HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 09/28/2004 - NORTHSIDE NEIGHBORHOODS PLAN UPDATE DATE: September 28, 2004 STUDY SESSION ITEM
STAFF: Pete Wray/Mark Jackson FORT COLLINS CITY COUNCIL
SUBJECT FOR DISCUSSION
Northside Neighborhoods Plan — Update of Plan and Lemay Avenue Alternative Alignment
Analysis.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
The Northside Neighborhoods Plan item is scheduled for this City Council Study Session for staff
to provide a general update of the Plan and more specifically,seek direction from Council on Lemay
Avenue alignment options.
City staff has completed a preliminary analysis of the two alignment options and formulated a
recommendation supporting the adopted Master Street Plan. In order to proceed with the remainder
of the Plan, direction is needed on the appropriate alignment of Lemay Avenue to determine
supporting land uses and other street network requirements.
The City staff is seeking Council direction on the following questions:
1. Is Council comfortable with the outlined direction of the Plan? Has staff identified all
relevant issues?
2. Is Council supportive of the adopted Master Street Plan re-alignment of Lemay Avenue to
the east, including a grade separated crossing of the BNSF railroad tracks?
3. If not, is Council supportive of amending the Master Street Plan and Capital Improvement
Program for an alternative Lemay Avenue arterial expansion (existing alignment at grade),
directing staff to conduct a more detailed analysis including engineering, cost comparison,
neighborhood impacts, acquisition assessment, and public outreach?
I. Plan Update
The Northside Neighborhoods Plan process,initiated in January 2004,is scheduled for adoption in
January 2005. The Plan is still on track for completion within the anticipated 12-month time frame.
The City staff and consultant team, in conjunction with the Citizens Advisory Group (CAG), has
continued to make progress on developing a draft Plan. Phase I primary tasks include assessment
of existing conditions, opportunities and constraints analysis, issues identification and vision and
goals. Phase H includes developing a physical framework plan integrating land use, transportation
and open lands into a composite map, and policy direction. This work will be reviewed and refined
by staff, consultants and CAG over the next 2 months. The final phase in the planning process for
this fall focuses on identifying specific implementation strategies for achieving the Plan, based on
policy direction identified previously.
September 28, 2004 Page 2
In general,the proposed Framework Plan for the Northside Neighborhoods Plan does not represent
any significant changes than the City Structure Plan. Approximately half of the study area reflects
existing and future business and industrial uses. The remainder reflects existing and future
residential use. In three areas, the Plan identifies interface areas to incorporate opportunities for
establishing a transition in between existing neighborhoods and industrial businesses (see attached
draft Framework Plan).
Potential implementation actions to achieve the Plan include:
1. Identifying both short and long-term projects such as infrastructure upgrades to local storm
drainage and floodplain mitigation, street upgrades, sidewalks, landscaping and neighborhood
parks
2. Re-classification of Vine and Lemay to local streets (coordinated with re-alignment projects)
3. Funding strategies for public improvements
4. Funding options for building rehabilitation/remodeling
5. Access, circulation and pedestrian safety improvements
6. Land Use Code amendments for new development standards (interface areas)
H. Lemay Avenue Alternative Alignment Analysis
In May, 2004, a few members of the Citizens Advisory Group requested staff assess an alternative
to the adopted Master Street Plan for Lemay Avenue (future alignment/grade separated crossing),
and expand Lemay Avenue(existing alignment/at grade). During the June 22,2004 Council Study
Session,staff identified this issue and informed members of Council that a comparison analysis will
be conducted.
Staff has examined existing conditions and constraints, and has considered past planning and
community outreach efforts. Staff developed several alternative design concepts keeping Lemay
on its current alignment for comparative purposes. As a result of assessing these initial concepts,
significant issues and impacts were identified. Finally, a preferred alternative was developed to
minimize these impacts on adjoining neighborhoods,improve functionality of the street system and
reduce costs overall. However, even this alternative, while it reflects a potentially less costly
alignment than the adopted MSP alignment, still has significant impacts and issues to be addressed.
Option A - Master Street Plan Re-alignment (Grade separated RR Crossing)
City of Fort Collins Transportation, Engineering and Planning staff has looked at alternatives for
the ultimate design and location of Lemay Avenue for several years. The Northeast Truck Route
Study (1994) refined the ultimate location of Lemay on the MSP to an alignment east of the
Andersonville and Via Lopez neighborhoods.The subsequent Northeast Fort Collins Truck Route
Study (FCTRS/1998) kept the easterly realignment of Lemay and added the Vine Realignment to
the north. These alignments were developed with intensive input from surrounding neighborhoods
and property owners. These ultimate alignments mitigated impacts of four-lane arterial roadways
traveling through the neighborhoods of Alta Vista, Andersonville and Via Lopez, provided for a
grade separation (over or under) the railroad tracks, and allowed for greater neighborhood
continuity. Based on recommendations from the FCTRS and Mountain Vista Subarea Plan,Council
adopted the re-alignments for Vine and Lemay on the MSP in 1999 (see attachment# 2). The re-
alignment of Lemay,including grade-separated crossing,is currently ranked as a high priority need
September 28, 2004 Page 3
on the recently updated transportation capital improvement project list (# 8 of 192 prioritized
projects).
Findings:
7. Estimated capital cost of$24 million (Transportation Master Plan 2004)
8. Additional costs of re-alignment project for Lemay address railroad issues and impacts and long-
term operational issues
9. MSP represents long-term solution of transportation impacts
10. Solves Adequate Public Facilities and Level Of Service deficiencies in NE
11. Widely supported by businesses and neighborhoods in 1998
12. Represents a solution to improve neighborhood continuity by re-classifying existing
Lemay/Vine to local streets
13. Right-of-way dedication in progress for re-alignment between Lincoln Street and Vine Drive
(south/east portion)
Option B—Expand Lemay Avenue (near existing alignment—at grade)
Certain members of the project's Citizens Advisory Group have noted that, in their opinion, the
realignment of Lemay Avenue as reflected in the MSP is unattainable and unrealistic in the
foreseeable future and that the City should revisit the ultimate alignment of this key north/south
arterial.
In response, staff first assessed expanding the existing centerline of Lemay Avenue to an arterial
status, which would require acquisition of approximately 25 homes and church in both the
Andersonville and Alta Vista Neighborhoods (See attachment#3). Staff then developed a second
alternative alignment concept that attempts to maximize mobility,consolidate and separate driveway
access, and minimize impacts to the properties adjacent to Lemay Avenue.
Project staff and consultants, with input from City Engineering and Traffic Operations staff,
developed a conceptual-level alternative that widens the current alignment of Lemay Avenue to a
four-lane arterial design, while minimizing impacts to nearby residents. Expanding Lemay on its
current centerline alignment would result in the acquisition of over 25 properties along the road .
Staff then examined options that moved the alignment to the west in order to minimize impacts to
residents along Lemay. These alignments necessitate either moving several large Platt River Power
Authority (PRPA) power poles and lines, or splitting north-south traffic along either side of the
lines. Alternative alignments kept the intersection of the BNSF tracks and Vine Drive at-grade.
Some form of protected access or alternative access would be necessary to allow residents along
Lemay to exit and access their properties.
The least impactful conceptual alternative design requires the movement of several PRPA poles and
lines to the west, at an estimated cost of $1 million dollars for construction and right of way
acquisition. It is estimated that the total capital cost of this alternative would range between$10412
million dollars. This alternative is depicted in Attachment 4.
September 28, 2004 Page 4
Issues:
1. COST: Improving Lemay to a four-lane arterial on its current alignment and at-grade with
the Burlington Northern&Santa Fe(BNSF)railroad intersection could potentially save the
City of Fort Collins approximately $10412 million dollars in capital construction costs.
This appears to be the primary benefit to this alternative. However, this option does not
address the long-term issues and impacts of the railroad, thus making it difficult to
accurately compare the costs. The majority of the cost for the MSP Option is for the grade
separated crossing of the railroad tracks. It must also be noted that the potential to offset
City capital costs by using development impact fees and Street Oversizing funds is greater
with the adopted MSP alignment than with the current Lemay alignment,due to the level of
existing development currently on Lemay. Anticipated additional costs for right of way
acquisition may further lessen the potential capital cost savings of the cur-rent Lemay
alignment.
2. POLTTICALSOCIALCULTURAL: There are a number of issues that would need to be
addressed if the City were to pursue improving Lemay on its current alignment:
Neighborhood connectivity has been stressed as an important element of the NNP.
Improving the current alignment of Lemay to an arterial design will serve as a barrier
between neighborhoods in this area and will exacerbate problems of mobility and
neighborhood connectivity and continuity.
• The realignment of Lemay was developed in close coordination with residents and
property owners in these nearby neighborhoods. Improving Lemay on its current
alignment would be seen as the City recanting its earlier commitments to these
stakeholders. Many of these people already feel as if the City has promised and
reneged on several earlier commitments to improve this area, and this will fuel that
sentiment.
• Lemay negatively impacts several people who currently reside just east of the road.
There is great difficulty in accessing or exiting their properties at peak periods of
congestion or when a train is passing by. Improving Lemay on its current alignment
will not address these issues and may well result in even more problems for these
people. Quality of life degradation will surely be an issue for these residents and
property owners.
Improving Lemay on its current alignment will result in the acquisition of several
impacted properties along the road.
• Advance Planning staff is currently working on a project to gain support for
designating Buckingham, Andersonville, and Alta Vista neighborhoods as historic
neighborhood districts. Acquisition of any of these properties would directly conflict
with the intent of this effort.
3. OPERATIONS: Improving Lemay on its current alignment to a four-lane arterial, at-grade
with the BNSF, will only temporarily improve north-south mobility and Adequate Public
Facility (APF) issues.
The additional capacity of the four-lane design will lessen the length of queues
during peak periods of congestion in the short term. As the Mountain Vista Subarea
develops (as adopted by City Plan), these improvements will gradually diminish.
September 28, 2004 Page 5
• Queues and congestion resulting from trains blocking the road will continue. Grade
separating Lemay over/under the BNSF tracks is the long-term solution for this
problem.
• Access problems for people living along Lemay will intensify and will need to be
addressed. Controlled access options will be expensive and may not satisfy property
owners' expectations. Cross-access issues across Lemay will also need to be
addressed.
Conclusions/Recommendations:
Improving Lemay Avenue on its current alignment to a four-lane arterial only provides a short-term
improvement to congestion and queuing issues in this area. This alternative design would not
address congestion issues and other impacts caused by trains. Residents along Lemay Avenue
would have even greater access problems that would need to be addressed. Quality of life,
neighborhood continuity and connectivity issues would also be impacted as a result of keeping
Lemay on alignment, at-grade with the BNSF tracks. Finally,previous commitments made to area
residents regarding realigning Lemay and mitigating neighborhood impacts will likely be a sore spot
and will be seen as another example of the City of Fort Collins reneging on prior promises.
Given these issues, and the fact that improving Lemay on its current alignment at-grade does not
offer long-term improvement to congestion and queuing problems, or conflicts with trains, project
staff questions the feasibility and necessity of pursuing this alternative design further. If Council
directs project staff to conduct further, more detailed analysis and public outreach, it is important
to note that this effort is not currently on the staff work programs, and funding is not available to
support this level of analysis.
ATTACHMENTS
1. Northside Neighborhoods Plan Framework Plan and background.
2. Master Street Plan enlargement (Vine/Lemay re-alignment).
3. Lemay Avenue 4-lane Arterial expansion (exist. Alignment at grade).
4. Lemay Avenue Alternative Alignment (alignment shift to west).
5. Transportation Board Memorandum dated September 21, 2004.
6. Letter dated September 17,2004 from Betty Aragon,Margaret Guzman and Richard Dunn.
Attachment 1
Drah—September 20,2004
Northside Neighborhoods Plan
The Framework Plan is part
of the design and PeMnan tti�
development stage of the Policies zoning a CodeIbd
planning process. It builds Actions Pray.rogn
ams
on the vision and goals,and Capital Impmm,menss
precedes defining the actions Funding M.amnl.ms
that the community will take PHASE 1: PHASE 3: PHASE 3:
to achieve the plan. Initiation Desipn/Danlop nenf Implernemolion i Adoption
Framework Plan Overview: A Physical Plan to How We Developed the Plan
Guide Development The Northside Neighborhoods Area is not a
The Framework Plan is the physical plan that "blank slate." Major streets,railroads, and
will guide our future development and other infrastructure,such as sewer and water
physical changes in the Northside lines, are in place. In addition, about half the
• Neighborhoods Area. The plan combines land is developed,including existing
several different physical planning elements neighborhoods and well-established
such as land use, transportation,and open businesses.
lands,parks,and trails. This paper describes
those key elements of the plan. _
s
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M aM.I(paNa 1
WF�P_J;r
�Ywter..en..rLoeto AnnaIarl0.and •�
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F� y Existing Neighborhoods
This plan also takes into account desires and
needs of the residents and businesses in the
• Northside Neighborhoods Plan 1
Draft-September 20,2004 si, .M. 29
area today. The City has previously adopted
plans that generally address the area, Purpose of the Framework Plan
including City Plan and the Master Streets The Framework Plan aims to achieve the
Plan. This Framework Plan also builds on the following goals that are consistent with the
directions in City Plan and other planning goals and vision for the area:
efforts. For the most part the Framework
Plan is consistent with City Plan,except for • Conserve existing stable
slight changes in types of residential neighborhoods.
designations east of Lemay Avenue,and for • Create new neighborhoods that have a
new directions regarding the"Interface" range of housing options,clustered
areas between industrial and residential around and near services and
areas. employment areas.
Provide a mix of industrial and
The Framework Plan focuses mainly on these residential uses that protects the
areas that will change-the areas numbered in residential character of the
the diagram below. neighborhoods and honors the
traditional coexistence of small
-�-F = --- businesses, industry,and
neighborhoods.
Provide a well-planned transportation
�s 0 system(including streets,transit,
bicycle and pedestrian paths)that
meets the needs of residents in the
i
area and surrounding areas.
.. . ,a. s • ♦ Preserve and enhance open lands and
s " t S. ♦ connections between natural areas,
yr open lands,and parks.
�K
Vacant lands•Future arecs of Chcngc
A big focus for this plan is in promoting a
better interface between the industrial and
existing and future residential areas.
Northside Neighborhoods Plan 2
Draft—September 20,2004 r
• Land Uses Existing Low Density Residential
The following land uses are proposed on the
Framework Plan for the Northside Existing Neighborhoods—Meadows,Alta
neighborhoods area. Vista, Via Lopez/San Cristo, Andersonville,
Buckingham
• Existing Low Density Residential; The existing neighborhoods are established as
• Low Density Mixed-Use Residential existing Low Density Residential
(Future); neighborhoods. Thirty-seven acres of existing
• Medium Density Mixed-Use neighborhoods are designated. Residents
Residential(Future); want to conserve these places and enhance
• Industrial; and improve them in some cases(as
• Downtown Commercial/Mixed Use; described in"Our Direction'). At the time of
and this plan it is uncertain whether the
• Several public land use designations, neighborhoods will pursue establishing
including Open Lands,Poudre River historic districts for the three historic
Corridor, and Public. neighborhoods or for any individual
neighborhood. Nevertheless,residents
This section describes each land use category express interest in maintaining the character
and what it means for the area. A summary of the neighborhoods.
table follows that compares the Framework
Plan land uses with the Structure Plan and
• ,,�I
current zoning.
Recently upgraded house in Buckingham
Homes in
Norlhside Neighborhoods Plan 3
Droh—September 20,2004 r , • ,
Low Density Mixed-Use Neighborhoods Medium Density Mixed-Use Residential
WAM
Area 1: North of Future Vine Drive
Realignment. Area 2: East of Lemay and Part of Area 3:
This area remains designated as Low Density North of Vine
Mixed-Use Neighborhood(LMN)for The Framework Plan designates these areas
predominantly single-family residential uses, as Medium Density Mixed-Use Residential
including supporting land uses that serve a (MMN)to allow for more concentrated
neighborhood. The 78 acres of planned LMN housing within easy walking distance of
will provide up to 340 new housing units and future neighborhood commercial areas and
could provide homes for over 1,100 future employment and near transit corridors—
residents. This new neighborhood will be Lemay and Vine. Twenty-eight acres of new
adjacent to neighborhood centers and less MMN is planned,which could accommodate
than a mile from Downtown Fort Collins. approximately 224 housing units and an
The new neighborhood should include an estimated 650 new residents in the area. The
internally connected street grid,and a mini- new neighborhood east of Lemay should
park,open lands,and other amenities to serve include internal streets that connect to
future residents. services and the arterials and other amenities
to serve future residents.
i �k4
et�r3
Example of a Late Density Mired Use Neighborhood
Example ofa Medium Density Mixed Use
Neighborhood in Fort Collins—Rigden Form.
P
Example of o Low Density Single Family honsing.
Example of a Medium Density Mixed Use
Neighborhood in Fort Cohios near Lee Martinez Park.
Northside Neighborhoods Plan 4
Draft—September 20,2004 r
• Neighborhood Centers Downtown Commercial/Mixed Use
Area 2: East of Lemay Area 4: Poudre River Ox Bow Property
The plan does not designate a specific The plan designates Downtown Commercial
location for a neighborhood commercial for the Ox Bow site. The site is less than one-
center because of the proximity to larger half mile from Downtown and is situated
shopping centers;however, some small along the Poudre River. The intent is to foster
neighborhood retail uses would be a healthy and compatible relationship
appropriate near the medium density between the Poudre River, the Downtown,
residential areas as part of Area 2. The intent and Buckingham neighborhood.
is to design mixed-use neighborhoods that
provide a balance of residential,commercial, The 20+acre site is fairly constrained because
and other uses within walking distance of of the river bank setbacks and significant
each other. Ground floor retail uses with trees. Assuming that 15 acres of the site
upper level offices or residential would be develops,it could accommodate
appropriate on small sites to function as approximately 100,000 square feet of
neighborhood centers. These neighborhood commercial development or a combination of
centers would be no larger than five acres. retail space,workshops,community facilities,
and housing.
In addition,current city standards require
• that the area within 100 feet of the drip line of
' the large healthy("significant") trees on the
site be preserved and integrated as part of a
development plan.
PA
Example of mixed use neighborhood canter-Lowry,
Denver
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• Distance from Downtown
Northside Neighborhoods Plan 5
Droh—September 20,2004 s ,�
Industrial Industrial/Residential Interface
Area 3: North of Vine Drive and Area 5: Abutting Vine Drive to the North (West of
south of Vine Alta Vista)and South of Vine Drive
The plan continues to encourage industry in The plan establishes this new
the areas that are zoned Industrial. The Industrial/Residential Interface designation
industrial designation currently provides in current zoned industrial areas that abut
opportunities for workplaces and residential to promote small-scale industry or
manufacturing and a wide range of industry, mixed-use development in these areas. In
but not necessarily a mix of uses including essence the designation is an overlay district
residential. The properties in this area are and a fine-tuning of the industrial zoning
small, and altogether could accommodate district.
almost 40 acres of industry, or over 400,000
square feet of building space(including the The designation will no longer allow heavy
"Interface" areas described below). industry—that which generates excessive
traffic,odors,noise, or that is visually
Recent development have used quality incompatible with the neighborhoods. For
building design and materials and example,a junk yard would not be allowed
landscaping to help"blend in"with the area. in the interface area.
However, the designation will provide some
greater flexibility to develop a mix of
m - industry and housing that is not currently
permitted in the Industrial District(without
special approval). Loft-style, live-work units
or small scale offices are good examples. A
mix of live-work units could serve as
"transitions"between existing
neighborhoods and future and existing
Existing Industry in the Area industrial lands.
.r_
Example of live-work units in Longmont,Colorado.
Northside Neighborhoods Plan 6
Draft—September 20,2004
• In addition the current industrial-residential
buffer standards will apply—developers of
industrial properties must still adhere to
requirements to provide buffers and setbacks
near residential properties.
Approximately 34 acres are designated as
part of the"Interface" area.
Public Open Lands
The plan does not designate new public open
lands.However new developments will set
aside some open lands and the Vine Drive
realignment and Lake Canal will have
corridors for greenspace and drainage.
Poudre River Corridor
Portions of the Ox Bow property will tie in
• with the Poudre River Corridor after flood
control improvements to the river bank are
complete. The trail will continue along the
river through this site.
Northside Neighborhoods Plan 7
Draft—September 20,2004 s ,
Future Land Use
Future Land Use NNP Areas Acres Potential New Units
Fxistirgl low Density Residential Existing neighborhoods 37 acres n/a
(developed)
Low Density Mixed-Use Residential 1 —North of Vine 78 acres (new) 390 residential units
(URN) 18 acres
(developed)
Medium Density Mixed Use 2 - East of Lemay 28 acres (new) 225 residential units
Residential(MMN) 3-North of Vine
Neighborhood Services 2—East of Lemay Two Almost 50,000 square
neighborhood feet
centers (new)
5 acres each
Industrial 3—North of Vine 39 acres (new) _ 260,000 sglsare feet-4,
5—South of Vine 101 acres a
(developed)
Industrial/Residential Interface 3—North of Vine 34 acres (new) 150,000 square fept,plas '
5—South of Vine residenfial units
Open Lands Along Lake Canal;Along n/a n/a
all ditches
Poudre River Corridor Along Poudre River n/a n/a
Total Summary 610+ housing units
500,000'/- square feet
of non-residential
business and industry-
Northside Neighborhoods Plan 8
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Attachment 5
City of Fort Collins Transportation Board
• Bruce Henderson, Chair
City of Fort Collins
September 20, 2004
Mayor and City Council Members
City of Fort Collins
PO Box 580
Fort Collins, CO 80522-0580
Dear Mayor and City Council Members:
At the September Transportation Board meeting, the Transportation Staff presented an
alternative to the Lemay Avenue realignment shown in the Master Street Plan. The
alternative is part of the ongoing Northside Neighborhood Plan process. This proposed
• alternative would expand Lemay, in its current alignment, to a four lane arterial. It would
also include an at grade rail crossing.
In a unanimous vote, the Transportation Board strongly supports the realignment of Lemay
as it is shown in the current Master Street Plan. The Board further recommends Staff search
for general alternative funding options, such as SID's, that would accelerate the current
Master Street Plan Lemay Avenue project.
If you would like any clarification, please contact me at 898-4625 or at
bruce.henderson @hp.com.
Thank you,
Bruce Henderson
Chair
•
Attachment 6
G. Richard Dunn TeUFax: 970.494.0974
• 1405 Lindenwood Dr.,Fort Collins, Co. 80524
Mr. Mark Jackson, Planning Manager
Transportation Services, City of Fort Collins
PO Box 580, Fort Collins, Co 80522-0580 September 17, 2004
Re:.Proposed Change to Master Street Plan
Dear Mr. Jackson,
Allow me to use this letter as confirmation of my statements to the Transportation Board
at their meeting on Wednesday, September 15'", 2004 in regards to the proposed change to the
Master Street Plan as affected by a proposed realignment of Lemay Street. I have relayed my
comments to Margaret Guzman and Betty Aragon,both members of the Northside Neighborhood
Plan Committee, and they have confirmed their concurrence by their signatures below.
I opened my comments by stating that I had been requested by two members of the
Hispanic Neighborhood to attend the Transportation Board's meeting and express their concern
about the proposed Lemay realigrmaeent. I suggested that their request to me was the result of
our working together on the Truck Bypass issue and the subsequent ballot initiative in November
1999. The neighborhood cooperation with the Transportation staff resulted in support for the
North Side Master Street Plan. There was concern about the the realigned East Vine Drive,but
• moving Lemay Street east of the City Housing Authority project will offer sufficient
improvement to the general safety and environment that the neighborhood is willing to accept the
potential heavier automobile traffic that the realignment might cause.
The staff report indicated that 25 residential structures would be impacted along Lemay,
with most of the impact being suffered by the Hispanic Neighborhood. I told the Transportation
Board I was certain that attempting to change the Master Street Plan in order to widen Lemay
Street to flour lanes with the required right-of-way, including the attendant bicycle lanes and walks
would be fret with a great deal of resistance. I reminded the Board that the Historic Hispanic
Neighborhoods of Alta Vista, Andersonville, and Buckingham received overwhelming citywide
citizen support when the Truck Bypass Issue threatened to compromise the neighborhood.
I complimented the work of the City Staff on the effort and effectiveness-of working `
closely with the Hispanic Neighborhood on the City Master Street Plan. I closed urging the
Transportation Board to follow the City Staffs recommendation of maintaining Lemay and Vine
as presently shown on the City Master Plan
R�spectf illy submitted, Concurrence by:
T,•��- Caires;
G. Richard Dunn Margaret Guzman Betty AFagon
•