and the options for mitigations.
A new EIR will be required F new alternatives are identified.
2. Certify the EIR with the current MPAH (i.e., the bridges) as the preferred
alternative. If OCTA and the cities want to take a step towards possibly
eliminating the bridges from the MPAH, the program -level EIR could be
certified with the No Project (i.e., status quo) alternative. This would leave
the bridges on the MPAH for the time being, but would formally
acknowledge the mitigations as replacement projects (albeit with their own
implementation issues.)
SEP -11 -2003 16150 OCTA P & D 714 560 5794 P.05/ES
Santa Ana River Crossings Study Status Page 4
Staff has not reviewed the August 21, 2003, letter from Fountain Valley to
determine the accuracy of their concerns, However, if they are valid,
additional work may be needed prior to certifying the EIR.
3. Certify the EIR with the No Bridges alternative (Costa Mesa request.) The
City of Costa Mesa has requested OCTA to certify the "No Bridges"
alternative of the EIR, and begin planning the mitigation measures, Costa
Mesa proposes that the bridges would not officially be removed from the
MPAH until a future study once the mitigations are implemented, They also
propose that the local agencies agree to analyze development projects as
though the bridges were not being planned.
The proposal suffers in that it forces Fountain Valley and Newport Beach to
commit to the mitigations before they are convinced the bridges are not
feasible. Fountain Valley and Newport Beach are aware of the difficulties of
implementing the bridges, and they are anxious to resolve the future of the
MPAH so that mitigations can be built that relieve existing congestion
problems. However, at this time they are not agreeable to Costa Mesa's
proposal and will not accept an MPAH amendment.
The option of simply removing one or both bridges from the MPAH is not
recommended Until environmentally acceptable alternatives are found.
Fountain Valley EIR/design funding request
The City of Fountain Valley and GMA #6 have requested the use of $250,000
of GMA funds to Conduct a project -level EIR of the Garfield Avenue/Gisler
Avenue bridge, and $500,000 for final design. The City's request for additional
design funds was ranked high enough to receive $500.000 of Measure M funds
if the Board gives final approval.
The project -level EIR for the Garfield Avenue /Gisler Avenue bridge would test
its environmental and financial viability, and provide more detailed traffic
analysis. If the bridge is not feasible, Fountain Valley has indicated they would
then evaluate the non - bridge mitigations. If the bridge is shown to be feasible,
the agencies would be back where they staifed, with one city supporting the
bridge, and two opposed. More discussions would be needed at that point.
If OCTA is to support a project -level EIR, it should be with No Prejudice on the
part of the Authority. That is, conducting the study would not imply support for
constructing the bridge, and no Measure M funding would be programmed at
SEP -11 -2003 16:51 OCTA P & D 714 560 5794 P.0609
Santa Ana River Crossings Study Status Page 5
Conclusion /Recommendation
OCTA staff believes that it will be extremely difficult to ever construct these two
bridges. Neighborhood opposition, environmental issues, and significant cost
estimates paint a bleak picture. All parties are concerned, however, that
serious regional congestion will continue unless alternatives are found.
Unfortunately, because the mitigations studied in the EIR are not all within
Costa Mesa or Huntington Beach, negative impacts on Fountain Valley and
Newport Beach must be considered.
The recent notice that Fountain Valley does not support the EIR creates further
disagreement over how to proceed.
OCTA staff has concluded that continuing the search for acceptable mitigations
is the appropriate course for OCTA and the cities to follow. This is best done
by: 1) Allowing Fountain Valley to conduct the project -level EIR, with no
prejudice on OCTA's part as to future actions. That is, OCTA should not
program the design funds for the Garfield Avenue/Gisler Avenue bridge, and 2)
Focusing the 1-405 and SR -57 Extension MIS's on projects that might address
the SARX congestion problems.
At this point, there does not seem to be any approach that would reconcile
Huntington Beach's adamant position to remove the 19th Street/Banning
Avenue bridge with Newport Beach's concerns about the mitigation projects.
Newport Beach has indicated an interest to monitor the environmental issues
raised during an EIR on the Garfield Avenue/Gisler Avenue bridge, and may
reconsider their position at that point.
Finally, there does not seem to be any particular benefit of certifying the
program -level EIR, since no change to the MPAH is being recommended, and
because there is not a consensus over its validity.
Summary
On May 12, 2003, the Board of Directors deferred action on funding
applications by the City of Fountain Valley for environmental study and design
for the Garfield Avenue /Gisler Avenue bridge across the Santa Ana River until
further discussions were conducted with cities involved in the Santa Ana River
Crossings Study. Staff proposes that funding for the environmental study only
be approved, and that OCTA and the cities continue to. work toward
development of mitigation alternatives that will be acceptable to all impacted
cities.
SEP -11 -2003 16:51 OCTR P & D
Santa Ana River Crossings Study Status
A#achments
714 560 5794 P.07i09
Page 6
A. Background of the Santa Ana River Crossings Project
B. Map of Locations of Proposed Mitigations for the Deletion of
Garfield /Gisler Bridge
C. Letter from the City of Fountain Valley dated August 21, 2003
D. Letter from the City of Fountain Valley dated July 10, 2003
E. Letter from the City of Costa Mesa dated August 12, 2003
Prepared by:
Glen Campbell
Senior Transportation Analyst
(714) 560 -5712
Approved by:
Dave Elbaum
Director, Strategic Planning
(714) 560 -5745
SEP -11 -2003 16:51 OCTR P & D 714 560 5794
ATTACHMENT A
Background of Santa Ana River Crossings Project
At the request of the cities of Costa Mesa, Fountain Valley, Huntington Beach, and
Newport Beach, the Orange County Transportation Authority (OCTA) is the lead
agency for a program level Environmental Impact Report (EIR) for the deletion of
two proposed bridges across the Santa Ana River from the Master Plan of Arterial
Highways (MPAH). The proposed bridges would connect Garfield Avenue in
Huntington Beach with Gisler Avenue in Costa Mesa and Banning Avenue in
Huntington Beach with 19'h Street in Costa Mesa. The request to delete these
bridges from the MPAH was submitted by the City of Costa Mesa and was based on
anticipated impacts to residential communities on or in the vicinity of 19t Street and
Gisler Avenue.
The Draft Environmental Impact Report (DEIR) at the program level was completed
in late May 2001, and it was released to the public for review in June 2001. Over
500 comments were received by the end of the review period in August 2001. The
response to comments and resultant revisions to the EIR were completed in April
2002.
In November 2002, Fountain Valley requested Measure M Growth Management
Area (GMA) funding for preliminary design and project level environmental analysis
for the construction of Garfield Avenue /Gisler Avenue bridge. This project was
approved as part of the overall GMA program by the GMA 6 elected officials on
December 10, 2002. In addition, Fountain Valley also has submitted a funding
application for final design of the Garfield Avenue /Gisler Avenue bridge under the
Measure M MPAH category of the Combined Transportation Funding Program
(CTFP). In response, the Costa Mesa City Council adopted a resolution opposing
the Fountain Valley action, which was presented to the Fountain Valley City Council
on December 17, 2002. The Huntington Beach City Council also passed a
resolution opposing the Fountain Valley action on February 3, 2003.
In November 2002, Fountain Valley requested Measure M Growth Management
Area funding for preliminary design and project level environmental analysis for the
construction of Garfield Avenue /Gisler Avenue bridge. This project was approved as
part of the overall GMA program by the GMA 6 elected officials on December 10,
2002. In addition, Fountain Valley also has submitted a funding application for final
design of the Garfield Avenue /Gisler Avenue bridge under the Measure M MPAH
category of the Combined Transportation Funding Program. In response, the Costa
Mesa City Council adopted a resolution opposing the Fountain Valley action, which
was presented to the Fountain Valley City Council on December 17, 2002. The
Huntington Beach City Council also passed a resolution opposing the Fountain
Valley action on February 3, 2003.
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SEP -11 -2003 1G:52 OCTA P & D 714 560 5794
On May 12, 2003, Orange County Transportation Authority (OCTA) staff submitted
the recommended CTFP program of projects, including the Garfield Avenue /Gisler
Avenue bridge EIR and design, to the Board of Directors for approval. However, the
Board deferred consideration of this project until a meeting between OCTA and the
four cities could be held to further explore ways for reaching agreement on the issue.
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